íIM Papers Veröffentlichungsreihe des

íIM Papers
Veröffentlichungsreihe des Internationalen I n s t i t u t s für Management und Verwaltung
Wissenschaftszentrum
Berlin
IIM/78 - 14b '
LABOUR MARKET ADMINISTRATION IN THE
FEDERAL REPUBLIC OF GERMANY
Arbeitsmarktverwaltung i n der BRD
by
Uta
Krautkramer
This national report i s part o f a f i v e country comparison of employment agencies, c a r r i e d through under the d i r e c t i o n of Erhard
Blankenburg and Erhard Friedberg. National reports have also
been written by Horst Hart f o r Sweden (IIM/78 - 14a), Janet Lewis
for the United Kingdom (IIM/78-14c), Gianpietro Mazzoleni f o r
I t a l y (IIM/78-14d), and Martine Morel f o r France (IIM/78-14e).
A grant o f the Stiftung Volkswagenwerk enabled us to finance
the cross-national f i e l d work.
-August 1978
I IM Papers
Publication series of the International I n s t i t u t e of Management
Wissenschaftszentrum B e r l i n .
ZUSAMMENFASSUNG
ARBEITSMARKTVERWALTUNG
I N DER BRD
Eallstudie der bundesrepublikanischen Arbeitsmarktverwaltung
im Rahmen d e s Länder-Vergleichs
Die N o v e l l i e r u n g
d e s Arbeitsförderungsgesetzes s o l l t e d i e
a-rKoi t-c-wor-wai -Hing
marktpo_3J.jtik.'
i n d i e Lage v e r s e t z e n ,
zu b e t r e i b e n .
eine
aktive
'Arbeits-
Im G e g e n s a t z z u a n d e r e n Ländern
w u r d e j e d o c h k e i n e neue I n s t i t u t i o n gegründet, s o n d e r n d i e
b e s t e h e n d e V e r w a l t u n g s o l l t e d i e neuen Z i e l e v e r f o l g e n .
die Arbeitsverwaltung
geld, Vermittlung
z u bewältigen h a t ,
Da
n e b e n d e r Gewährung v o n A r b e i t s l o s e n -
und Beratung auch z i e l o r i e n t i e r t e
Aufgaben
kommt e s b e s o n d e r s i n Z e i t e n h o h e r A r b e i t s -
l o s i g k e i t z u K o n f l i k t e n z w i s c h e n K o n t r o l l o r i e n t i e r u n g und
Dienstleistungsorientierung.
zusammenhangs, i n n e r h a l b
ist,
siehe Vorwort
Zur B e s c h r e i b u n g des P r o j e k t -
dessen d i e s e r B e r i c h t
entstanden
(Seite I ) .
SUMMARY
LABOUR MARKET ADMINISTRATION I N THE FRG
C a s e - s t u d y o f German l a b o u r
a five-country-comparison
administration
I n Germany, t h e a c t i v i t i e s o f t h e l a b o u r
regulated
i n one comprehensive law,
In contrast
the
i n the context of
administration are
t h e Arbeitsförderungsgesetz.
t o t h e o t h e r European c o u n t r i e s
o f our comparison,
l o c a l employment a g e n c i e s combine t h e f u n c t i o n s
i n g unemployment b e n e f i t p r o v i d i n g
F e a t u r e s o f t h e German a d m i n i s t r a t i v e
implementation d i f f i c u l t
grant-
placement and c o u n s e l l i n g
s e r v i c e s as w e l l as i m p l e m e n t i n g g o a l - o r i e n t e d
the
of
policies.
set-up which
a r e a n a l y z e d : s u c h as
render
contra-
d i c t i o n s o f s e r v i c e - o r i e n t a t i o n versus c o n t r o l o r i e n t a t i o n ;
such as l e g a l r e g u l a t i o n s
v e r s u s t h e need t o q u i c k l y
the
market.
changes o f t h e l a b o u r
adapt
TABLE OF
CONTENTS
Page
I.
E D I T O R I A L INTRODUCTION BY ERHARD BLANKENBURG
1.
Möglichkeiten und G r e n z e n d e r
Arbeitsämter, ' a k t i v e A r b e i t s m a r k t politik
zu b e t r e i b e n
1
2.
II.
A Comparative Study o f European .
Labour Market A d m i n i s t r a t i o n
I
XI
LABOUR MARKET ADMINISTRATION I N THE FEDERAL
R E P U B L I C OF GERMANY BY UTA KRAUTKRÄMER
Introduction
1.
T h e 'Arbeitsförderungsgesetz' a s a Law f o r
an ' A c t i v e L a b o u r M a r k e t P o l i c y '
1.1.
1.2.
•
1.3.
2.
2.1.
2.2.
2.3.
2.4.
2.4.1.
2.4.2.
2.5.
2.5.1.
2.5.2.
2.6.
2.7.
1
The P e r c e p t i o n o f L a b o u r M a r k e t Problems.
in the.Sixties
The F o r m u l a t i o n o f G o a l s and F u n c t i o n s i n
t h e AFG
.•
C h a r a c t e r i s t i c s o f P o l i c y I n s t r u m e n t s ....
F o r m a l O r g a n i s a t i o n o f t h e German E m p l o y ment A d m i n i s t r a t i o n
B r i e f H i s t o r i c a l O u t l i n e o f t h e Employment
Administration
•• T h e F o r m a l C h a r t o f t h e B u n d e s a n s t a l t für
Arbeit
The H i e r a r c h i c a l S t r u c t u r e o f a L o c a l
Agency
C o - o r d i n a t i o n Needs, and C o n t r o l S t r u c t u r e
W i t h i n t h e Labour A d m i n i s t r a t i o n
The C o n f e r e n c e S y s t e m a s a Two-way F l o w
of Communication
S t a t i s t i c a l R e c o r d s a s -a P e r f o r m a n c e C o n trol
The P e r s o n n e l S t a f f and C a r e e r M o d e l s o f
the Labour A d m i n i s t r a t i o n
S i z e and V o c a t i o n a l T r a i n i n g o f t h e S t a f f .
The P a y m e n t a n d P r o m o t i o n S y s t e m
The C o n c e p t o f t h e ' S e l b s t v e r w a l t u n g ' - a s
an O r g a n i s a t i o n a l P r i n c i p l e o f t h e L a b o u r
Administration
The I m p l e m e n t a t i o n S t r u c t u r e o f t h e German
Labour A d m i n i s t r a t i o n
3.
The L a b o u r A d m i n i s t r a t i o n
3.1.
The S t a n d a r d P r o c e d u r e f o r U n e m p l o y m e n t
Registration
The L e g a l A u t h o r i t y o n U n e m p l o y m e n t B e n e fits
3.1.1.
i n Action
3
3
6
9
14
15
20
25
30
30
35
38
38
42
44
48
51
54
55
Page
3.1.. 2.
3.2.
3.3.
3.3.1.
3.3.2.
3.3.3.
3.3.4.
3.4.
3.4.1.
3.4.2.
3.5.
G r a n t i n g Unemployment B e n e f i t s .
P l a c e m e n t F u n c t i o n s i n Times o f H i g h
Unemployment
Does the- P l a c e m e n t S e r v i c e M e e t t h e N e e d s
of the C l i e n t s ?
R e l a t i o n s b e t w e e n A g e n t s and Jobseékers
R e l a t i o n s between P l a c e m e n t A g e n t s and
Employers
E m p i r i c a l K n o w l e d g e o n Manpower P l a n n i n g ...
E m p l o y e r s ' S t r a t e g i e s i n two L a b o u r M a r k e t
Regions
V o c a t i o n a l C o u n s e l l i n g as a S t a n d a r d P r o cedure
••••
The G o a l C o n f l i c t o f V o c a t i o n a l C o u n s e l l i n g
P o s s i b i l i t i e s of Influencing the Offer of
Vocational Training
The L a b o u r A d m i n i s t r a t i o n s M e d i a t i n g F u n c t i o n b e t w e e n O f f e r s a n d Demands
Handling A c t i v e Labour Market P o l i c y
4.1.
Getting Information f o r the Implementation
o f ' A c t i v e L a b o u r M a r k e t P o l i c y ' ..........
G r a n t i n g S h o r t - t i m e Money ..:
Job C r e a t i o n Measures
D i f f i c u l t i e s i n t h e P r e - s t a g e o f Implementation
I m p l e m e n t i n g Job C r e a t i o n Measures as a
Bargaining Process
The I n d i v i d u a l P r o m o t i o n o f F u r t h e r T r a i n i n g and R e t r a i n i n g
C o u n s e l l i n g f o r F u r t h e r T r a i n i n g a n d Retraining
Managing the T r a i n i n g I n f r a s t r u c t u r e
F u r t h e r T r a i n i n g and R e t r a i n i n g / s e e n f r o m
the P e r s p e c t i v e of P r o v i d e r s
R e s t r i c t i o n s o n t h e I m p l e m e n t a t i o n o f an
A c t i v e Labour Market P o l i c y
4.3.2.'
4.4.
4.4.1.
4.4.2.
4.4.3.
4.5.
5.
5.1.
5.2.
6.
Appendix I
60
68
69
75
76
79
89
89
94
1
4.
4.2.
4.3.
4.3.1.
58
L o c a l L a b o u r A d m i n i s t r a t i o n and i t s I n t e r organisational Relations
R e l a t i o n s w i t h O r g a n i s e d I n t e r e s t Groups
Relations with Organisations Providing
A d m i n i s t r a t i v e Support Services
The C o n t r i b u t i o n o f t h i s E m p i r i c a l S t u d y o f
t h e German L a b o u r M a r k e t A d m i n i s t r a t i o n
S t r u c t u r e a n d E m p l o y m e n t i n Two
Labour Markets
97
101
102
105
109
111
*
117
. 120
121
123
130
136
140
141
149
155
Regional
157
I
Gesamtprojekt:
"MÖGLICHKEITEN UND GRENZEN DER ARBEITSÄMTER,
'AKTIVE A R B E I T S M A R K T P O L I T I K ' ZU B E T R E I B E N "
1. Z u r P r o b l e m s t r u k t u r
Arbeitsmarktprobleme
turelle,
sind n i c h t nur durch
sondern, auch d u r c h s t r u k t u r a l l e
konjunkVeränderungen
bedingt. Regionale, b r a n c h e n s p e z i f i s c h e und personenbezogene Probleme
( d i e d u r c h s e l e k t i v e Maßnahmen gelöst
w e r d e n müssen) t r e t e n a u c h außerhalb t y p i s c h e r R e z e s s i o n s phasen a u f . " A k t i v e A r b e i t s m a r k t p o l i t i k " , w i e s i e von
d e r OECD e m p f o h l e n
und d i e R e g i e r u n g e n
w i r d , trägt d i e s e r E r k e n n t n i s R e c h n u n g ,
der meisten westlichen Industrie- ' .
n a t i o n e n haben s i c h d i e s e Empfehlungen i n z w i s c h e n zu e i g e n
gemacht. J e d i f f e r e n z i e r t e r a l l e r d i n g s p o l i t i s c h e
nahmen e i n g e s e t z t w e r d e n s o l l e n ,
Maß-
d e s t o größere B e d e u t u n g
kommt d e r g e g e b e n e n E n t s c h e i d u n g s - u n d Verwaltühgss-truktur z u .
Wir gehen n i c h t A r b e i t s m a r k t p r o b l e m e
s t e l l e n d i e Frage, welchen
Verwaltung
politik
1
nehmen k a n n . W o l l t e man d a s F e l d
insgesamt
eine Kombination
an, sondern
A n t e i l a n i h r e r Lösung d i e
'Arbeitsmarkt-
c h a r a k t e r i s i e r e n , müßte man d a b e i b e -
t o n e n , daß d a s g e s e t z t e Z i e l
kann.
insgesamt
'Vollbeschäftigung' n u r d u r c h
verschiedener P o l i t i k e n verfolgt
'Arbeitsmarktpolitik'
im engeren
gehend d i e F u n k t i o n , F o l g e p r o b l e m e
werden
Sinne h a t weit-
zu behandeln,
II
An
V e r m i t t l u n g und Verwaltung
von A r b e i t s l o s i g k e i t
knüpfen d i e z i e l g e r i c h t e t e n Maßnahmen a n , d i e a l s
'aktive Arbeitsmarktpolitik
1
zu bezeichnen
D e s h a l b können w i r ' P r o b l e m s t r u k t u r '
der
gegebenen
1
h i e r n i c h t von
Implementationsstruktur'
Schon i n den s e c h z i g e r J a h r e n
sind.
trennen.
e n t w i c k e l t e n d i e OECD-Länder
neue, a k t i v e r e a r b e i t s m a r k t p o l i t i s c h e I n s t r u m e n t e .
Zu
gleicher
d.h.
Z e i t wurden d i e I m p l e m e n t a t i o n s i n s t a n z e n ,
die Arbeitsverwaltungen,
e r w e i t e r t oder i n i h r e r
Organi-
s a t i o n s s t r u k t u r geändert, um d e n n e u e n A n f o r d e r u n g e n g e r e c h t z u werden.'Mehr a l s i n a n d e r e n P o l i t i k f e l d e r n
j e d o c h a u f d i e A r b e i t s m a r k t p o l i t i k Maßnahmen
I n s t i t u t i o n e n und I n t e r e s s e n g r u p p e n
Arbeitsverwaltungen
und
s i n d aufgrund
wirken
verschiedener
e i n . D i e Aufgaben d e r
der Interdependenzen
der Restriktionen dieses P o l i t i k f e l d e s
eher v e r m i t t e l n -
d e r a l s h o h e i t l i c h e r A r t . Da s i c h d i e A r b e i t s v e r w a l t u n g e n
bis
i n d i e sechziger Jahre weitgehend a l s Vermittlungs-.
und
Versicherungs-Institutionenverstanden
h a b e n , müssen
d i e e r w e i t e r t e n V e r w a l t u n g s a u f g a b e n z u r e c h t l i c h e n und
o r g a n i s a t o r i s c h e n Veränderungen s o w i e z u e i n e r U m o r i e n t i e r u n g des P e r s o n a l s
führen.
D i e i n d e r U n t e r s u c h u n g e i n b e z o g e n e n Länder h a b e n ( b i s
•auf I t a l i e n )
i n den l e t z t e n Jahren
einen gesetzlichen
Rahmen für e i n e m e h r " a k t i v e A r b e i t s m a r k t p o l i t i k "
und
geschaffen
h a b e n d a b e i d i e K o n s e q u e n z e n o r g a n i s a t o r i s c h e r . Verände-
r u n g e n i n u n t e r s c h i e d l i c h e m Ausmaß g e z o g e n . U n t e r
Araeitsmarktpolitik wird eine z i e l orientierte
P o l i t i k verstanden,
und l a n g f r i s t i g
d i e s i c h d e r wachsenden
Problemkomplexität d e s A r b e i t s m a r k t e s
der Instrumente
durch D i f f e r e n z i e r u n g
anzupassen v e r s u c h t , d i e e i n e Abstimmung
m i t den verwandten P o l i t i k e n
der Wirtschafts-, Sozial-,
B i l d u n g s - und R e g i c n a l p o l i t i k
a n s t r e b t und d i e n i c h t n u r
nachträglich a u f U n g l e i c h g e w i c h t e
die verursachenden
versucht.
"aktiver"
Faktoren
raagiert,
sondern auf
s e l b s t Einfluß z u nehmen
III
2. V o r g e g e b e n e M e r k m a l e
D i e Tätigkeit d e r A r b e i t s v e r w a l t u n g muß man i m Zusammenhang
mit
den V o r g e g e b e n h e i t e n j e d e r A r b e i t s m a r k t p o l i t i k sehen:
d i e V e r m i t t l u n g v o n Arbeitskräften f i n d e t a u f
Märkten s t a t t ,
die jeweils ihre
eigenen
h a b e n . I n t e r n e Arbeitsmärkte e n t s t e h e n
verschiedenen
Gesetzmäßigkeiten
i n großen
Betrieben
innerhalb durch A u s b i l d u n g s z e r t i f i k a t e abgeschlossener
Pro-
f e s s i o n e n . A r b e i t g e b e r s u c h e n Arbeitskräfte a u f v e r s c h i e d e nen
in
i n f o r m e l l e n Wegen über Z e i t u n g s a n n o n c e n
und o f t e r s t
l e t z t e r L i n i e über d i e A r b e i t s v e r w a l t u n g . M e i s t w e r d e n •
d i e Arbeitskräfte, d i e s i c h über Arbeitsämter v e r m i t t e l n
lassen,
a l s d i e w e n i g e r leistungsfähigen a n g e s e h e n . D i e
'Durchdringung
verwaltung
1
des A r b e i t s m a r k t e s
i s t j e nach Berufsgruppe
von S e i t e n d e r A r b e i t s und W i r t s c h a f t s s e k t o r
u n t e r s c h i e d l i c h . J e geringer d i e Durchdringung, desto
hat d i e Arbeitsverwaltung d i e schlechtesten
angebote
(sowohl
plätze a n g e h t ) ,
Vermittlungs-
was Arbeitskräfte a l s a u c h was A r b e i t s desto
s c h l e c h t e r w i r d i h r Image,
desto
weniger kann s i eden A r b e i t s m a r k t w e i t e r durchdringen
dies
mehr
i s t e i nnegativer
usw. •
Zirkel.
Die Regelung von Angebot von und Nachfrage nach A r b e i t h a t •
m i t dem M a r k t v o n m a t e r i e l l e n Gütern w e n i g g e m e i n s a m . Das
S p i e l v o n A n g e b o t u n d N a c h f r a g e i s t abhängig vom S u c h v e r h a l t e n von Arbeitgebern
und Arbeitnehmern. Dabei b i l d e n
s i c h b e r u f s s p e z i f i s c h e u n d b e t r i e b s i n t e r n e Arbeitsmärkte
mit
i h r e n j e w e i l s eigenen
Gesetzmäßigkeiten, u n d e s b i l d e n
s i c h r e g i o n a l e , s e k t o r a l e und q u a l i f i k a t i o n s s p e z i f i s c h e
S e g m e n t i e r u n g e n , d i e d i e Mobilität einschränken.
•
Arbeitsmarktpolitik versucht
verschiedenen
i n d i e Suchprozesse a u f den
Arbeitsmärkten e i n z u g r e i f e n , i n d e m s i e Mo-
bilität fördert, d a s Q u a l i f i k a t i o n s a n g e b o t
anzupassen sucht und e i n I n f o r m a t i o n s -
strukturell
und V e r m i t t l u n g s -
a n g e b o t macht. An d i e s e V e r m i t t l u n g i s t g l e i c h z e i t i g d i e
Verwaltung
d e r A r b e i t s l o s e n v e r s i c h e r u n g geknüpft, so- daß,
was w i r a l s Arbeitsmarktverwaltüng,bezeichnen,
Mischung von d r e i verschiedenen
eine
A u f g a b e n z u erfüllen h a t .
IV
- Verwaltung
derArbeitslosenversicherung;
- V e r m i t t l u n g v o n A r b e i t s s t e l l e n u n d Arbeitskräften;
- a r b e i t s m a r k t p o l i t i s c h e A n r e i z e und a r b e i t s p l a t z erhaltende
Maßnahmen.
Dabei g i b t es W e c h s e l b e z i e h u n g e n zwischen
Größere D u r c h d r i n g u n g
v
den Aufgaben:
i s t für d i e ' A r b e i t s v e r w a l t u n g w i c h t i g
im H i n b l i c k a u f i h r e
'policy'-Aufgaben.
Maßnahmen z u r
Strukturverbesserung
d e s A r b e i t s m a r k t e s , w i e z.B. U m s c h u l u n g
u n d F o r t b i l d u n g , o d e r a b e r mobilitätsfordernde
kennen n u r dann
1
' g r e i f e n , wenn d i e A r b e i t s v e r w a l t u n g e n
e i n e n überblick über d i e B e w e g u n g e n a u f dem
insgesamt h a t
Maßnahmen
Arbeitsmarkt
u n d i h r e Maßnahmen v o n e i n e r b r e i t e n K l i e n t e l
wahrgenommen u n d i n A n s p r u c h genommen w e r d e n .
Eine weitere Vorgegebenheit
der Arbeitsverwaltung:
A u f g a b e n verändern s i c h . g r u n d l e g e n d
gungslage.
ihre
j e n a c h d e r Beschäfti-
I n Z e i t e n d e r A r b e i t s l o s i g k e i t nehmen A r b e i t s -
l o s e n v e r s i c h e r u n g und d i e E r h a l t u n g und S c h a f f u n g
von A r b e i t s -
plätzen Priorität e i n u n d verdrängen d i e a u f w e n d i g e n Tätigk e i t e n , d i e s i c h auf d i e Verbesserung
der Arbeitsmarkt-
s t r u k t u r r i c h t e n würden•. H i n z u kommt, daß
• strukturverändernde Maßnahmen m i t großer
heit belastet sind,
tern,
längerfristige
Prognoseunsicher-
u n d d a h e r n i c h t n u r d a s spätere S c h e i - •
s o n d e r n a u c h d i e S c h e l t e für f e h l g e l e i t e t e
z u r ständigen G e f a h r
Maßnahmen
machen.
Vorgegebene Merkmale v o n A r b e i t s m a r k t p o l i t i k s i n d
- das Nebeneinander und d i e Segmentierung
damit:
verschieden-
a r t i g e r Arbeitsmärkte m i t u n t e r s c h i e d l i c h e r C h a n c e d e r
Durchdringung
v o n s e l t e n öffentlicher V e r m i t t l u n g ;
- d e r s c h n e l l e W a n d e l v o n P r o b l e m s i t u a t i o n e n a u f dem
A r b e i t s m a r k t und d i e d a m i t gegebene
Prognoseunsicher-
heit;
- u n d d i e Abhängigkeit v o n d e r a l l g e m e i n e n W i r t s c h a f t s 'und
Sozialpolitik.
\
V
3. I i a p l a m e n t a t i o n s s t r u k t u r e n
Die Implementationsproblematik
von'Arbeitsmarktpclitik
e r g i b t s i c h aus den genannten Vorgegebenheiten
und den
Merkmalen des Programms: a d m i n i s t r a t i v e A u t o n o m i e e r l a u b t
den
n a t i o n a l e n A r b e i t s v e r w a l t u n g e n (mehr a l s d e n s o n s t i g e n
Behörden d e r i n n e r e n V e r w a l t u n g ) ,
durch R i c h t l i n i e n
anzupassen.
ihre Politik'
an d i e j e w e i l i g e
ständig
Arbeitsmarktpolitik
S o l c h e Richtlinienänderungen müssen
inner-
h a l b d e r e i g e n e n Bürokratie d u r c h g e s e t z t u n d k o n t r o l l i e r t ,
in. d e r Regel
aber auch b e i den A d r e s s a t e n
und/oder Arbeitnehmer)
(Arbeitgeber
b e k a n n t gemacht werden. Der Gebrauch
a r b e i t s m a r k t p o l i t i s c h e r Maßnahmen muß g e s t e u e r t u n d d e r
Mißbrauch v e r h i n d e r t w e r d e n . I n b e z u g a u f d i e A r b e i t g e b e r
s e t z t d i e s eine weitgehende Information der Verwaltung
über d i e P e r s o n a l p o l i t i k v o r a u s
einlösbare F o r d e r u n g ,
allenfalls
- eine v i e l f a c h
da e i n e e x p l i z i t e
Personalplanung
i n größeren B e t r i e b e n e x i s t i e r t .
die Arbeitnehmer
wären V o r a u s s e t z u n g e n
d r i n g u n g s r a t e d e r V e r m i t t l u n g sowie
I n bezug a u f
e i n e .große
eine
Durch-
Erfolgskontrolle,
w i e w e i t V e r m i t t l u n g e n z u längerfristiger
Beschäftigung
•und z u f r i e d e n s t e l l e n d e n A r b e i t s b e d i n g u n g e n
Das
nicht
führen.
Programm e i n e r a k t i v e n ' A r b e i t s m a r k t p o l i t i k h a t d i e
Anforderungen
an d i e V e r w a l t u n g
w e i t über
traditionelle
A u f g a b e n h i n a u s erhöht. S i e h a t i n d e n v e r s c h i e d e n e n
1
europäischen Ländern
-
z u e i n e m ähnlichen K a t a l o g v o n
möglichen Maßnahmen geführt, d a b e i a b e r
l i c h e Kompetenzverteilungen
sehr unterschied-
und O r g a n i s a t i o n s f o r m e n
e r h a l t e n . Was i n dem e i n e n L a n d A u f g a b e d e r Arbeitsämter
ist,
kann i n den anderen e i n e r Reihe v o n I n s t i t u t i o n e n
zugewiesen
und d a b e i m i t a n d e r s a r t i g e n Aufgaben k o m b i n i e r t
sein.
'Arbeitsmarktverwaltung' w i r d i n diesem
daher
f u n k t i o n a l durch
gebenen A u f g a b e n k a t a l o g
wir alle
Projekt
einen von der Untersuchung
definiert.
diejenigen Institutionen,
vorge-
Hierunter "erstehen
d i e und s o w e i t s i e d i e
f o l g e n d e n a r b e i t s m a r k t p o l i t i s c h e n A u f g a b e n wahrnehmen.
VT
A l s Kernaufgaben der Arbeitsmarktverwaltungen
sehen
w i r dabei an:
die
Arbeitslosenversicherung:
Die
Entstehung von Arbeitsverwaltungen
v e r g l i c h e n e n Ländern kann-.
der
auf d i e
i n allen
Notwendigkeit
Folgenbewältigung v o n A r b e i t s l o s i g k e i t
zurück-
geführt w e r d e n . N i c h t i m m e r heißt d i e s , daß d i e
Arbeitslosenversicherung von s t a a t l i c h e n Verwalt u n g e n durchgeführt w i r d
( w i e s i c h e t w a am B e i -
s p i e l v o n Schweden und F r a n k r e i c h
besteht
zeigt).
Jedoch
überall e i n arbeitsmäßiger Zusammenhang
zwischen d e r R e g i s t r i e r u n g von A r b e i t s l o s e n ebenso
. für- d i e V e r s i c h e r u n g
a l s a u c h für
Vermittlungs-
bemühungen. G l e i c h , o b d i e A r b e i t s l o s e n v e r s i c h e r u n g
von
derselben
Institution verwaltet wird, b e i der
auch R e g i s t r i e r u n g und.Vermittlung
vorgenommen
werderv o d e r n i c h t , s e h e n w i r d i e A r b e i t s l o s e n v e r sicherung
a l s e i n e d e r Kernaüfgaben
a n a l y t i s c h e n B e g r i f f s von
unseres
'Arbeitsmarktverwaltung'
an.
-
Normkontrollierende"
I n e i n i g e n Ländern
A u f g a b e n gegenüber
Arbeitgebern:
(so F r a n k r e i c h und I t a l i e n )
'ArbeitsInspektoren'
a l sT e i l der
1
werden
Arbeitsverwaltung'
angesehen, i n anderen i s t d i e K o n t r o l l e von A r b e i t s und
Unfallschutzvorschriften, gesetzlichen Arbeits-
regulierungen
und A r b e i t s s c h u t z v o r s c h r i f t e n eigenen
A u f s i c h t s ä m t e m übertragen
Modell
eines Vertrages
(soweit
s i en i c h t nach
dem
auf d i e r e c h t l i c h e Interessen-
d u r c h s e t z u n g durch d i e b e t r o f f e n e n A r b e i t n e h m e r und
i h r e r G e w e r k s c h a f t e n beschränkt s i n d , o h n e
K o n t r o l l e n vorzusehen).
Solche
staatliche
Kontrollaufgaben
beschäftigen u n s h i e r n u r s o w e i t , w i e s i e z u r
Regulierung
des A r b e i t s m a r k t s
sind
häufig v e r f l o c h t e n m i t B e d i n g u n g e n für
jedoch
e i n g e s e t z t werden. S i e
VII
d i e Gewährung v o n S u b v e n t i o n e n u n d Zuschüssen
r
e b e n s o w i e b e i d e r V e r m i t t l u n g v o n Arbeitskräften
auch d i e E i n h a l t u n g von A r b e i t s b e d i n g u n g e n
-Schutzvorschriften kontrolliert
wird.
und
z u werden
versucht
Zwar-mögen d i e r e g u l a t i v e n Möglichkeiten d e r
Arbeitsmarktverwaltung
(gerade
Dienstieistungsfunktion)
auch wegen i h r e r
s c h w a c h b l e i b e n , überall
h a b e n i n d e n v e r g l i c h e n e n Ländern j e d o c h
d i eA r b e i t s -
marktverwaltungen' solche normkontrollierenden
Aufgaben
wahrzunehmen.
Vermittlungsaufgaben:
Eine
d e r B e d i n g u n g e n , um L e i s t u n g e n
aus d e r A r b e i t s -
l o s e n v e r s i c h e r u n g o d e r a u s s o n s t i g e n Förderungen z u
beziehen,
i s t , daß d e r B e t r e f f e n d e
registriert
a l s Arbeitssuchender
i s t u n d daß e r grundsätzlich b e r e i t i s t ,
e i n e angemessene S t e l l e
a n z u n e h m e n . Darüber
w i r d von den A r b e i t s v e r w a l t u n g e n
hinaus
d i e Vermittlung von
A n g e b o t u n d N a c h f r a g e n a c h Arbeitsplätzen a l s D i e n s t leistung
a u c h für d i e j e n i g e n a n g e b o t e n , d i e n i c h t a l s
A r b e i t s l o s e kommen,, s o n d e r n i n d a s B e r u f s l e b e n n e u
e i n t r e t e n oder-ihre S t e l l e wechseln wollen.
I n .einem
d e r v e r g l i c h e n e n Länder s t e h t d i e A r b e i t s v e r w a l t u n g i n
offenem Wettbewerb zu p r i v a t e n
i n der Bundesrepublik
Vermittlungseinrichtungen)
Deutschland,
F r a n k r e i c h und
S c h w e d e n genießen s i e e i n M o n o p o l d e r
Vermittlung; i n I t a l i e n besteht
gewerblichen
s o g a r .eine w e i t g e h e n d e
P f l i c h t d e r A n w e r b u n g über d i e s t a a t l i c h e
V e r m i t t l u n g und B e r u f s b e r a t u n g
m a c h e n e i n e n großen
d e r Aktivitäten d e r A r b e i t s v e r w a l t u n g
Untersuchung von e i n e r Analyse
Vermittlung.
a u s , s o daß u n s e r e
d i e s e r Tätigkeit
Aufgaben der E r r e i c h u n g p o l i t i s c h e r
Teil
ausgeht.
Programmzieie:
Anknüpfend a n d i e Erfüllung i h r e r a d m i n i s t r a t i v e n A u f gaben und d i e E r b r i n g u n g
von V e r m i t t l u n g s d i e n s t l s i s t u n g e n
VIII
werden von den A r b e i t s V e r w a l t u n g e n
Sielerfüllungen i m S i n n e
zunehmend
arbeitsmarktpolitischer
Programme, e r w a r t e t . E i n r i c h t u n g e n für F o r t b i l d u n g e n
und
U m s c h u l u n g e n müssen e r r i c h t e t w e r d e n ,
plätze für. B e h i n d e r t e g e s c h a f f e n ,
Arbeits-
Subventionen
g e z i e l t e i n g e s e t z t u n d Arbeitsplätze
geschaffen
werden. Solche Aufgaben d e r Implementation
politischer
P r o g r a m m e knüpfen m e i s t a n Vermittlungstätigkeiten
an,, u n d s i e s e t z e n I n f o r m a t i o n e n v o r a u s , d i e h i e r b e i
und
b e ider R e g i s t r i e r u n g von Arbeitslosen
gesammelt
.werden. I n Z e i t e n h o h e r A r b e i t s l o s i g k e i t können
m i t t l u n g , und Beratung
Ver-
d a z u b e n u t z t w e r d e n , um d i e
Arbeitshevölkerung i n s g e s a m t
zu r e d u z i e r e n ; i n Z e i t e n
d e r Vollbeschäftigung können s i e m i t A n s t r e n g u n g e n
• v e r b u n d e n werden,- Arbeitskräftereservoire z u m o b i l i sieren.
S o l c h e Maßnahmen b e r u h e n a u f I n f o r m a t i o n e n ,
d i e b e i l o k a l e n Arbeitsämtern g e s a m m e l t w e r d e n müssen,
und
s i e müssen i m Rahmen l o k a l e r A r b e i t s m a r k t v e r w a l -
t u n g durchgeführt w e r d e n . D i e a l l g e m e i n e n
politischen
R i c h t l i n i e n w e r d e n zunächst a u f e i n e r höheren E n t scheidungsebene
gegeben, jedoch b l e i b e n d e r l o k a l e n
A r b e i ' t s m a r k t v e r w a l t u n g Handlungsspielräume i n ' dem
' l o k a l e n Netz
r e l e v a n t e r A k t e u r e , um d i e S t r a t e g i e n
der lokalen Implementation
oder Nicht-Implementation •
von n a t i o n a l e n a r b e i t s m a r k t p o l i t i s c h e n Z i e l s e t z u n g e n
zu einem lohnenswerten
G e g e n s t a n d für u n s e r e
Analyse
z u machen.
Das V o r g e h e n i n d e r h i e r v o r g e l e g t e n F a l l s t u d i e i s t i m
Rahmen d e r g e m e i n s a m e n F r a g e s t e l l u n g e n t w i c k e l t ,
j e d o c h den j e w e i l i g e n n a t i o n a l e n G e g e b e n h e i t e n
dabei
angepaßt
w o r d e n . I n a l l e n Fällen b e s c h r e i b e n w i r d i e n a t i o n a l e n
I n s t i t u t i o n e n der Arbeitsmarktverwaltung nur insoweit,
als
s i e zum Verständnis d e r A n a l y s e
notwendig
sind.
Der L a s e r s o l l t e
der lokalen
Verwaltung
d i e S t u d i e n im H i n b l i c k
auf den a n g e s t r e b t e n i n s t i t u t i o n e l l e n V e r g l e i c h
lesen.
IX
4. E i n i g e
Schlußfolgerungen
D i e G r e n z e n u n d Möglichkeiten d e r A r b e i t s v e r w a l t u n g ,
Arbeitsmarktpolitik'
'aktive
z u b e t r e i b e n , ergeben s i c h aus den
Vorgegebenheiten des P o l i t i k f e l d e s
(Kontingenzen)
e i n e n S e i t e , aus den B e s o n d e r h e i t e n
auf der
der administrativen
K u l t u r des j e w e i l i g e n Landes a u f d e r anderen. A l s Vorgegebenh e i t e n h a b e n w i r d i e Abhängigkeit v o n
der W i r t s c h a f t s - und S o z i a l p o l i t i k
Entscheidungsprozessen
sowie den s c h n e l l e n
W a n d e l v o n . P r o b l e m l a g e n a u f dem A r b e i t s m a r k t h e r a u s g e s t e l l t .
Darüber h i n a u s
g i b t e s e i n i g e gemeinsame Merkmale, d i e s i c h
zwar n i c h t n o t w e n d i g aus den V o r g e g e b e n h e i t e n des P o l i t i k f e l d e s e r g e b e n , , d e r e n Universalität j e d o c h
So
sind i n a l l e n untersuchten
plausibel i s t :
Ländern d i e T a r i f p a r t n e r
i n G r e m i e n d e r A r b e i t s v e r w a l t u n g e i n g e b u n d e n . - Da zum K e r n
der Aufgaben d i e s e r Verwaltung
eine Vermittlung
zwischen
K l i e n t e n m i t t e i l w e i s e u n t e r s c h i e d l i c h e n I n t e r e s s e n gehörtund
da diese
Arbeitgeber
a u f d e r einen' S e i t e , Arbeitnehmer
auf d e r anderen - k o l l e k t i v o r g a n i s i e r t s i n d , l i e g t
solche i n s t i t u t i o n e l l e Einbindung
des
der relevanten
Akteure
o r g a n i s a t o r i s c h e n U m f e l d e s nahe". G l e i c h z e i t i g
d i e s e ümweltbezogenheit d e r A r b e i t s v e r w a l t u n g
der allgemeinen
inneren'Verwaltung
a l l e n untersuchten
Akteuren
einen
gegenüber
autonomen S t a t u s . I n
Ländern k e h r t d i e E i n b i n d u n g
d e r l o k a l e n Ebene w i e d e r .
mit relevanten
Dennoch g i b t es k e i n
für e i n e e f f e k t i v d e z e n t r a l i s i e r t e
mit Einbindung
i n das l o k a l e p o l i t i s c h e
V i e l l e i c h t . i s t es w i c h t i g , auf diese
weisen:
gibt
des Umfeldes auf d e r n a t i o n a l e n , r e g i o n a l e n wie
auch, ( m e i s t )
Beispiel
eine
Arbeitsverwaltung
Entscheidungssystem.
'non-decision'
hinzu-
e i n e kommunale A r b e i t s v e r w a l t u n g w u r d e i n k e i n e m
der
untersuchten
Länder i n Erwägung g e z o g e n . D i e B e d e u t u n g
von
überregionaler V e r m i t t l u n g , d i e Förderung v o n Mobilität
und
d i e vom V e r s i c h e r u n g s p r i n z i p h e r g e b o t e n e .Großräumigkeit
schließen d i e s a u s , e b e n s o w i e d i e n a t i o n a l e n Förderungsmaßnahmen d e r A r b e i t s m a r ' k t p o l i t i k zudem e i n e z e n t r a l e
I n f o r m a t i o n s g e w i n n u n g und - a u s w e r t u n g d e r j e w e i l i g e n
Arbeitsmarktentwickiung
voraussetzen.'-"Dies
führt z u e i n e r •
V e r r e c h t l i c h u n g v o n Ansprüchen u n d L e i s t u n g e n ,
Begleitumstand
z e n t r a l i s i e r t e r K o n t r o l l ei s t .
d i e wiederum
X
Trotz
Vorgegebenheiten des P o l i t i k f e l d e s
und ( i n
Rahinen u n s e r e r Fünf-Länder-Studie) u n i v e r s a l e r
Merk-
male s p i e g e l t d e r Aufbau d e r A r b e i t s v e r w a l t u n g
Merk-
male d e r j e w e i l i g e n n a t i o n a l e n
'.administrativen
Kultur'
w i d e r . Erklärungen können t e i l w e i s e a u s d e n A u f b a u p r i n z i p i e n d e r a l l g e m e i n e n i n n e r e n V e r w a l t u n g gewonnen
w e r d e n : a u s dem Ausmaß v o n Z e n t r a l i s i e r u n g u n d V e r rechtlichung
auf der einen,
von l o k a l e r Autonomie und
E n t s c h e i d u n g s s p i e l r a u m a u f d e r anderen S e i t e , s p r i c h aus
der. j e w e i l i g e n n a t i o n a l e n
T r a d i t i o n , an d e r d i e A r b e i t s -
v e r w a l t u n g a u f g r u n d i h r e r Kooperationsabhängigkeit
nicht
v o r b e i g e h e n k a n n . D i e Abhängigkeit v o n d e n T a r i f p a r t n e r n
macht e i n w e i t e r e s
Merkmal d e r p o l i t i s c h e n K u l t u r z u r
entscheidenden Variable
Arbeitsverwaltung:
für d i e HandlungsSpielräume d e r
B e i p o l a r i s i e r t e n Beziehungen
zwischen
Gewerkschaften und Unternehmern i s t d i e K o o p e r a t i o n s fähigkeit 'für d i e A r b e i t s V e r w a l t u n g
gering,
d i e Handlungs-
möglichkeiten für d i e a r b e i t s m a r k t p o l i t i s c h e n
klein.
Umgekehrt i s t e i n e
schaften
Maßnahmen
damit
stärkere E i n b i n d u n g v o n G e w e r k -
u n d ü n t e m e h m e r v e r b ä n d e n i n d i e Tätigkeit d e r
Arbeitsverwaltung
Indikator
für e i n e n S o z i a l k o n t r a k t , d e r
d i e T a r i f p a r t n e r e b e n s o w i e d i e V e r w a l t u n g einschließt.
Unter
'administrativer Kultur'
des j e w e i l i g e n Landes i s t
a l s o e i n Bündel v o n M e r k m a l e n z u v e r s t e h e n , d a s n i c h t
nur
d i e I n s t i t u t i c n a l i s i e r u n g d e r K e r n a u f g a b e n einschließt,
d e s s e n was w i r a l s ' A r b e i t s m a r k t v e r w a l t u n g '
sondern auch d i e Beziehungen zu relevanten
d e r e n I n s t i t u t i o n e n i n dem j e w e i l i g e n L a n d
d e f i n i e r t haben,
A k t e u r e n und
herstellt.
H i e r i n l i e g t d i e Erklärung für u n t e r s c h i e d l i c h e
möglichkeiten d e r v o n u n s u n t e r s u c h t e n
innerhalb
d e r vom P o l i t i k f e l d
Verwaltungen
vorhergegebenen
Erhard
Handlungs-
Blankenburg
Grenzen.
XI
A COMPARATIVE STUDY OF
ADMINISTRATION
1, C o n t i n g e n c i e s
The
EUROPEAN LABOUR MARKET
of Labour Market A d m i n i s t r a t i o n
agencies
which place people
among p u b l i c a d m i n i s t r a t i o n s ;
they
can
govern.
between s u p p l y
clients
t h e y m u s t m e d i a t e more
They a r e e x p e c t e d
and
into jobs are p e c u l i a r
to achieve
demand f o r l a b o u r .
and
employers.
by p l a c e m e n t a g e n c i e s
istration
renders
a match
Thus, they have
simultaneously w i t h p a r t l y opposing
jobseekers
i s only p a r t i a l ;
t h a n m a k i n g a u t h o r i t a t i v e and
two
interests:
Penetration of labour
s e r v i c e s and
than
markets
the labour
admin-
offers subsidies rather
binding decisions.
This
e x p l a i n s some o f t h e p a r a d o x e s o f l a b o u r a d m i n i s t r a t i o n .
Placement s e r v i c e s form the core a c t i v i t y of the
i s t r a t i o n s w h i c h we
placement, insurance
performed*.
expected
t a s k s and
With these
t o be
w h i c h we
study.
I n some c o u n t r i e s t h e s e
In a l l countries they
tasks
a set
labour market
trade
to
politicians
activities
market
'fiat'".
o f unemployment p r o b l e m s
has
t o l o o k t o l a b o u r a d m i n i s t r a t i o n as a
i n f l u e n c e labour market c o n d i t i o n s .
With economic
t e c h n o l o g i c a l change i n w e s t e r n i n d u s t r i a l
at
societies
way
and
going
a r a p i d pace, a i l European c o u n t r i e s have e x p e r i e n c e d
r i s e i n u n e m p l o y m e n t i n d e p e n d e n t o f t h e ups
business
cycle.
During
the
unions.
c o n d i t i o n s c a n h a r d l y be o v e r c o m e by p o l i t i c a l
the pressure
'labour
policies
Some o f t h e l i m i t s t o e f f e c t i v e l y c h a n g e l a b o u r
led
of
d e p e n d on
g e n e r a l e c o n o m i c c o n d i t i o n s , by
o f e m p l o y e r s as w e l l as
be
are
n e v e r t h e l e s s a n a l y t i c a l l y d e f i n e as
r e l e v a n t i n s t i t u t i o n a l environment:
Nevertheless,
with
r e g u l a t o r y t a s k s have t o
s i n g l e a g e n c y , i n o t h e r by
market a d m i n i s t r a t i o n ' .
a r e d e t e r m i n e d by
Connected
t a s k s a number o f p o l i c y g o a l s
fulfilled.
a r e p e r f o r m e d b y one
agencies
compare i n t h i s
admin-
and
downs o f
the s i x t i e s , European c o u n t r i e s
a
the
xir
provided
their
labour market a d m i n i s t r a t i o n s w i t h
power t o i n t e r f e r e
market.
i n supply
increased
a n d demand o n t h e l a b o u r
The f o r m u l a t i o n o f an ' a c t i v e l a b o u r m a r k e t
was s t i m u l a t e d a n d c o - o r d i n a t e d
b y OECD e x p e r t s .
policy'
The
r e c o m m e n d a t i o n s t h a t came f r o m t h e OECD b u r e a u c r a c y
of
international
policies
'mandarins' l e d t o b a s i c a l l y
similar
being adopted i n the European c o u n t r i e s s t u d i e d .
All
process
c o u n t r i e s which took
part i n t h i s mutual
imitation
i n t r o d u c e d major, changes i n t h e i r a d m i n i s t r a t i v e
structure.
Some c o u n t r i e s
a new f i e l d
agencies
(France
o r g a n i s a t i o n along
a n d E n g l a n d ) b u i l t up
side of the t r a d i t i o n a l
o f t h e Department o f Labour.
Sweden) s h i f t e d g o a l s
Some (Germany a n d
and c a p a c i t i e s o f t h e i r
administrative structure.
traditional •
In methodological
terms, t h e
c o n t r o l case i s I t a l y , where a t r a d i t i o n a l p a t t e r n o f l a b o u r
bureaucracy
still
prevails.
countries
policy
(reactive policy
and r i g i d b u r e a u c r a t i c
Our comparative
focuses
a n a l y s i s i n these
on t h e implementation
on t h e l o c a l
level.
of labour
five
market
W i t h t h i s - a p p r o a c h we
avoided
the
assumption t h a t n a t i o n a l policymaking' i s remote
its
a c t u a l implementation.
formulated
style)
from
What a t t h e n a t i o n a l l e v e l i s
b y way o f g o a l d e c l a r a t i o n s , b u d g e t a r y
alloc-
a t i o n s , - a n d a d m i n i s t r a t i v e p r e s c r i p t i o n s , may h a v e
u n a n t i c i p a t e d consequences a t t h e l o c a l
level,
r e l e v a n t actors i n labour market p o l i c y
can prevent
c e n t r a l i s e d c o n t r o l over
local
Conceptually,, t h e study
(i.e.
labour
markets.
s t a r t s o u t with, t a s k
contingencies
i n h e r e n t c h a r a c t e r i s t i c s o f t h e t a s k t o be performed)
of labour m a r k e t - p o l i c y
and t h e r e s u l t i n g
market a d m i n i s t r a t i o n . The n e x t
done b y i d e n t i f y i n g
agencies
ment i n s u r a n c e ,
to labour
study
t h i s c a n o n l y be
f u n c t i o n s : as core
a c t o r s we d e f i n e
w h i c h p r o v i d e placement s e r v i c e s , unemployfurther training,
programmes f o r i m p r o v i n g
Relevant
limits
s t e p i s t o d e f i n e who
the a c t o r s a r e . I n a comparative
those
since the
a c t o r s a r e those
labour
retraining
and s p e c i f i c
market.structure.
w i t h whom t h e c o r e
to i n t e r a c t continuously i n order
t o achieve
agencies
their
have
goals.
XIII
As
one
of
the
givens
of t h i s
policy
field
is a
i n t e r a c t i o n between employers, t r a d e
unions,
g o v e r n m e n t , we
some s o r t
find
institutionalised
in
the
i n a i l countries
p a r t i c i p a t i o n of
management o f
To
these b a s i c
been added.
with
The
i t gets
in
e v e n more p r o b l e m a t i c
labour
school-leavers
advisory
the
difficulty
decisions
i n the
tasks- are
attempted.
about t h e i r
long-term
as w e l l as
prospects
advising
individual clients
relation
i n i n d i v i d u a l cases of
e v e n more d i f f i c u l t ,
of
labour
to p o l i t i c a l
only perform t h e i r
and
to prevent
'undesirable'
analysis w i l l
e m p l o y e r s as
deal with
dealing with
their
advisory
of
considered" i n
Labour market agencies
t o the
s a t i s f a c t i o n of
c l i e n t s , but
labour
the
making
expectations
a g e n c i e s , m u s t be
tasks
jobseekers
as
s i t u a t i o n s . • These
i f the
goals..
expected
market developments.
basic
clients,
they are
the
explicit
and
how
and
tasks
trying
a c t i o n system w i i l
implicit
of our
core
t o show t h e
study
representatives
a c t o r s were i n t e r v i e w e d
actors.
As
complex, they can
views) .
goals
of
we
the
m u s t be
be
different
of
actors
internal
Trying
t o show w h a t
actors
the
goals
and
of
gap
interviewees,
(focused
between
the
relevant •
labour
of
i n these interviews
the
like,
actors.
core
unstandardised
aware o f
Our
market p o l i c y , looks
g o a l s , and
information
only
us
about t h e i r p e r c e p t i o n
m a r k e t p r o b l e m s , t h e i r own
other
labour
help
i t shapes r e l a t i o n s between the
In our
should
both
l o g i c of a d m i n i s t r a t i v e set-ups i n each country.
to understand the
short
i f l o n g - t e r m change i n "
market i s
i n uncertain
have
expectations
firms t o . i n v e s t i n r e t r a i n i n g might serve
examples of
in
tasks
quite-difficult
a number o f p o t e n t i a l o c c u p a t i o n s
business
not
a number o f a d d i t i o n a l
be
actors
placement s e r v i c e s .
job of matching jobseekers'
s t r u c t u r e o-f t h e
Counselling
of
administrating
performing
e m p l o y e r s d e m a n d s can
run;
the
functions
local
agencies.
L a b o u r m a r k e t a g e n c i e s began by
and
and
these r e l e v a n t
labour'market
unemployment i n s u r a n c e
significant
the
is
inter-
abstract
researchers
have
XIV
tried
to i n t e r p r e t formal
competence s p a n s and
a t i o n a l n e t w o r k s as w e l l a s
and
to describe
organis-
informal ralationshi
i n t e r a c t i o n games.
»
The
f i n d i n g s of the
p o l i c y s t a t e m e n t s and
i n the
s t u d y show t h a t d e s p i t e
s i m i l a r goals
sixties/'actual
of
labour
i m p l e m e n t a t i o n has
market
lead to
d i f f e r e n t a d m i n i s t r a t i v e s t r u c t u r e s . Both
t r a d i t i o n a s w e l l as
we
agencie
quite
intra-agency
institutional differences
number o f n a t i o n a l d i f f e r e n c e s . As
congruent
are
led to
comparing
a
five
cases o f o r g a n i z a t i o n p a t t e r n i n g , • • q u a n t i f i c a t i o n does not ,
seem t o be
appropriate.
w h i c h c o u l d be
substantive
as
R i g i d measurements o f
used f o r a l l f i v e countries would lead
loss i n information.
a n a l y t i c a l d e s c r i p t i o n , as
What can
adaptation
leads
us
to the
peculiarities
to a methodological
be
characterised
original
1
2. T a s k s o f
the
have cases to
Labour Market
are
labour
we
around
dealing with
more
Administration
found i n the
labour market a d m i n i s t r a t i o n .
i n some o f t h e
need to d e f i n e
a s p i r a t i o n s of
countries
processing
our
been combined w i t h
the
several
are
traditional
claims
the
and
have to c o n s i d e r
m e d i a t i o n as w e l l a s
as b e i n g
Because
considering,
The
market p o l i c y ' have i n a l l
unemployment i n s u r a n c e
r e g u l a t i o n and
range
u n i t of analysis a n a l y t i c a l l y .
p e o p l e i n t o j o b s . T h u s , we
activities
c o u n t r i e s we
'active labour
call
of getting
market a d m i n i s t r a t i o n extends over
institutions
might
compare.
D i f f e r e n t n a t i o n a l t r a d i t i o n s are
o f competence o f
case
institutions
t o t a k e i n t o a c c o u n t w h a t we
f a c t t h a t i n s u c h c o m p a r i s o n s we
v a r i a b l e s t h a n we
a
point with theoretical
n a t i o n a l a d m i n i s t r a t i v e c u l t u r e s ' , a way
the
as
intention
of each n a t i o n a l
consequences: comparing f u n c t i o n a l l y e q u i v a l e n t
c r o s s n a t i o n a l l y has
to
c a s e - s t u d y a p p r o a c h and
r a t h e r p r a g m a t i c compromise between our
and
indicators
core of
tasks
of
of
placing
insurance,
policy-oriented
employment
administration:
XV
Unemployment
Insurance
Traditionally,
antly
l a b o u r a d m i n i s t r a t i o n s were
institutions
f o r h a n d l i n g the unemployed
d i s p e n s i n g unemployment i n s u r a n c e
become p r e d o m i n a n t as s o o n as
of unemployment.
benefits
predomin-
Handling
and
- tasks which
there i s a high
claims
today
incidence
f o r unemployment
i n v o l v e s much p a p e r w o r k :
as w i t h
any
i n s u r a n c e the p r e r e q u i s i t e s f o r a c l a i m have t o
c h e c k e d , t h e amount o f t h e
p a y m e n t s h a v e t o be
c l a i m has
made, a n d
The
t o be
rules governing
unemployment i n s u r a n c e
computed,
the main p r e r e q u i s i t e
( t h a t o f b e i n g unemployed) has
verified.
t o be
be
who
periodically
qualifies
a r e e s t a b l i s h e d by
for
laws
and
regulations..
Regulatory
T a s k s vis-à-vis E m p l o y e r s
I n some c o u n t r i e s
(France
and
a t e s a r e p e r c e i v e d as b e i n g
istration.
Italy)
a part of labour
minimum w o r k i n g
as
safety regulation,
c o n d i t i o n s , employment
Some r e g u l a t o r y o r i e n t a t i o n
process
admin-
Labour i n s p e c t o r a t e s have to survey a l l
laws a d d r e s s i n g employers such
etc.
labour inspector-
restriction,
i s i n v o l v e d i n the
of granting loan s u b s i d i e s , apprentice-
subsidies,
generally
etc., i n a l l five
the.powers are
countries.
considered
Even i f
t o be
very
weak,
l a b o u r a d m i n i s t r a t i o n does have a n o r m - c o n t r o l
in
a l l c o u n t r i e s we
Mediating
One
looked
at.
Tasks
of the p r e r e q u i s i t e s of being
unemployment b e n e f i t s depends on
jobseeker
and
is offered.
insurance
and
willing
to accept
Although
related
a b l e to' c l a i m
the claimant being
any
adequate job
t o payment o f
c l a i m , job placement i s b a s i c a l l y
client-oriented.
job o f f e r s works b e s t
side withholds
Matching
in
jobseekers
as
part of the a c t i v i t y
a g a i n works b e s t
which
an
service-
to
existing
reasons.
j o b c o u n s e l l i n g makes up
of
a
c o n s u l t a t i o n , where n e i t h e r
information for t a c t i c a l
P l a c e m e n t as w e l l
minimum o f
task-
labour market agencies
a large
and
i n a s u p p o r t i v e atmosphere w i t h
l e g a l requirements
t o be
men.
a
XVI
- Policy
Tasks
Within
the
same a d m i n i s t r a t i v e f r a m e w o r k ,
t a s k s m u s t be
and
c a r r i e d out.
r e t r a i n i n g h a v e - t o be
Facilities
s e t up.
t h e h a n d i c a p p e d h a v e t o be
p l a c e m e n t and
be
o f work f o r
and
organized.
Such
tasks are c l e a r l y r e l a t e d to
to the i n f o r m a t i o n gathered
i n g t h e unemployed; t r a i n i n g and
can
training
r e l i e f work
s u b s i d i s e d p l a c e s o f work h a v e t o be
policy-implementing
for
places
created,
goal-oriented
by
register-
retraining
proposals
placement
attempts;
the r e s u l t of unsuccessful
job c r e a t i o n measures o r l o a n s u b s i d i e s can
be
r e s u l t of having
claimants.
t o o many l o n g - t e r m
benefit
I f unemployment i s h i g h , p l a c e m e n t and
activities
can
aim
workers ; i n times
e m p l o y m e n t a t t e m p t s may
i n t o the
labour
focus
on
and
from the
drawing
i m p l e m e n t e d by
The
p o l i c y d i r e c t i o n i s decided
decision-level,
full
nonworkers
dependent
statistics
p l a c e m e n t and
of
a t a more
relevant actors to using
For
of
discretion
performing
as w e l l a s
i n the
way
of m o b i l i s i n g
the resources
of
labour
policies.
the purpose of comparison, those
deal w i t h these
t a s k s we
1
administration .
has
They
general
o f n e g o t i a t i n g w i t h p o t e n t i a l e m p l o y e r s and
market
unemploy-
l e a v i n g , however, a range of
performance tasks
on
job c o u n s e l l i n g .
t o l o c a l a d m i n i s t r a t i o n i n t h e way
local
by
r e g u l a r placement attempts.
are
r e g u l a t o r y and
of
f o r c e . Such measures are
information resulting
ment i n s u r a n c e
counselling
t o r e d u c e the work f o r c e
discouraging marginal
the
In order
b e e n s e l e c t e d and
presented,
the reader
agencies'which
h a v e d e f i n e d as t h e
'labour
t o u n d e r s t a n d t h e way
t h e way
should
i n which the
market
information
analysis i s
bear i n mind t h a t t h e f o l l o w i n g
(
c a s e s t u d i e s a r e w r i t t e n f o r t h e p u r p o s e of. c o m p a r i s o n .
theoretical
reasoning
frame o f
will
be
the r e s u l t of the
the
study
as w e l l as
developed i n a separate
case study
comparison.
the
The
methodological
paper d e a l i n g
with
XVII
Starting with
of
labour
handling
a d e s c r i p t i o n of
market a d m i n i s t r a t i o n ,
of b a s i c
tasks
and
i n r e l a t i o n to t h i s ,
are
c a r r i e d out,
in
the
and
s u c h as
the
we
shall
scheme
then describe
i n s u r a n c e and
a n a l y s e how
what the
institutional
the
placement,
e x p l i c i t p o l i c y measures
implicit
p o l i c y of
i n t e r - o r g a n i z a t i o n a l network of our
relations
relevant
actors
is.
I n Germany, t h e
are
regulated
gesetz.
i n one
In contrast
comparison, the
councelling
policies.
render the
administration
unemployment b e n e f i t p r o v i d i n g
a s w e l l as
implementing
German a d m i n i s t r a t i v e
are
legal regulations
the
labour
set-up
such
need t o
market.
Erhard
func-
goal-oriented
analyzed:
versus the
our
placement
s e r v i c e - o r i e n t a t i o n versus control
changes of
of
employment a g e n c i e s combine the
services
of
labour
o t h e r European c o u n t r i e s
implementation d i f f i c u l t
s u c h as
adapt the
to the
Features of the
contradictions
tation;
the
comprehensive .law, the Arbeitsförderungs-
local
t i o n s of granting
and
a c t i v i t i e s of
Blankenburg
which
as
orienquickly
In-troduction
I n p o s t - i n d u s t r i a l s o c i e t i e s , government t a k e s
r e s p o n s i b i l i t y to protect c i t i z e n s
crises..
Therefore,
the
expanding i t s s o c i a l
political
functions.
f r o m e c o n o m i c and
the problem of high
B u n d e s a n s t a l t für
F o r more t h a n t h r e e
body r e s p o n s i b l e
A political
(BA)
.
m e n t , and
administrative
market problems.
the process of
political
functions
and
literature",
two
described:
l a w s and
1
poles
i t s environ
actors with d i f f e r e n t
strategies.
of the
implementa-
i n t e r a c t i o n processes
a d m i n i s t r a t i v e s y s t e m and
through various
i n t e r e s t s , resources
transforming
action i s called
Implementation r e f e r s to the
between the
I f we
at
the
implementation process
are
l e g a l r e g u l a t i o n s on
look
t h e one
hand
q u a n t i t a t i v e f i g u r e s , i . e . number o f p l a c e m e n t s and
o f v o c a t i o n a l c o u n s e l l i n g s on
are
and
As
there
analysing
t o c o n d u c t an
As
the
other
hand.
transformed into administrative behaviour
unclear.
i n any
the
e x i s t no
we
How
laws
remains
describing
have d e c i d e d
explorative study i n t h i s research
I n C h a p t e r 1, t h e
comprehensive law,
w i l l be
described.
M i n i s t r y o f L a b o u r and
are general
goals
and
partly concretized
adjusted
on
field.
the
top
t h e n be
level.
a general
to the
market problems i n p a r t i c u l a r r e g i o n s .
the
body,
are
Programmes
r e g i o n a l problems.
only
applied
administrative
programmes, w h i c h
executive
provides
l e g a l f r a m e com-
'Arbeitsförderungsgesetz
of the
political
the
an
l e g a l r u l e s i s s u i n g from
to f i t various
t h i s r e a s o n , t h e AFG
work, w h i c h can
The
the
and
number
a d m i n i s t r a t i v e body, l e g a l r e g u l a t i o n s p l a y
p r i s i n g one
m u s t be
empirical studies
implementation process,
important r o l e here.
(AFG)
the
a d m i n i s t r a t i v e system responds to problem s i t u a
abstract p o l i c y i n t o concrete
tion
labour
years,
confronted
I n Germany,
i s the main
for dealing with
t i b n s w i t h p o l i c y measures;
1
have been
unemployment.
Arbeit
social
a d m i n i s t r a t i v e system i s
most o f t h e w e s t e r n European c o u n t r i e s
with
increasing
For
l e g a l frame-
changing
labour
- 2 -
C h a p t e r 2 d e s c r i b e s t h e f o r m a l o r g a n i s a t i o n o f t h e German
l a b o u r a d m i n i s t r a t i o n i n terms o f i t s h i e r a r c h i c a l s t r u c t u r e ,
communication channels,
predetermining
tion
and c o n t r o l f u n c t i o n s .
c h a r a c t e r i s t i c s o f t h e system's
These a r e
implementa-
process.
I n C h a p t e r 3 and 4 e m p i r i c a l r e s u l s t s a r e g i v e n , based on
specific
is
implementation
t h e programme.
restrictions
processes.
The u n i t o f a n a l y s i s
We t r y t o e x p l a i n t h e p o s s i b i l i t i e s a n d
i n v o l v e d i n h a n d l i n g these measures.
The
focus
o f o u r r e s e a r c h i s o n d e s c r i b i n g a n d a n a l y s i n g how
labour
market p o l i c y i s c a r r i e d o u t w i t h i n c e r t a i n
political
and
administrative constraints.
tration f u l f i l
How c a n t h e l a b o u r
t h e i r tasks of balancing supply
of labour i n times
For
legal,
of high
adminis-
a n d demand
unemployment?
an " a c t i v e l a b o u r market p o l i c y ' ,
the administration i s
dependent on t h e a s s i s t a n c e o f r e l e v a n t a c t o r s o f t h e l o c a l
market such as f i r m s , t r a d e u n i o n s ,
and
l o c a l bodies.
relations w i l l
Beginning
employers' a s s o c i a t i o n s
The s h a p e o f t h e s e
inter-organisational
be d i s c u s s e d i n C h a p t e r 5.
our a n a l y s i s a t the lowest
l e v e l o f the system,
the
i n t e r a c t i o n p a t t e r n s between a g e n t s and c l i e n t s ,
end
with a description of the inter-organisational
of a l o c a l
labour market, thereby
the e n t i r e i n t e r a c t i o n
processes.
completing
we
network
a picture of
- 3 -
1.
The 'Arbeitsförderungsgesetz'
Labour Market
a s a Law f o r a n ' A c t i v e
Policy'
P o l i c y m a k i n g c a n be r e g a r d e d
as a sequence:
problem-aware-
ness i s f o l l o w e d by g o a l f o r m u l a t i n g , f r o m h e r e s t r a t e g i e s
h a v e t o be d e v i s e d , a l i s e d
i n t h e form o f l e g a l r u l e s and
b u r e a u c r a t i c p r e s e c r i p t i o n s and f i n a l l y
focus of t h i s
chapter
implemented.
The
i s t o see whether implementation
of
the labour market p o l i c y l a i d
down i n t h e AFC i s c o n s i s t e n t
with i t s generally formulated
goals.
labour market agencies,
In analysing
local
our research s t a r t s with a look a t
the i n h e r e n t r e s t r i c t i o n s o f l a b o u r market p o l i c y and o f
t h e p o l i t i c a l programmes d e a l i n g w i t h t h e s e
The
restrictions.
s t a r t i n g p o i n t o f o u r a n a l y s i s o f t h e German s y s t e m i s
1969,
when t h e g o v e r n m e n t r e s p o n d e d t o c e r t a i n
imbalances
i n t h e l a b o u r m a r k e t w i t h t h e amendment o f t h e 'Arbeitsförderungsgesetz'
(Employment P r o m o t i o n A c t ) , w h i c h r e d e f i n e d
the t a s k s and s t r u c t u r e o f t h e ' B u n d e s a n s t a l t
(National Labour Board).
'Arbeitsförderungsgesetz'
An e x a m i n a t i o n
(AFG) t e l l s
für A r b e i t
of the text of the
us t h a t
characteristics
o f t h e p o l i c y a r e a , such as r e g i o n a l l y and t e m p o r a r i l y
i n g l a b o u r market problems, m a n i f e s t
l a t i o n o f laws:
vary-
themselves i n t h e formu-
t h e i r g l o b a l l y d e f i n e d g o a l s and t h e i r
vague l e g a l r e g u l a t i o n s .
genesis
1
G i v i n g a s h o r t summary o f t h e
o f l e g a l m a t e r i a l , composing t h e text and i t s s p e c i a l
f e a t u r e s may h e l p u s t o u n d e r s t a n d
t o w h a t e x t e n t t h e AFG
s o l v e s l a b o u r market problems and t o what e x t e n t i t c r e a t e s
new o n e s .
1.1.
As
Th§_P§£ÇêE£i2S_2^_^a^2Hï_^Ë£?SSt_S£2^i§^§_iS_£^ë_§i5£i§Ë
the beginning
of the s i x t i e s ,
full
e m p l o y m e n t i n t h e FRG
was g u a r a n t e e d b y e c o n o m i c g r o w t h .
The d o m e s t i c
force, which
f o r many y e a r s ,
had
remained constant
I t was n o t s u f f i c i e n t t o c o v e r
labour
decreased.
t h e demand f o r l a b o u r ,
- 4 -
so t h a t
more t h a n o n e - a n d - a - h a l f
million
workers
were - r e c r u i t e d from f o r e i g n c o u n t r i e s i n o r d e r t o f i l l
vacancies.
job
In the m i d - s i x t i e s ,
p r o d u c t i o n and
taken
o f t h e FRG
I n 1967,
decreased
v i o u s y e a r , and
permanent i n c r e a s e s i n
economic growth c o u l d not
f o r granted.
by 0.2
lems i n t h e m i n i n g
was
p e r c e n t compared t o t h e
i n t e n s i f i e d by
i n d u s t r y , which l e d to the l o s s
alone.
demonstrations
politicians
During
of
caused
by
The
t h i s period,-
came t o r e a l i s e t h a t e x i s t i n g
p o l i c y programmes w e r e i n a d e q u a t e
labour market
to prevent
unemployment,
n e o - c l a s s i c a l l a b o u r m a r k e t t h e o r i e s c o u l d no
b e t w e e n , on
prob-
i n d u s t r y l e d t o mass
i n the Ruhr a r e a .
t a i n a balance
cent.
A t t h e same t i m e ,
d e c r e a s i n g r e v e n u e s e v o k e d by t h e r e c e s s i o n .
i n the mining
pre-
per
structural
confronted with a f i n a n c i a l c r i s i s
structural crisis
be
the gross n a t i o n a l product
360,000 j o b s i n t h e R u h r - r e g i o n
t h e FRG
longer
t h e u n e m p l o y m e n t r a t e r o s e t o 2.1
T h i s c y c l i n c a l c r i s i s was
job
t h e one
l o n g e r main-
h a n d , s u p p l y and
demand,
and, on the other, p r i c e and wage mechanisms.- What was l a c k i n g showed
i t s e l f to. be adequate measure t o prevent employment problems such as
t h o s e o f 1966/67.
of the
'Great C o a l i t i o n '
e c o n o m i c and
.'The
reforms
Stability
and
Of
t h e s e , the most
Growth A c t '
(1967);
J o i n t Task f o r the Improvement o f t h e R e g i o n a l
(1969).
(1)
the
i n c l u d e d e s s e n t i a l changes ' i n
ment S t r u c t u r e ' (1969) and
full
of the s i x t i e s ,
employment p o l i c y m a k i n g .
i m p o r t a n t were:
'The
A t t h e end
The
the
'Employment
Employ-
Promotion'Act'
common g o a l o f t h e s e p r o g r a m m e s was
' (1)
employment
.
to
secure
I f we s p e a k o f manpower p o l i c y , we s h o u l d k e e p i n m i n d
. t h a t t h i s t e r m i n c l u d e s "... a l l m e a s u r e s and
i n s t i t u t i o n s d e s i g n e d t o make o p t i m a l t h e q u a n t i t y and
q u a l i t y o f t h e c o u n t r y ' s a v a i l a b l e manpower, t o make
t h e b e s t u s e o f i t , and t o a c h i e v e maximum a d a p t a t i o n
o f demand and s u p p l y t o e a c h o t h e r on t h e l a b o u r
m a r k e t ' . (OECD ( 1 9 7 4 ) :
Manpower P o l i c y i n Germany,
p. 25)
I t i s o b v i o u s l y i m p o s s i b l e t o d r a w any h a r d
b o r d e r - l i n e s b e t w e e n manpower p o l i c y a c c o r d i n g t o t h e
AFG, and o t h e r p o l i c i e s w h i c h a l s o h a v e an e f f e c t on
the a l l o c a t i o n of j o b s .
When we s p e a k o f manpower pol i c y and l a b o u r m a r k e t p o l i c y r e s p e c t i v e l y i n t h e f o l l o w i n g , we r e d u c e o u r a n a l y s i s t o t h e programmes l a i d down
i n t h e AFG.
- 5 -
When t h e AFG
was
already improved.
c e n t , and
passed
i n 1969,
t h e employment s i t u a t i o n
The u n e m p l o y m e n t r a t e was
down t o 0..9
per-
e x i s t i n g p r o b l e m s w e r e s e e n as t h e r e s u l t s
r e g i o n a l and
s e c t o r a l imbalances
m a t c h i n g o f s u p p l y and
the promotion
could decrease
of
lab.qur m a r k e t .
demand seemed t o be
o f r e g i o n a l and
of the s i x t i e s ,
i n the
a question
sectoral mobility.
l e g i s l a t o r s were c o n v i n c e d
of
At the
per
cent.
a c c o r d i n g t o t h e AFG,
as f o l l o w s :
to prevent
d e v e l o p m e n t s on
the i n d i v i d u a l ' ^
Although
.
many m e a s u r e s f o r i n c r e a s i n g
a w o r l d - w i d e r e c e s s i o n , unemployment p r o b l e m s
c o u l d n o t h a v e p r e d i c t e d . The
b e t w e e n f o u r and
i n d i c a t i o n s aré
of the l a t e
f i v e per cant f o r over
that this
hovered
f o u r y e a r s , and a l l
situation will
last
f o r many more,
t o come.
limited validity
i s t h e v i e w h e l d by
p e r c e p t i o n of the problems a t hand.
istics
of labour market p o l i c y
some p o l i c y
s u b j e c t t o f r e q u e n t and
One
l i e i n false
of the c h a r a c t e r -
i s t h a t the scope of
r a p i d changes.
a c c o r d i n g t o r e g i o n s , s e c t o r s , and
Problems
also short-term
Problem p e r c e p t i o n of the l a t e s i x t i e s r a i s e d
problems
vary
cycles.
e x c e s s i v e l y high
e x p e c t a t i o n s about the e f f e c t s o f p o l i c y i n s t r u m e n t s .
is
today
sixties
unemployment r a t e has
r e s e a r c h e r s , t h a t problems of implementation
is
rise
hindered.
have i n c r e a s e d t o a degree l e g i s l a t o r s
Of
for
a d a p t a b i l i t y were implemented, a renewed
i n u n e m p l o y m e n t c o u l d n o t be
years
was
the l a b o u r market through i n t e r v e n t i o n
s i t u a t i o n s of imminent d i s t r e s s
A r o u s e d by
lav/
negative
measures, t o prevent
m o b i l i t y and
end
The
m a i n g o a l o f a 'manpower p o l i c y ' ,
'Manpower p o l i c y h a s
The
t h a t t h e new
t h e u n e m p l o y m e n t r a t e t o 0.8
had
apparent
t h a t the goals of continuous
were not a t t a i n e d .
full
From t h e v i e w p o i n t o f t h e
s e v e n t i e s i t i s more r e a l i s t i c
It
employment
late
t o ask whether the
programmes
a r e adequate t o cope w i t h t h e p r o b l e m s o f l o n g - t e r m
high
unemployment.
(1)
Bundesminister
für
A r b e i t und
Sozialordnung
(1972) p.
25.
- 6 -
.1.2.
The F o r m u l a t i o n o f _ G o a l s _ a n d _ F u n c t i o n s _ i n
Necessary
c o n s i d e r a t i o n s concerned
t h e AFG
w i t h the enlargement o f
manpower p o l i c i e s w e r e i n t e n s i f i e d b y a n i n t e r n a t i o n a l
e x c h a n g e o f i n f o r m a t i o n . i n i t i a t e d b y t h e OECD.
I n t h e OECD
R e c o m m e n d a t i o n o f 1 9 6 4 , i t was p o i n t e d o u t ' t h a t manpower
.policy h a s
t h e d u a l advantage o f b e i n g e x p a n s i o n i s t w i t h .
r e g a r d t o employment and p r o d u c t i o n , b u t a n t i - i n f l a t i o n a r y
w i t h r e g a r d t o c o s t s and p r i c e s ' . ^ .
was
expressed
This
recommendation
i n t h e g o a l f o r m u l a t i o n s o f t h e AFG, w h i c h
r e a d as f o l l o w s :
p a r a . l , AFG:
The measures p r o v i d e d f o r i n t h e A c t s h a l l
be c a r r i e d o u t w i t h i n t h e f r a m e w o r k o f t h e
s o c i a l and economic p o l i c y o f t h e F e d e r a l
G o v e r n m e n t , i n s u c h a way a s t o a c h i e v e a n d
m a i n t a i n a h i g h l e v e l o f employment, t o
c o n s t a n t l y improve t h e employment s t r u c t u r e ,
and t h e r e b y p r o m o t e t h e g r o w t h o f t h e
economy.
para.2,
The m e a s u r e s p r o v i d e d f o r i n t h i s A c t s h a l l
contribute,' inter' a l i a ,
towards:
AFG:
1. p r e v e n t i n g t h e o c c u r r e n c e o r c o n t i n u a n c e
o f unemployment o r underemployment, on
t h e one h a n d , a n d l a b o u r s h o r t a g e s o n t h e
other;
2. s a f e g u a r d i n g a n d i m p r o v i n g t h e o c c u p a t i o n a l m o b i l i t y o f g a i n f u l l y employed
persons;
3. p r e v e n t i n g , o f f - s e t t i n g .or e l i m i n a t i n g t h e
- negative e f f e c t s which t e c h n i c a l developm e n t s o r s t r u c t u r a l c h a n g e s i n t h e economy
may h a v e o n g a i n f u l l y e m p l o y e d p e r s o n s ;
4. p r o m o t i n g e m p l o y m e n t o p p o r t u n i t i e s . f o r t h e
physically, mentally or psychologically
handicapped;
,
5. p r o v i d i n g e m p l o y m e n t o p p o r t u n i t i e s f o r
women who a r e d i f f i c u l t t o p l a c e u n d e r t h e
normal c o n d i t i o n s p r e v a i l i n g i n t h e
employment m a r k e t b e c a u s e o f d o m e s t i c
o b l i g a t i o n s due t o m a r r i a g e , e t c . ;
(1)
OECD R e c o m m e n d a t i o n , p a r a g r a p h
2 o f t h e Annex.
- 7 -
6. p r o v i d i n g e m p l o y m e n t o p p o r t u n i t i e s f o r
o l d e r and o t h e r g a i n f u l l y employed
p e r s o n s who a r e d i f f i c u l t t o p l a c e u n d e r
the n o r m a l c o n d i t i o n s o f t h e employment
market;
, 7. i m p r o v i n g t h e e m p l o y m e n t s t r u c t u r e i n
v a r i o u s areas and economic s e c t o r s .
Paragraph
1 o f t h e AFG i s a t y p e o f p r e a m b l e ,
g e n e r a l g o a l s such
including
as t h e m a i n t e n a n c e o f a h i g h l e v e l o f
employment and t h e improvement o f t h e employment
T h i s s e c t i o n a l s o has i m p l i c a t i o n s concerning
structure.
the future
p o s i t i o n o f manpower p o l i c y w i t h i n t h e p o l i t i c a l
framework
o f t h e F e d e r a l Government.
The
statement
t h a t 'the measures
... s h a l l be c a r r i e d o u t
w i t h i n t h e framework o f t h e s o c i a l and economic
policy',
i s u n c l e a r a s t o w h e t h e r manpower p o l i c y i s e q u a l l y a s
important
its
as economic p o l i c y
and s o c i a l p o l i c y ,
status i s relatively, subordinate.
Labour and S o c i a l A f f a i r s
o r whether
The M i n i s t r y o f
introduces a q u a l i f i c a t i o n :
'Manpower p o l i c y w i l l p a r t i c i p a t e i n s h a p i n g
s o c i a l and
economic change, b u t w i l l n o t a c t s i m p l y i n t h e case o f
(1)
n e g a t i v e development'
.
One p r e c o n d i t i o n f o r t h e s u c c e s s .
o f such a s t r a t e g y i s c o - o p e r a t i o n and exchange o f
i n f o r m a t i o n between t h e most i m p o r t a n t
decision-makers:
t h e m i n i s t e r s o f economy, f i n a n c e a n d e d u c a t i o n .
In
c o n t r a s t t o t h e r e c o m m e n d a t i o n o f t h e OECD, t h e d i r e c t o r o f
the research i n s t i t u t e
i n t h e BA (IAB)
expressed
a less
e n t h u s i a s t i c v i e w o f t h e BA's i n f l u e n c e a n d p o w e r :
market p o l i c y ,
cyclical
i n t h e narrow sense,
ad h o c
does n o t p a r t i c i p a t e i n
decisions or f i s c a l
i n f l u e n c i n g t h e labour market.
policy
Within a
has only r e s t r i c t e d
measures
predetermined
framework o f o t h e r o r g a n i s a t i o n s , i n t e r e s t s
Bundesanstalt
'Labour
and v a l u e s , t h e
f u n c t i o n s o f s h a p i n g and
(2)
c o r r e c t i n g t h e l a b o u r market'
(1)
Bundesminister
(2)
D. M e r t e n s
v
.
Some r e p r e s e n t a t i v e s o f
für A r b e i t u n d S o z i a l o r d n u n g
(1970), p.9.
(1974),p.5.
- 8 -
t h e B l i n d e s ans t a i t
interested i n maintaining
a r g u e d t h a t i n 19 69 p o l i t i c a l
on
thé
labour
fulfilled
because of p l u r a l i t y
One
implemented by
e f f e c t s o f economic
the
i n Great
obvious.
labour a d m i n i s t r a t i o n i s that
Britain,
Whereas the
was
the causes,
regarded
to handle
Training Act
as a t o o l t o be
fur Arbeit.
Here, the e x i s t i n g
-
labour
institution
and
those
a
employed i n
well.
A f t e r t h e g e n e r a l g o a l f o r m u l a t i o n o f p a r a g r a p h 1,
2 describes subgoals.
The
from a r e a c t i v e to
more p r e v e n - t i v e l a b o u r m a r k e t p o l i c y ,
t o c h a n g e as
with
Commission^
f o r enlargement of the
to a goal s h i f t
the o r g a n i s a t i o n had
starts
implemented w i t h i n the
the Bundesanstalt
administration staff.
as g e n e r a l • g o a l s
the
Training Act
t h e Manpower S e r v i c e s
l e g i s l a t o r s merely allowed
to adapt ' i t s e l f
b u t has
the
s e v e r a l d i f f e r e n c e s become
E m p l o y m e n t and
existing institution,
had
of j u r i s d i c t i o n s i n f l u e n c i n g
w i t h t h e E m p l o y m e n t and
the i d e a of e s t a b l i s h i n g
t h e AFG
demands
crisis.
c o m p a r e t h e AFG
o f 19 73
t h e o r i s t s made h i g h
o f t h e c o n t i n g e n c i e s o f manpower
a d m i n i s t r a t i o n cannot cure
I f we
status-quo,
a d m i n i s t r a t i o n , which c o u l d not have been
the labour market.
policy
a
T h e s e c a n be r e g a r d e d
made more c o n c r e t e ,
as
paragraph
t o some
extent
they
d e a l w i t h p r o b l e m g r o u p s s u c h as women, e l d e r l y w o r k e r s ,
problem f i e l d s
l i k e underdeveloped areas.
also p a r t i a l l y
function simply
'preventing
the o c c u r r e n c e
T h e y c a n n o t be
standards
(1)
t o be
regarded
as
These
or
subgoals
as g e n e r a l d e c l a r a t i o n s , i . e .
or continuance
of
unemployment'.
a t t a i n a b l e g o a l s , but
rather
as
considered.
E m p l o y m e n t and T r a i n i n g A c t :
'An a c t t o e s t a b l i s h
p u b l i c a u t h o r i t i e s concerned w i t h arrangements f o r
p e r s o n s t o o b t a i n e m p l o y m e n t and w i t h a r r a n g e m e n t s f o r
t r a i n i n g f o r e m p l o y m e n t and t o make p r o v i s i o n - a s t o t h e
f u n c t i o n s of the a u t h o r i t i e s .
1
-
Although
9 -
t h e g o a l o f ' p r o v i d i n g employment o p p o r t u n i t i e s f o r '
p e r s o n s who a r e d i f f i c u l t
t o p l a c e under t h e normal c o n d i t i o n s
i n t h e employment m a r k e t '
still
has g l o b a l v a l i d i t y
today,
t h e p r o b a b i l i t y o f i t s r e a l i s a t i o n seems s m a l l e r t h a n
before.
The. p o s s i b i l i t y
l i m i t e d and t h e l a b o u r
to e l i m i n a t e those
rung'
school-graduates
The l a b o u r a d m i n i s t r a t i o n tends'
p e r s o n s f r o m t h e l a b o u r m a r k e t , who h a v e
a l t e r n a t i v e s t o work.
o l d e r workers.
o f c r e a t i n g more w o r k p l a c e s i s
f o r c e i n c r e a s e s as
enter t h e labour market.
T h e s e a r e women, y o u n g p e o p l e a n d
T h i s phenomenon, w h i c h i s c a l l e d
of particular
ever
'Ausgliede-
groups, i s a r e s u l t o f t h e bad labour
market c o n d i t i o n s .
In analysing t h e implementation
s t r u c t u r e o f manpower
policy,
t h e r e i s no p o i n t i n a s k i n g why t h e s t a t e d g o a l s a r e n o t
attained.
tions
T h e g o a l s o f t h e AFG a r e e i t h e r g e n e r a l d e c l a r a -
( p a r a 1, A F G ) , u n a t t a i n a b l e , o r , i n some c a s e s , no
longer v a l i d .
Labour market p o l i c i e s have t o be
'adjusted'
to changing labour market s i t u a t i o n s .
L e g i s l a t o r s present
a spectrum o f vaguely
i n order
formulated
goals
that they a r e a t t a i n e d d e s p i t e t h e constant
the labour
As
fluctuations of
market.
thepolitical
merely symbolic,
conflicts
goals
formulated
unataainable,
i n t h e AFG a r e e i t h e r
or partly obsolete, the
involved i n the r e a l i z a t i o n o f these
l e f t t o t h e i m p l e m e n t o r s o f t h e programmes.
trative
goals i s
Lower
adminis-
levels are responsible f o rsetting p r i o r i t i e s within
the frame o f t h e v a r i o u s
1.3.
t o guarantee
goals.
C h a r a c t e r i s t i c s _ g f _Policy__Instruments
In t h i s
chapter
contained
we s h a l l
i n t h e AFG.
sum u p t h e m o s t i m p o r t a n t
Some o f them w i l l b e d e s c r i b e d more
p r e c i s e l y when r e p o r t i n g o n e m p i r i c a l , r e s u l t s
3 a n d 4.
provisions
The m a i n t a s k s o f t h e l o c a l
i n chapters
labour o f f i c e s are:
o b s e r v a t i o n o f t h e l a b o u r m a r k e t ( p a r a 6,
1.
placement
.2.
( p a r a . 14
AFG)
3.
j o b c o u n s e l l i n g ( p a r a 15,
4.
w o r k - p e r m i t s f o r non-Germans
5.
promotion of t r a i n i n g ,
re-training
(para 19,
AFG)
further training
( p a r a s . 33-52,
( p a r a s . 53-55,
7.
and
AFG)
force
AFG)
promotion of i n t e g r a t i o n of the handicapped
( p a r a s . 56-62,
8.
AFG)
a s s i s t a n c e i n the form of short-term
(paras. 63-73,
9.
loans
AFG)
p r o m o t i o n o f a l l - y e a r - r o u n d employment
t i o n i n d u s t r y (paras
10.
a s s i s t a n c e through
(paras
11 .
12.
91.-99,
74-89,
i n construc-
AFG)
j o b - c r e a t i o n measures
AFG)
g r a n t i n g o f unemployment b e n e f i t s
(paras
100-166,
AFG)
a s s i s t a n c e through
improvement
This
AFG)
promotion of i n t e g r a t i o n i n t o the labour
6.
AFG)
list
measures f o r s t r u c t u r a l
( p a r a 220,
AFG)
o f t h e m o s t i m p o r t a n t o b j e c t i v e s o f t h e AFG
shows
that the labour a d m i n i s t r a t i o n i s responsible f o r a v a r i e t y
o f d i f f e r e n t programmes.
AFG,
to the precoursor
t h e AVAVG, d a t i n g b a c k t o 19 27,
by one programme,
round employment
t h e AFG
i n construction industry.
programmes
i s t r a t i o n measures.
widely
another
R e a l i s i n g the
of labour
adminon t h e
of implementing the e x i s t i n g instruments
t h a n b e f o r e . • A t t h e same t i m e ,
orient itself
s t r e s s was
more
laid
'Labour market p o l i c y
t o the a c t u a l labour market s i t u a t i o n .
must be p r o s p e c t i v e and p r e v e n t i v e
extended
all-year-
The amendment o f t h e lav/ t o o k
functional priority:
of the
a g a i n s t unemployment d i d
l e a d t o any c o n s i d e r a b l e e x p a n s i o n
challenge
i s only
i . e . the r e g u l a t i o n s to secure
necessity of developing
not
Compared
...
upon
cannot
It
P u b l i c s e r v i c e s and
f i n a n c i a l s u b s i d i e s are the main f u n c t i o n s of the f u t u r e ,
whereas t h e g r a n t i n g o f c o m p e n s a t i o n d u r i n g
unemployment
remains a s e l f - e v i d e n t but secondary f u n c t i o n of the
administration^'.
This
(1)
p. 1 1 .
Coester
(1967),
change i n p r i o r i t i e s
labour
i s reflected
-
in
the s t r u c t u r e
-
11
of the law;
.unemployment c o m p e n s a t i o n i s
f i r s t m e n t i o n e d a t t h e e n d o f t h e AFG,
catalogue of
programmes
f i n i n g . observation
prerequisites
begins with
o f t h e l a b o u r m a r k e t as one o f t h e m a i n
f o r a more ' a c t i v e ' p o l i c y .
undergone
programme
many c h a n g e s .
priorities,
shift their previously
p o l i c y measures
T h i s change
from l e g a l - o r i e n t e d
of
of
priorities
thinking
show, m e a s u r e s
like
further
training
a f t e r 19 6 9 ,
f o r c e r t a i n o t h e r programmes i n c r e a s e d
t h e same
to
thinking.
and r e - t r a i n i n g w e r e u s e d more e x t e n s i v e l y
during
changed
r e a c t i v e a t t i t u d e t o one
H o w e v e r , as s t a t i s t i c s
expenditures
have
hoping that p o l i c y implementors would
a mental s h i f t
management-oriented
Compared t o t h e
L e g i s l a t o r s only
a c t i v e manpower p o l i c y e n a c t m e n t .
involves
the whole
a p a r a g r a p h de-
AVAVG and i t s a d d i t i o n a l r e g u l a t i o n s ,
not
whereas
and
greatly
period.
Another main c h a r a c t e r i s t i c o f t h i s comprehensive law,
b e s i d e s t h e v a r i e t y o f measures
'open p r o g r a m m i n g '
i s the
r e s u l t i n g f r o m t h e high- dependence
manpower p o l i c y on e x t e r n a l
grammes i n t h e AFG
involved
variables.
of
Most o f the pro-
d i f f e r v e r y much f r o m r e g u l a t i o n s
of
o t h e r b u r e a u c r a c i e s , s u c h as t h o s e o f t h e r e v e n u e o f f i c e s ,
w h i c h a r e f o r m u l a t e d as
Programmes l i k e
Only l e g a l c l a i m
amount o f
AFG.
' c o n d i t i o n a l p r o g r a m m e s ' by Luhmann.
these are hardly
t o be f o u n d i n t h e
r e q u i r e m e n t s and t h e d u r a t i o n
compensation are e x p l i c i t l y
and
regulated
M o s t o f t h e programmes h a v e t h e f o l l o w i n g
istics:
1)
general formulation
of goals;
2)
AFG.
i n the
characterthe
legalisation of administrative
a c t i o n , not i n c l u d i n g
precise
be t h e l a w s f o r f u r t h e r
rules.
training:
A n e x a m p l e may
'Goals o f f u r t h e r t r a i n i n g are the maintenance
or enlargement of v o c a t i o n a l
the
knowledge
and q u a l i f i c a t i o n s , o r
a d a p t a t i o n t o t e c h n i c a l developments o r v o c a t i o n a l
p r o m o t i o n o p p o r t u n i t i e s ?'
Here, d i f f e r e n t a l t e r n a t i v e s
to the purposes of f u r t h e r t r a i n i n g are given,
the
any
implementor chooses the a p p r o p r i a t e
one.
.
as
from which
The
-
prerequisites
-
12
f o r g r a n t i n g promotion are
applicant i s 'personally qualified'
and
the
course
expediency'
may
serve
i s consistent with
as an e x a m p l e o f how
implemented a c c o r d i n g
labour
for a training
'labour market
course
political
( a r b e i t s m a r k t p o l i t i s c h e Zweckmässigkeit).
defined, which i s necessary
The
c o m p l e t e d i f an
openly
regulations
to guarantee
are
programmes-being
to a c t u a l labour market problems.
administration often reacts with
more p r e c i s e r e g u l a t i o n s .
On
a d d i t i o n a l and
the o t h e r hand, terms such
'labour market p o l i t i c a l expediency' remain a b s t r a c t
as
labour markets d i f f e r
temporally.
This
This
regionally, sectorally
as
inasmuch
and
f o r m of open programming i s n o t
consistent
w i t h t r a d i t i o n a l b u r e a u c r a t i c ways o f t h i n k i n g ; - bureaucrats
to
consider
t h e m s e l v e s as s i m p l y
c a r r y i n g out
measures i n i m p l e m e n t i n g p r e - f o r m u l a t e d
l e g a l l y d e f i n e d methods o f o p e r a t i o n .
istration
process
it
labour
therefore e i t h e r requires a constant
admin-
controlling
The
l o c a l o f f i c e s m u s t somehow'be
decision-making
i s impossible
process
implement-
Q u a n t i t a t i v e i n d i c a t o r s do
n e c e s s a r i l y r e f l e c t s u c c e s s f u l implementation.
jobseekers
p l a c e d by
w h e t h e r an a g e n t h a s
the
regu-
i s impeded i n t h a t
t o measure the i m p a c t o f the
a t i o n o f many i n s t r u m e n t s .
As
on
by means o f a d d i t i o n a l r e g u l a t i o n s , o r t h e d i s c r e -
t i o n a r y power o f t h e
lated.
prescribed
d e c i s i o n s based
The
The
not
number o f
l a b o u r a d m i n i s t r a t i o n does not i n d i c a t e
f o u n d t h e r i g h t person f o r t h e r i g h t
an e v a l u a t i o n o f t h e
tasks of the
job.
agents i s d i f f i c u l t
measure i n q u a l i t a t i v e terms, i t i s h a r d l y i m p o s s i b l e
to
c o r r e c t performance mistakes,
of
evaluation
The
unless
a p r e c i s e system
i m p l e m e n t o r s may
approaching i t .
as an
This
instrumental
provide
use
employment,
a l t e r n a t i v e instruments
e x p l a i n s why
f r a m e f o r ad h o c
e m p l o y m e n t f o r someone who
a l o n g p e r i o d , i m p l e m e n t o r s can
t h e AFG
c a n be
use.
In order
has
apply
been out
of p l a c i n g
described
to
of work f o r
arranging
f o r the unemployed p e r s o n t o i n c r e a s e the
him.
in
' r a p i d a c t i o n ' , such
as g r a n t i n g wage s u b s i d i e s t o an e m p l o y e r , o r
re-training
to
exists.
u l t i m a t e g o a l o f a l l measures i s f u l l
although
like
chances
-
Fitting
13
a l t e r n a t i v e to s i t u a t i o n
-
i s a problem which
e i t h e r be
r e g u l a t e d by
by
t h e BA
i n accordance w i t h a c t u a l labour market
or
l e f t to the d i s c r e t i o n of l o c a l agents.
empirical questions
a d d i t i o n a l i n s t r u c t i o n s formulated
i s how
the
labour
One
problems,
of
the
a d m i n i s t r a t i o n copes
w i t h t h e vague s t r u c t u r e o f programmes.
c o n s i s t a n t w i t h Simon's o b s e r v a t i o n :
task of c a r r y i n g out
can
Our
'The
hypothesis
is
actual physical
an o r g a n i s a t i o n ' s o b j e c t i v e s f a l l s
the persons a t the lowest
(1 )
hierarchy
l e v e l of the a d m i n i s t r a t i v e
A cursory
r e v e a l s t h a t vague l e g a l
to
v
l o o k a t t h e AFG
are used w i t h r e s p e c t to goals
and
o p e r a t i o n s . We
t h a t d i s c r e t i o n c a n n o t be b a s e d o n l y on
r a p i d l y changing environment.
As
terms
suppose
the complex
and
implementors have t o
deal
w i t h r o u t i n e programmes, s u c h as g r a n t i n g unemployment benefits,
as w e l l a s w i t h n o n - r o u t i n e
programmes l i k e
t u t i o n a l promotion of f u r t h e r t r a i n i n g ,
may
be
The
extent
the l e g a l framework, but
n o t o n l y t o do
In order
a d m i n i s t r a t i o n we
t h e AFG,
1.
can
As
be d e s c r i b e d
accordance w i t h the
o f t h e AFG
S i m o n (1947) p.
are
subject to
formulated
fixed
in
m u s t t o some
in
situation.
extent
circumstances
formulation.
2-3.
frequent
ad h o c
a c t u a l labour market
through abstract goal
H.A.
dis-
and a d a p t a b i l i t y
as t h e y
accommodate t h e m s e l v e s t o t h e s e
(1)
of
as f o l l o w s :
labour market problems are
legislators
behaviour
environment.
o f manpower p o l i c y ,
c h a n g e , s u b - g o a l s m u s t be
The
the
pres-
social
have t o i n v e s t i g a t e whether
of the o r g a n i s a t i o n to a changing
instruments
with
to understand the dynamics
c r e t i o n a r y power f u r t h e r s r e s p o n s i v e n e s s
The
these
a l s o w i t h the o u t s i d e s o c i a l
c h a r a c t e r i s t i c s o f t h e a g e n t s i n v o l v e d and
labour
ambiguity
handle
to which the a d m i n i s t r a t i o n i s s u b j e c t , the
of t a r g e t groups.
insti-
to which personal d i s c r e -
t i o n i s u s e d i n an a d m i n i s t r a t i o n h a s
sures
a certain
e v o k e d ' i n t h e o r i e n t a t i o n o f t h o s e who
d i f f e r e n t programmes.
the
-
2.
Manpower p o l i c y ,
as
-
14
i t i s i m p l e m e n t e d by
administration, i s restricted
and
c o r r e c t i n g the
d e t e r m i n e d by
3.
The
amendment o f t h e AFG
fiscal
i n 1969
d i d not
4.
The
As
include
but
the
implicitly
implement-
same, t h i s
demanded a c o n s i d e r a b l e
o r i e n t a t i o n of the
change i n
change i n
the
implementors.
'open p r o g a m m i n g o f manpower i n s t r u m e n t s '
guarantee the
according
actually
policy decisions.-
r e f l e c t e d a change i n p r i o r i t i e s .
a t i o n o r g a n i s a t i o n remained the
shaping
Problems are
enlargement of a p p l i c a b l e instruments,
priorities
labour
to f u n c t i o n s of
labour market.
e c o n o m i c and
the
a d a p t a b i l i t y of the
shall
programmes,
to changing problem s i t u a t i o n s .
On
the
o t h e r h a n d , i t demands a h i g h d i s c r e t i o n a r y p o w e r i n
the
5.
implementation
process.
I m p a c t o f manpower p o l i c y
instruments
measured t o a l i m i t e d d e g r e e , so t h a t
6.
cannot but
act With uncertainty.
As
i n c l u d e s r o u t i n e as w e l l as
t h e AFG
programmes, a m b i g u i t y
with respect
o f -the i m p l e m e n t o r s may
The
s t r a t e g i e s implementors
use
as m e n t i o n e d a b o v e , m u s t be
2.
Formal Organisation
Admin i s t r a t i o n
In t h i s chapter,
we
be
can
only
be
implementors
non-routine
to the
performance
unavoidable.
t o cope w i t h
subjected
their
measures,
to e m p i r i c a l a n a l y s i s .
o f t h e German E m p l o y m e n t
s h a l l t r y t o g i v e a s h o r t summary on
the
f o r m a l o r g a n i s a t i o n o f t h e German E m p l o y m e n t a d m i n i s t r a t i o n .
In doing
of the
s o , we
set-up
h a v e two
f o r readers
goals:
who
and,
2)
attempting
providing a description
are not
o r g a n i s a t i o n a l s t r u c t u r e of the
t h e FRG,
1)
labour
acquainted
with
the
administration in
t o e x p l a i n how
the
- 15
o r g a n i s a t i o n a l s t r u c t u r e may
-
i n f l u e n c e the
implementation
process.
The
l a b o u r a d m i n i s t r a t i o n " , as i t a p p e a r s t o d a y ,
r e s u l t of a h i s t o r i c a l development.
without
understand
how
the l a s t decades.
f u n c t i o n a l d i v i s i o n o f l a b o u r and
be
explained.
One
'Bundesanstalt
e n t i r e chapter
für. A r b e i t '
However, t h i s i s m e r e l y - a
f u n c t i o n s of the
In order
and
o f t h e AFG
s e t - u p o f t h e BA
is entitled
d e s c r i p t i o n o f t h e s t r u c t u r e and
( a d m i n i s t r a t i v e boards).
i s n e i t h e r comprehensive nor
e m p l o y e e s . = i s and
This chapter
must
empirical" r e s u l t s of observations,
interviews with labour
office
interviews with labour o f f i c e
employees.
s h a l l d e s c r i b e the g e n e r a l frame i n w h i c h '
agencies
are s e t .
S t r u c t u r a l contingencies of
o v e r a l l system have n e g a t i v e
implementation
T h e y may
illus-
I n f o r m a t i o n drawn from t h e l i t e r a t u r e
a n a l y s i s and
local
hier-
L i t e r a t u r e on t h e o r g a n i s a t i o n a l
c o m p l e m e n t e d by
file
to
deals with i t s organisation.
'Selbstverwaltung'
set-up.
trative.
the
c o n t r o l mechanisms must
seeks i n v a i n a d e s c r i p t i o n of the system's
archical
understood
the system works, s t r u c t u r a l v a r i a b l e s such
as
be
I t c a n n o t be
a c u r s o r y f a m i l i a r i t y w i t h the development of
o r g a n i s a t i o n throughout
One
i s the
and
positive effects
process which occurs
facilitate
on t h e l o c a l
o r impede s u c c e s s f u l
on
the
the
level.
implementation
processes.
2.1.
B r i e f H i s t o r i c a l O u t l i n e o f the Employment
Administration(1)
The
German L a b o u r A d m i n i s t r a t i o n i s c u r r e n t l y c e l e b r a t i n g
its
fiftieth
für
Arbeit'
(1)
jubilee;
the f o u n d a t i o n of the
dates, b a c k t w e n t y - f i v e y e a r s .
The
'Bundesanstalt
following
I n f o r m a t i o n on t h e s y s t e m ' s h i s t o r i c a l d e v e l o p m e n t i s
drawn from f o l l o w i n g l i t e r a t u r e :
Bundesanstalt
für
A r b e i t (1969):
Die S e l b s t v e r w a l t u n g der B u n d e s a n s t a l t
für A r b e i t ;
T. Küster ( 1 9 7 6 ) ;
K. M a i b a u m / F . B e i e /
M. R a d e m a c h e r ( 1 9 7 2 ) .
- 16
pages.supply
-
a s h o r t o v e r v i e w ©n
the h i s t o r i c a l
o f t h e German l a b o u r a d m i n i s t r a t i o n and
and
shall
development
show t h e
low p o i n t s o f t h e o r g a n i s a t i o n ' s d e v e l o p m e n t dependent
on t h e p o l i t i c a l
c l i m a t e of the
environment.
J o b - p l a c e m e n t , r e g u l a t e d on a c o m m e r c i a l b a s i s b y
dates
back t o the e a r l y n i n e t e e n t h c e n t u r y .
t i o n a t t h e end
political
of the nineteenth century, which
trade unions,
employers'
'Arbeitsnachweise'
to the g r e a t r e l i e f
trade unions
placement agencies
e m p l o y e r s and
by
and
odd-job workers.
They t h e n a g r e e d
t o b u i l d up
common
Employers
e s t a b l i s h i n g numerous p l a c e m e n t o f f i c e s ,
c o m p e n s a t i o n was
Until a public
e s t a b l i s h e d i n 1918,
p a i d e i t h e r by
trade-unions
I n o r d e r t o r e g u l a t e p l a c e m e n t and
tions institutionally,
a
c e n t r a l a d m i n i s t r a t i o n , and
'Bundesanstalt'
'Landesarbeitsämter'
m e d i a r y b o d i e s , and
the status of a
o r by
b e n e f i t funcnation-wide
s t r u c t u r e to t h a t of
( L a n d E m p l o y m e n t O f f i c e s ) as
local offices.
A great deal
a job-creation
t h e employment o f t h e h a n d i c a p p e d were f i x e d .
local
l e d to the
labour o f f i c e s
and
top,
interof
measures were
i n v e n t e d , company s h u t - d o w n s w e r e r e g u l a t e d , and
o f 19 22
This
the
a n a t i o n a l o r g a n i s a t i o n a t the
r e g u l a t i o n s were c r e a t e d :
nachweisgesetz'
munici-
l a t e r became a u t o n o m o u s .
a similar
today;
unemployment
' R e i c h s a m t für A r b e i t s v e r m i t t l u n g '
f o u n d e d , w h i c h f i r s t had
' R e i c h s a n s t a l t ' had
where
At that time, a kind
' c l o s e d shop' s i t u a t i o n a l r e a d y e x i s t e d .
o f 869
local
e m p l o y e e s on a d m i n i s t r a t i v e b o a r d s .
u n e m p l o y m e n t i n s u r a n c e was
was
w i t h the
Until
with p r o p o r t i o n a l representation of
o n l y n o n - t r a d e - u n i o n i s t s were p l a c e d .
palities.
developed
clientel. considered
refused to co-operate
placement s e r v i c e s .
p r i v a t e agencies.
of the communities were
of the poor:
great
municipalities,
a s s o c i a t i o n s , and
p r i n c i p a l l y of the handicapped
reacted
l e d t o many
'Arbeitsnachweise'
( e m p l o y m e n t r e g i s t r y o f f i c e s ) w e r e r u n by
1899,
increased
and s o c i a l labour market problems. A t t h a t t i m e , a
number o f p l a c e m e n t o f f i c e s , s o - c a l l e d
The
guilds,
Industrialisa-
t h e number o f i n d u s t r i a l w o r k e r s t o 12 m i l l i o n ,
of
high
quotas f o r
The
'Arbeits-
organisational.development
t w e n t y - t w o Länder
agencies.
- 17
This
law
also provided
p u b l i c labour
and
f o r the placement monopoly of
administration.
o r g a n i s a t i o n were the
bodies,
p r i n c i p l e s of
today:
officials
of the
public sector.
promotion of
the
the
Beside
granting
of
employees,
placement,
unemployment
f u r t h e r t r a i n i n g and r e - t r a i n i n g
became o b l i g a t o r y f u n c t i o n s
establishment
of the
labour
offices.
o f t h e German L a b o u r A d m i n i s t r a t i o n
appears i n p u b l i c l i t e r a t u r e ,
e n a c t m e n t o f t h e AVAVG
I n s u r a n c e ) i n 1927.
(Law
can
be
seen i n
f o r P l a c e m e n t and
I t seems t o be
important
Unemployment'that
r e l e v a n t to the
was
homogeneous, c e n t r a l l y
brought together
governed u n i t , but
l i t e r a t u r e on
i n one
s e t - u p as
the
h i s t o r y of the
s h a l l show l a t e r
and
that this
labour
the
market
a d e c e n t r a l i s e d body.'
t r a t i o n p a r t i c u l a r l y emphasizes the
'all-encompassing law'
as
the
c o l l e c t i o n of a l l functions
The
the
.self-governing
composed o f e m p l o y e r s ' r e p r e s e n t a t i v e s ,
benefits /
it
The
same as
v o c a t i o n a l c o u n s e l l i n g and
The
-
one
German l a b o u r
achievement of
^
adminisone
'comprehensive agency'.
c o n s o l i d a t i o n a l s o has
We
negative
results.
P a r a g r a p h 131
o f t h e AVAVG d e c l a r e s :
p r e v e n t e d and
e n d e d p r i m a r i l y t h r o u g h p l a c e m e n t and thus makes
clear that granting
goal.
In r e a l i t y ,
'Unemployment c a n
unemployment b e n e f i t s
the
labour
a d m i n i s t r a t i o n had
chances a t s u c c e e d i n g i n t h e i r main t a s k s
vocational counselling during
the
twenties.
At
the
end
of
At
that time,
the
a main
only
of placement
19 32,
t h a t the
granting
t h e y can
beginning
employment admin'Stempelstellen'
unemployment b e n e f i t s ) .
of the N a t i o n a l
S o c i a l i s t e r a , the
At
(1)
a d m i n i s t r a t i o n was
V,
Siebrecht
put
under the
( 1 9 7 7 ) , p.
306.
stamped
the
self-governing
p r i n c i p l e s of the Labour A d m i n i s t r a t i o n were g i v e n
the
of
unemployment b e n e f i t .
o f f i c e s were c a l l e d
receive
and
more t h a n s i x m i l l i o n
( i . e . o f f i c e s i n w h i c h unemployed have t o have forms
before
slight
the world-wide r e c e s s i o n
unemployed were r e g i s t e r e d , so
i s t r a t i o n ' s m a i n t a s k was
i s not
be
c o n t r o l of the
up,
and
'Reichs'-
-
Ministry
of Labour.
18
-
J o b C r e a t i o n programmes s u c c e e d e d i n
o v e r c o m i n g u n e m p l o y m e n t v e r y q u i c k l y , b u t a t t h e same
required a strong s t e e r i n g of the labour force.
With, t h e
i n t r o d u c t i o n o f t h e ' l a b o u r book', w h i c h documented
v o c a t i o n a l t r a i n i n g and j o b s o f e v e r y
controlling
time
previous
employed p e r s o n ,
s y s t e m was c r e a t e d , w h i c h was t o g u a r a n t e e
a
'the
a p p r o p r i a t e d i s t r i b u t i o n o f t h e l a b o u r f o r c e i n t h e German
economy'.
over
I n 19 35
t h e a d m i n i s t r a t i o n had e x c l u s i v e c o n t r o l
a l l d i s m i s s a l s a n d r e c r u i t m e n t s , a n d i n 1938 t h e
R e i c h s a n s t a l t was d i s s o l v e d , l e a v i n g t h e a g e n c i e s
under t h e
authority of a general secretary f o r mobilisation.
As
l a b o u r o f f i c e s resumed t h e i r
tasks after
t h e Second
W o r l d War, some l o c a l o f f i c e s h a d t o r e p o r t t o t h e m u n i c i p a l i t i e s ,"some t o t h e e x i s t i n g Landesarbeitsämter, a n d
others t o the various occupying
powers.
The
agencies
i m p l e m e n t e d t h e i r programmes o n t h e b a s i s o f d i f f e r e n t
r e g u l a t i o n s g o i n g b a c k t o 1922 o r t o t h e t h i r t i e s .
Allies
u n s u c c e s s f u l l y attempted
The
t o i n t r o d u c e an o b l i g a t o r y
r e g i s t r a t i o n and r e c r u i t m e n t o f l a b o u r by t h e p u b l i c administration.
Again,
e f f o r t s w e r e made t o r e t u r n t o a more c e n t r a l i s e d
structure
which would aim a t a h i g h e r degree of u n i f i c a t i o n
o f l a b o u r m a r k e t programmes i n t h e d i f f e r e n t
1952
agencies.
In
a c e n t r a l i n s t i t u t i o n was f o u n d e d , w h i c h was o r g a n i s -
ationally
structured like
t h e ' R e i c h s a n s t a l t ' o f 19 22.
AVAVG r e m a i n e d t h e l e g a l f u n c t i o n a l b a s i s .
The
The
admini-
s t r a t i o n was t h e n composed o f t h e m a i n b o d y i n Nürnberg,
twelve
As
agencies
on t h e L a n d e r l e v e l ,
at the beginning
of the f i f t i e s ,
a n d 209 l o c a l
offices.
t h e unemployment r a t e
r o s e t o t e n p e r c e n t , and g r a n t i n g unemployment c o m p e n s a t i o n
was a g a i n t h e s t a f f ' s
and
early sixties,
central activity.
During
fifties
t h e AVAVG was e x p a n d e d by c o n c e n t r a t i n g
on m e a s u r e s f o r t h e p r e v e n t i o n o f u n e m p l o y m e n t .
consuming debates,
the
Time-
h o w e v e r , n u t an e n d t o t h e d i s c u s s i o n o n
- 19
-
labour market p o l i c y d u r i n g the s i x t i e s
of emphasis o c c u r r e d
law,
t h e AFG.
An
i n 1969
.
A major
w i t h t h e amendment o f a
a t t e m p t was
sive
new
made t o e n l a r g e a d m i n i s t r a t i v e
f u n c t i o n s i n t h e d i r e c t i o n o f a more p r e v e n t a t i v e
(labelled
shift
' a c t i v e l a b o u r m a r k e t p o l i c y ' ) i n one
policy,
comprehen-
law.
This shor
historical outline reflects,
h i s t o r y o f t h e a c h i e v e m e n t s and
on t h e
t o some e x t e n t ,
d e f e a t s o f t h e FRG.
i d e a o f c r e a t i n g an a u t o n o m o u s b o d y t o
Based
prevent
u n e m p l o y m e n t , t h e l a b o u r a d m i n i s t r a t i o n became an
through
the
w h i c h p o l i t i c a l power g r o u p s c o u l d a c t .
instrument
Experiences
d u r i n g t h e N a t i o n a l S o c i a l i s t e r a have c r e a t e d t h e image o f
a t i g h t l y government-controlled
p o l i c y a f f e c t e d implementation
War,
when e m p l o y e r s had
system.
to r e g i s t e r a l l vacancies
c r e a t e d an
f a l s e l i g h t upon t h e
of the
labour
and
officials
as i n f o r m e r t i m e s ;
i s the
dis-
functions
throws
Employees
others
s t r e s s the
' i n order
a b e t t o r of the Government
forming
* •
demand a more
to
t h e German l a b o u r a d m i n i s t r a t i o n f r o m b e c o m i n g
dominant f e a t u r e
later)
A few
n e u t r a l i t y of the Bundesanstalt
e x e c u t i v e a i d e r and
One
even today.
and
a d m i n i s t r a t i o n are r e m i n i s c e n t of the N a z i
restrictive policy,
prevent
controlling
image w h i c h o f t e n
labour o f f i c e s
period to various degrees.
necessary
repressive
even a f t e r t h e Second World
m i s s a l s w i t h t h e a d m i n i s t r a t i o n . The
of the bureaucracy
This
the
again'.
( t h e r e s u l t s o f w h i c h s h a l l be
shown
o f the unemployment b e n e f i t o f f i c e s
t h e p l a c e m e n t s e r v i c e s i n t o one
agency.
After
the
foundation of a c e n t r a l labour a d m i n i s t r a t i o n i n the e a r l y <
twenties
and
i t s r e o r g a n i s a t i o n f o l l o w i n g the
Second World
War,
unemployment r a t e s were v e r y h i g h .
Labour
administra-
tion
concerned, i t s e l f mainly
(1)
The s o c i a l w e l f a r e and m u n i c i p a l e x p e r t s demanded t h a t
l o n g - t e r m u n e m p l o y e d p e r s o n s be t a k e n c a r e o f b y t h e
m u n i c i p a l i t i e s because unemployment r e l i e f ( n o r m a l l y
p a i d a f t e r a f u l l y e a r of unemployment b e n e f i t ) i s b a s e d
on i n d i g e n c e .
The l e g i s l a t o r s d e c i d e d t h e l a b o u r
a d m i n i s t r a t i o n w o u l d c o n t i n u e t o be r e s p o n s i b l e f o r
these f u n c t i o n s , although they o f t e n c o n f l i c t w i t h other
l a b o u r management r e g u l a t o r y f u n c t i o n s .
w i t h g r a n t i n g compensation,
- 20
and
other
m e a s u r e s had
the
unemployed had
an
t o be
-
neglected.
i n f l u e n c e on
o r i e n t a t i o n o f t h e s t a f f and on the
administration.
As
granting
the
regard
administration
services.
The
t i o n i s one
We
shall
policy
2.2.
Our
functions
dole
as
image o f t h e
agency', where
over the d e l i v e r y
labour
market
of
administra-
organisation.
implementation
of
The ' F o r m a l _ C h a r _ t _ o f t h e B u n d e s a n s t a l t f u r A r b e i t
study intends
to describe
labour
the
administration.
and
of the
the
I I can
formal
frame
In t h i s
be
w i t h i n w h i c h member
sense, the d i f f e r e n t p a r t s
and
in
the
l e g a l f r a m e as w e l l
s t r u c t u r e , undergo
as
modifications
to t h e i r changing environment.
taken i n t o
of
constraints
i t i s described
t h e German l a b o u r
Changes, w h i c h have t a k e n p l a c e
be
labour
r e g a r d e d as d e s c r i p t i o n s
B o t h phenomena, t h e
attempts to portray
to
structure entails
structural possibilities
organisation
parallel
act..
i n i m p l e m e n t a t i o n as
introduction.
In order
behaviour, i t i s necessary to
Describing
o f c h a p t e r s I and
involved
administrative
o r g a n i s a t i o n a l -.structure of the
organisation
l e g a l and
e x p l a i n the
market p o l i c i e s .
an o u t l i n e o f t h e more g e n e r a l
the
clients
tasks.
familiar with
As
'dole
t h i s hampers t h e
understand.administrative
the
c l i e n t , many
consequence of a m u l t i - p u r p o s e
implementation of
the
a
take p r i o r i t y
show l a t e r how
labour
unemployment c o m p e n s a t i o n i s
a c e r t a i n c o n t r o l of the
controlling
to'
performance-
r e p u t a t i o n of the
combined w i t h
labour
Administering
Our
description
a d m i n i s t r a t i o n i n 19 76.
since t h a t time could not
be
consideration.
the main focus of our
l o c a l agencies,
we
archical organisation
agent i n order
to give
s a t i o n governing these
s t u d y i s on
officials
t r y t o move o u r
from the
an
operating
f o c u s down t h e
in
hier-
c e n t r a l body t o t h e i n d i v i d u a l
impression
operations.
of the k i n d of
formali-
-
The
is
21
-
l e g a l s t r u c t u r e o f t h e German e m p l o y m e n t
clarified
administration
i n t h e 'Law o n t h e E s t a b l i s h m e n t
a n s t a l t für A r b e i t ' , e n a c t e d i n 1 9 5 2 .
o f a Bundes-
The new
organisation,
a k i n d o f t h r e e - t i e r s y s t e m , was f o u n d e d o n t h e m o d e l o f
the
former
'Reichsanstalt'.
I t s c o r e body i s t h e Bundes-
a n s t a l t , w h i c h i s l o c a t e d i n Nürnberg.
'federal p r i n c i p l e ' , only
nine
Land labour
o f t h e o r i g i n a l t w e n t y - t w o i n 1927.
(1)
the
e n t i r e FRG
sation of the
.
In keeping with the
o f f i c e s remain
146 l o c a l o f f i c e s c o v e r
The f o l l o w i n g g r a p h d e p i c t s
the organi-
Bundesanstalt:
M i n i s t r y óf L a b o u r
and S o c i a l A f f a i r s
B u n d e s a n s t a l t für A r b e i t
Tripartite
Governing
Body
Tripartite
Executive
Board
P r e s : Ldent
Tripartite
Administrative
Committees
9 Land
Labour
Offices
Tripartite
Administrative
Committees
146 L o c a l
Offices
538 B r a n c h
Labour
Offices
(1)
The b o r d e r l i n e s o f t h e Land l a b o u r o f f i c e s and l o c a l
o f f i c e s d i s t r i c t s do n o t c o r r e s p o n d t o t h e g e n e r a l
administrative districts.
They a r e d e f i n e d
according
t o economic and l a b o u r m a r k e t p o l i t i c a l c r i t e r i a .
T h i s c r e a t e s some d i f f i c u l t i e s , i n t h a t s t a t i s t i c s a r e
o f t e n i m p o s s i b l e t o compare.
- 22 -
The
BA i s n o t a d i r e c t g o v e r n m e n t a l a u t h o r i t y l i k e
European labour
public
administrations.
law c o r p o r a t i o n .
The
organisation
security
The M i n i s t r y o f L a b o u r and S o c i a l A f f a i r s
f o rgeneral
legal regulations.
administration's
The
The s t a t u s o f a p u b l i c
e x i s t s f o r a l l bodies of the s o c i a l
system.
is reponsible
t a x a t i o n , which c u r r e n t l y
p e r c e n t o f t h e employee's income, i s s p l i t
between employees and e m p l o y e r s .
law
implies
by c o n t r i b u t i o n s f r o m members.
c o s t o f unemployment i n s u r a n c e
runs a t three
I t i s a'self-governing
The t e r m ' c o r p o r a t i o n '
t h a t t h e BA i s f i n a n c e d
other
and o v e r a l l c o m p l i a n c e
with
I t i s i n c h a r g e o f some o f t h e l a b o u r
t a s k s , s u c h as l a b o u r
permit
procedures.
BA h a s i t s own b u d g e t , w h i c h m u s t b e r a i s e d b y
a d d i t i o n a l governmental funds i n times o f p a r t i c u l a r l y
unemployment.
high
H o w e v e r , t h e autonomy o f t h e BA as a s e l f -
g o v e r n i n g body i s l i m i t e d i n t h a t t h e m i n i s t r y h a s t o
authorise
b u d g e t and r e g u l a t i o n s , and g e n e r a l l y h o l d s a
superior position.
The f u n c t i o n s
body w i l l be d i s c u s s e d
The
tasks
self-governing
later.
o f t h e t h r e e h i e r a r c h i c a l l e v e l s are- n o t
enumerated i n d e t a i l
Nürnberg
of this
i n t h e AFG.
( i . e . the executive
body) works o u t s t a t u t e s
The h e a d q u a r t e r s i n
b o a r d and t h e s e l f - g o v e r n i n g
and g u i d e l i n e s
and
enactment o f laws.
the
'Dienstblätter d e r B u n d e s a n s t a l t ' .
f o r the enforcement
These r e g u l a t i o n s
f i n a n c i a l and p e r s o n n e l r e s o u r c e s
The BA makes
a v a i l a b l e t o t h e Land
Employment O f f i c e s and l o c a l o f f i c e s .
are worked o u t a t t h e l o c a l
are published i n
Budget
proposals
l e v e l and t h e n m o d i f i e d
Land employment o f f i c e s b e f o r e
f i n a l decisions
i n Nürnberg. ' The f a c t t h a t f u n d s a r e g i v e n
a r e made
t o t h e Land
employment o f f i c e s by t h e c e n t r a l body, a c c o r d i n g
based on t h e employed p o p u l a t i o n
autonomous d e c i s i o n m a k i n g a t t h i s
As
be s e e n f r o m r e p r e s e n t a t i v e s
istrations,
to allow
requests.
there
Difficulties
level.
of the local
are sufficient financial
forrelatively
t o quotas
o f t h e Länder t e n d s t o
restrict
could
by t h e
admin-
resources
uncomplicated granting
o f budget
a r i s e when a d d i t i o n a l f u n d s a r e
- 23 -
requested
i n order
t o c r e a t e new p o s i t i o n s .
as w e l l a s t h e d e p a r t m e n t l e a d e r s
of local offices
that the c e n t r a l a d m i n i s t r a t i o n prevents
unless
i ti s a b s o l u t e l y necessary
increased
f u n c t i o n s i n times
The d i r e c t o r s
staff
stated
enlargement .
to the carrying out of
o f h i g h unemployment.
Addi-
t i o n a l p o s i t i o n s a r e a c c o u n t e d f o r on t h e b a s i s o f s p e c i a l
indicators
of q u a n t i t a t i v e performance s t a t i s t i c s .
This
e v a l u a t i o n b y q u a n t i t a t i v e p e r f o r m a n c e i n d i c a t o r s may b e
s u b j e c t t o the dangers o f o r i e n t a t i o n :
are neglected
i n favour of q u a n t i t a t i v e standards.
effects of this orientation
tion
process
q u a l i t a t i v e demands
The
w i t h regard t o t h e implementa-
of the staff w i l l
be d i s c u s s e d l a t e r . . -
Land l a b o u r o f f i c e s have m e d i a t i v e ^ 3 3 H 2 6 f t £ £ 6 L l i n g
vis-a-vis
functions . ~
l o c a l o f f i c e s , between t h e c e n t r a l body and t h e
l o c a l agencies.
U n l i k e t h e c e n t r a l body, which c o n s i s t s o f
s e v e n d e p a r t m e n t s , a n LAA i s o n l y composed o f o n l y
departments:
counselling,
(1)
(2)
three
l a b o u r market measures and v o c a t i o n a l
payment^, (3)
f i n a n c e and p e r s o n n e l .
A
p l a n n i n g body w i t h c o - o r d i n a t i v e f u n c t i o n s does n o t e x i s t
here.
I f we l o o k a t t h e f u n c t i o n a l d i v i s i o n b e t w e e n t h e
l a b o u r a d m i n i s t r a t i o n on t h e Land and l o c a l
see
t h a t t h e AFG i n c l u d e s no r e g u l a t i o n s i
that the organisational structure w i l l
to
guarantee the necessary
levels,
This
we
ensures
r e m a i n open enough
flexibility.
Besides
observation
of t h e labour market, t h e main task o f t h e Land l a b o u r
is
t h e admustment a n d c o n v e r s i o n
plans
years
o f g e n e r a l r e g u l a t i o n s and
applicable to specific regions.
functions,
offices
Most o f t h e e x e c u t i v e
f o r w h i c h t h e L a n d l e v e l was r e s p o n s i b l e some
ago, a r e today
largely delegated
to the local
offices.
O n l y d e c i s i o n s on t h e g r a n t i n g o f s u b s i d i e s t o i n s t i t u t i o n s
of f u r t h e r t r a i n i n g and r e - t r a i n i n g ,
a n d d e c i s i o n s o n com-
p a r a t i v e l y c o s t l y j o b c r e a t i o n m e a s u r e s a r e made b y t h e L a n d
labour
offices..
Today, t h e e x i s t e n c e o f t h e Land employment o f f i c e s
questioned
b y s t a f f members o n t h e l o c a l
level.
i s often
T h e i r argument
- 24
i s t h a t the
new
s t a f f does not
(1 )
regulations
.
seen a l o c a l o f f i c e
feasibility
difficult
of
'As
-
work q u i c k l y enough i n m e d i a t i n g
most o f the
f r o m i n s i d e , t h e y c a n n o t comment on
instructions.
t o make p r o p o s a l s
The
local offices
which are
at the next a d m i n i s t r a t i v e l e v e l .
office
LAA's s t a f f have n e v e r
Land
t i o n s , h o l d s t r u e f o r the
situation
office
are
s i t u a t e d i n the
noticably better.
l o c a l o f f i c e noted,
contact
As
and
'they keep a s t r i c t
the
eye
on
seems
the
us
between the
important role.
The
two
So many
feel like
so
l o c a l agency p e r c e i v e s
that
agencies
the
clients
outsiders.'
administrations
f u r t h e r away t h e
Kiel,
local
same t o w n as Länder a g e n c i e s l i e i n
t h e Länder l e v e l t h a t we
distance
In
some s t a f f members o f
a d m i n i s t r a t i v e body i s l o c a t e d , t h e
the
administra-
same t o w n , c o - o p e r a t i o n
shadow o f t h e L a n d e m p l o y m e n t o f f i c e .
an
two
scope of a c t i o n remains l i m i t e d ' . A l l l o c a l
s i t u a t e d i n the
The
employment
i n Freiburg.
however, where the Land employment o f f i c e
our
account
i s f a r away f r o m h e r e . ' This statement, which expresses a
l a c k of adequate communication between the
t o be
find i t
taken i n t o
'The
the
seems
to-play
superintending
higher
the
staff
of.
i t s d i s c r e t i o n a r y power t o
be.
N o r m a l l y , c o n t r o l o f the L a n d employment o f f i c e does
not
go
the
beyond a p r e - c o n t r o l
r e v e n u e s and
('Vorkontrolle'),
a check of
expenditures of t h e . l o c a l o f f i c e s .
'object of t h i s examination i s d i r e c t e d to the
o f a d m i n i s t r a t i v e b e h a v i o u r and
legality
i t s efficiency,
prevent i r r e g u l a r i t i e s i n expenditure'.
As
The
and
this kind
annual c o n t r o l l a r g e l y touches only
financial
the
f e e l themselves
s e r v i c e d e p a r t m e n t s t a f f do
t r o l l e d by
(1)
not
the Land employment o f f i c e .
For
shall
of
departments,
the
con-
majority
I n O c t o b e r 1976 t h e g o v e r n m e n t p a s s e d ' s p e c i a l programmes
f o r m o b i l i t y a i d f o r workers' ( m o b i l i t y a i d , c o s t s of r e m o v a l , a p p o i n t m e n t s , s u b s i d i e s ) . As t h e programme was
v a l i d b e t w e e n 10 November 1976 and 31 May 1977, i t was
p u b l i s h e d a t t h e b e g i n n i n g o f November.
Only i n January,
19 77, h o w e v e r , d i d t h e L a n d e m p l o y m e n t o f f i c e s e t t h e
c o r r e s p o n d i n g g u i d e l i n e s f o r t h e s p e c i a l programme.
For
t h r e e months, t h e r e f o r e , placement agents i n the l o c a l
o f f i c e s c o u n s e l l e d a p p l i c a n t s f o r t h i s money on t h e b a s i s
of i n f o r m a t i o n g a i n e d from newspaper c l i p p i n g s .
-
25
-
o f s t a f f members o f
local offices,
is
'with s u p e r i o r s
a m e d i a t i n g body
whole f u n c t i o n s
are
i s the
the
tasks
A more i n t e n s i v e
every four years i n the
'Ämterprüfung' c o n d u c t e d by
ment o f t h e BA.
By
examining the
office
i n highly paid position,
f a r from c l e a r to us'.
c o n t r o l , which takes place
offices,
the Land employment
files,
a special
the
are performed i n accordance with
local
staff
depart-
ensures,
legal regula-
tions.
Relations
are
between the
c h a r a c t e r i s e d by
Nürnberg has
three
the
h i e r a r c h i c a l l e v e l s of the
following:
the
l e g i s l a t i v e a u t h o r i t y , the
c e n t r a l body i n
Länder o f f i c e s
can m o d i f y t h e s e laws i n a l i m i t e d c a p a c i t y
t o t h e Länder a r e a s .
BA
appropriate
T h e s e a r e a s c a n n o t be
regarded
as
homogeneous 1 a b o u r m a r k e t s . — • The---Länder o f f i c e - s — a g e
•responsible
f o r a number o f d i f f e r e n t l a b o u r
with p a r t i c u l a r problems.
general
implementation of
for a l l local
agencies,
l o c a l o f f i c e s are
Therefore,
the
by
the
s t a f f must see
l a w s , w h i c h m u s t be
the
regulations
relatively
most of the
c e n t r a l body can
received
are
ditures.
In analysing
limited.
2.3.
out
concrete!
local
level.
Their c o n t r o l l i n g
r e v e n u e s and
expen-
we
have
l o c a l o f f i c e s , where the
trans-
a c t i o n takes place.
The_Hierarchical_Structure_of_a_Local_A2ency
a l l y organised
some c h a r a c t e r i s t i c s o f a
b o d y , s u c h as a s t r o n g
bureaucratic-
h i e r a r c h i c a l set-up.
l o c a l o f f i c e s , which often f u n c t i o n f o r s e v e r a l
( K r e i s e ) , are
1)
on
steering capacities
o f programmes i n t o a d m i n i s t r a t i v e
Local offices mirror
The
the
used
implementation process,
t o d i r e c t our " a t t e n t i o n t o the
formation
the
almost reduced to checking
the
be
transformed i n t o
to l a c k of p h y s i c a l p r o x i m i t y ,
functions
by
l e g a l r e g u l a t i o n s worked
n o t be
o f t h e Länder o f f i c e s a r e
the
abstract.
o p e r a t i o n a l r e g u l a t i o n s u n t i l they reach the
Due
to
regions
formulated
a c e r t a i n amount o f d i s c r e t i o n c a n
local level:
the
still
As
market
comprised of four
Placement,
4) P e r s o n n e l and
2) V o c a t i o n a l
f u n c t i o n a l departments:
Counselling,
Administration.
districts
3)
Payment
These departments are
and
composed
. o f many_ s u b d i v i s i o n s , responsible f o r the various s e r v i c e s and programmes.
- 2.6
of our
study
-
As
the main focus
i s on
implementation
procedure,
we
s h a l l d e s c r i b e the placement department, i n w h i c h most o f
t h e programmes a r e i m p l e m e n t e d by means o f d i r e c t
b e t w e e n a g e n t s and
clients..
Most of the e x e c u t i v e t a s k s of the
p l a c e i n the department of
f u n c t i o n i s to balance
l o c a l agencies
understand
Under the
the branch
(whose m a i n f u n c t i o n s a r e p l a c e m e n t t a s k s ) , and
o f f e r and
demand).
The
term
the
offices
departments
are r e s p o n s i b l e f o r r e g i o n a l b a l a n c e
p l a c e m e n t d e p a r t m e n t has
to attain
main
d i f f e r e n t bodies:
placement department of a l o c a l o f f i c e ,
(which
t.ake
placement, because t h e i r
s u p p l y and demand.
" p l a c e m e n t s e r v i c e " , we
i n t h e LAA
interaction
to perform
labour market p o l i t i c a l
complementary measures.
goals
a number o f
through
of
tasks
a set
I t s t a s k s , according to the
of
AFG,
are:
1.
o b s e r v a t i o n of the
2.
placement
3.
j o b c o u n s e l l i n g ( p a r a 15
4.
g r a n t i n g of labour permits
5.
promotion of f u r t h e r t r a i n i n g
(paras
6.
33-52
53-55
(para. 6
AFG)
AFG)
AFG)
( p a r a 19
and
AFG)
re-training
AFG)
p r o m o t i o n o f r e i n t e g r a t i o n by
(paras
7.
( p a r a 14
labour market
g r a n t i n g wage s u b s i d i e s
AFG)
a s s i s t a n c e i n g r a n t i n g s h o r t - t e r m money
(paras
63-76
AFG)
8.
a s s i s t a n c e i n j o b - c r e a t i o n measures
9.
a s s i s t a n c e i n g r a n t i n g unemployment b e n e f i t
10.
(The
r e i n t e g r a t i o n of the d i s a b l e d
department i m p l i c a t i n g these
overleaf.)
(paras
91-9 3
AFG)
(Schwerbehindertengesetz)
laws i s diagrammed
- 27 The
Placement_DgBar^ent_of_a_Lgçal_L
medical
services
Director
technical
counselling
b r a n c h I—H
offices
department-head
d i y i s i o n head
for blue-collar
occupations
central office
for l e g a l
control
counsellors f o r
further training
and r e - t r a i n i n g
d i v i s i o n head
for white-collar
occupations
placement
agents
placement
agents
registering
offices
(AB-Stelien)
The
d i r e c t o r a t t h e t o p o f each l o c a l o f f i c e
responsible
the
i s formally
f o r a l l d e c i s i o n s made u n d e r h i m .
d i r e c t o r ' s main tasks
In reality,
are t o cooperate with
g o v e r n i n g b o d i e s and t o s e r v e a s spokesman and
t i v e o f t h e agency.
control functions
responsible
He may d e l e g a t e
representa-
many o f t h e s e r v i c e
t o t h e f o u r d e p a r t m e n t h e a d s , who a r e
f o r t h e p r o p e r a n d homogeneous p e r f o r m a n c e o f
these administrative tasks.
branch o f f i c e s .
the
the s e l f -
They a l s o r u n t h e d i f f e r e n t
Besides these inne-administrative
d e p a r t m e n t h e a d h a s much e x t e r n a l c o n t a c t
with
functions,
clients.
He s p e a k s w i t h ' e m p l o y e r s who h a v e p e r s o n n e l p r o b l e m s , he
has
preparatory
conversations
measures, i n f o r m a t i o n
concerning
exchanges w i t h
t r a i n i n g and r e - t r a i n i n g , o r w i t h
placement agency d e c i s i o n s .
he
job-creation-
institutions of further
jobseekers
who o p p o s e
As one department head t o l d u s ,
h a s more t h a n 50 p e r c e n t o f h i s appointments i n one v;eek w i t h
c l i e n t s outside the o f f i c e .
'Sometimes I do not see t h e placement agents
o f my department f o r a week o r longer;
my t i m e c o e s t o c l i e n t s ' . .
- 28
Many o f t h e
his
a d m i n i s t r a t i v e f u n c t i o n s m u s t be
g r o u p - h e a d s , who
have i n f o r m a l
visions
lors
work c l o s e l y w i t h
e x i s t between the
to the
referee
i n the
t h e i r department heads.
to the various
In England, the
D e p e n d a n t on
decisions
department
constantly
allots
specific
government e s t a b l i s h e s s p e c i a l i s e d f i e l d
new
laws.
c r e a t i o n of sub-departments w i t h
problems i s l i m i t e d ,
the
the
the
organisation
I n Germany, h o w e v e r ,
e x i s t i n g b u r e a u c r a c y must d e a l w i t h
new
policies.
The
s p e c i a l i s e d agents f o r
i n that i t i& d i f f i c u l t
s t a f f -to t h e
the
necessary extent;
the
to
consequently,
j u r i s d i c t i o n of the placement agents i s r e g u l a r l y
increased.
A g e n t s who
as p l a c e m e n t , now
used t o perform such r o u t i n e
have t o cope w i t h measures l i k e
job-creating, etc.
The
not
these functions.
o v e r b u r d e n e d by
departments
question
(as o c c u r r e d
i n the
to co-ordinate
programmes, so
segmented, s e p a r a t e d ,
changes of
the
t h e AFG
functions
Enlarging
danger of not
the n e c e s s i t y
are
sub-
and
being
able
t h a t problems are handled i n a
expansion of
Beside routine
taks,
tasks
such
u n e m p l o y m e n t b e n e f i t s , many
w h i c h c a n n o t be made r o u t i n e had
i n t o the
or
the
further training
h a v e c a u s e d an
granting
promoting,
s p e c i a l i s e d manner.
placement department.
as p l a c e m e n t and
rated
and
tasks
i s whether they are
r e - t r a i n i n g department) c a r r i e s the
in
tasks
s t a f f members.
s e r v i c e s to c a r r y out
The
certain
Z-Buro ( c e n t r a l o f f i c e
l e g a l c o n t r o l ) , whereas i n o t h e r s ,
c h a n g i n g volume o f work, the
the
Counsellors
I n some o f f i c e s ,
h e a d makes s u c h d e c i s i o n s .
enlarge
counsel-
t h e p r o m o t i o n o f f u r t h e r t r a i n i n g and r e - t r a i n i n g
are delegated
new
super-
the
power o f d e l e g a t i n g
t o d i f f e r e n t s t a f f members-.
jobs
by
to
and
No
re-training.
neglected
Department heads have the
the
agents
d e p a r t m e n t h e a d s and
f o r f u r t h e r t r a i n i n g and
regarding
the
delegated
c o n t r o l over everyday matters.
often complain of being
for
-
placement department.
of p r e c i s e l y planning
t o be
From t h i s
and
incorpofollowed
c o n t r o l l i n g task
- 29
fulfillment
levels
of
-
i n o r d e r t o p r e v e n t t h e low
hierarchical
from r e n d e r i n g themselves independent.
Control
d e c i s i o n s made by t h e a g e n t s w i t h i n t h e p l a c e m e n t
department
i s only p o s s i b l e t o a l i m i t e d degree.
Informa-
t i o n o n w h i c h d e c i s i o n s a r e b a s e d i s g i v e n when a j o b s e e k e r comes i n t o c o n t a c t w i t h t h e a g e n t .
A
placement
agent i s c o n f r o n t e d w i t h about f i f t y c l i e n t s
and h a s t o make d e c i s i o n s f o r e a c h c a s e ;
if
he w i l l
t r y to place a c l i e n t ,
he w i l l make.
of
the
each
day
he m u s t d e c i d e
o r n o t , and w h i c h
A s t h e d e p a r t m e n t o r g r o u p h e a d knows
a g e n t m i g h t be a b l e t o f i l l ,
very d i f f i c u l t
he c a n n o t
objectively
Mistakes are
t o c o r r e c t , a s no j s u p e r i o r c a n c o l l e c t a l l
i n f o r m a t i o n r e l e v a n t t o each i m p l e m e n t a t i o n .
Thus,
p l a c e m e n t a g e n t s must have h i g h d i s c r e t i o n a r y
power.
Although there are a l o t of s e r v i c e i n s t r u c t i o n s
prescribing
varous possible, courses o f a c t i o n , the agent can always
decide' n o t t o t a k e a c t i o n .
(H.
little
the c l i e n t ' s personal circumstances or of the vacancies
q u e s t i o n what i s b e h i n d each d e c i s i o n .
the
offer
Kaufman^)
This
'authorisation'
i s c h a r a c t e r i s t i c of the s t r u c t u r e of
l a b o u r o f f i c e s . ' O n l y when a c l i e n t f e e l s h i m s e l f
local
unfairly
t r e a t e d , c a n he a p p e a l a n d h a v e h i s c a s e r e f e r r e d t o t h e
department
in
this
hea'd.
The d e p a r t m e n t h e a d s p l a c e t h e i r
i n d i r e c t c o n t r o l mechanism, assuming
trust
that
p l a c e m e n t a g e n t s c a n a n t i c i p a t e a p p e a l s , and p e r f o r m t h e i r
tasks
according to the law.
-Placement a g e n t s , on t h e
o t h e r hand, argue t h a t they a r e f o r c e d t o s t r e t c h the laws
in
order to prevent the c l i e n t s
a d j u s t m e n t o f one's
of
from making
e x p e c t a t i o n s may
staff adaptability to clients'
an a p p e a l .
lead to a high
c h a n g i n g demands.
degree
The
d i s c r e t i o n i n v o l v e d a l s o c a r r i e s w i t h i t the danger o f
personal prejudices influencing decisions;
with o f f i c i a l
(1)
policies.
H. K a u f m a n n
(1967) p.
92.
t h i s may
This
%
clash
- 30 -
Before
we d e s c r i b e t h e o r g a n i s a t i o n ' s way o f p u r s u i n g
g r a t i v e f u n c t i o n s , we s h a l l
summarise t h e c h a r a c t e r i s t i c s
of the department o f placement:
i t i s a multi-functional
organisation unit with four h i e r a r c h i c a l
levels.
d e p a r t m e n t h e a d , who h a s a w i d e s u p e r v i s o r y
key
position.
bility
he h a s t o d e l e g a t e
to the service delivery l e v e l .
h i s department i s developing
department and m o t i v a t i n g
zation' s substantive
2.4.
the responsi-
'policy' of h i s
the s t a f f to achieve
the organi-
goals.
Çg-ordination_Needs_and_Control_
hierarchical levels,
s t r u c t u r e o f t h e three,
i n c l u d i n g some a s p e c t s
t i o n s b e t w e e n t h e t h r e e b o d i e s , we s h a l l
aspect
Although
o f how r e g u l a t i o n s r e a c h
o f power
focus
rela-
on t h e dynam-
t h e . l o c a l agencies.
programmes a r e vaguely f o r m u l a t e d
needs f o r each r e g i o n ' s
to f i t specific
labour market problem, a c e r t a i n
u n i f o r m i t y must be g u a r a n t e e d .
LAA
functions
H i s main task w i t h i n
the general
A f t e r our d e s c r i p t i o n of the formal
ic
The
span has a
As he c a n n o t c o n t r o l a l l r o u t i n e
of h i s placement agents,
inte-
Beside
t h e check-up by t h e
a n d t h e BA, t h e r e m u s t b e a t r a n s f e r s y s t e m f o r d i s t r i b -
u t i n g new i n s t r u c t i o n s .
In this respect, the
system p l a y s an i m p o r t a n t
2.4.1.
conference
role.
The_Çonfrençe_System_as_a_Two-Way_Flo
Communication
Within
the last
few y e a r s ,
t h e BA h a s p r o d u c e d t h o u s a n d s o f
p a p e r s on s e r v i c e i n s t r u c t i o n s ;
paper.
they
In a d d i t i o n , the conference
a d m i n i s t r a t i o n guarantees a formal
from t h e main o f f i c e s
with
Various
many m e t r e s o f
system o f t h e labour
information transfer
to the l o c a l agencies,
r e c y c l i n g of information.'
the main o f f i c e
cover
as w e l l as a
s p e c i a l departments of
i n Nürnberg r e g u l a r l y h o l d
conferences
s u p e r v i s o r s o f r e p r e s e n t a t i v e s o f t h e Länder
offices:
offices,
information concerning
labour
r e g u l a t i o n s o f t h e main
l a w s i s s u e d by t h e m i n i s t r y o f l a b o u r
and s o c i a l
-
affairs
-
31
and r e g a r d i n g c o u r t d e c i s i o n s i s exchanged.
r e f e r e e s w r i t e r e p o r t s on these
which a r e then
submitted
Nürnberg h e a d q u a r t e r s .
sentatives
Lander
representatives'meetings,
to the local offices
and t o t h e
The f u n c t i o n o f t h e L a n d e r
repre-
i s t o work o u t more c o n c r e t e g u i d e l i n e s w i t h
r e s p e c t t o t h e labour market problems o f t h e r e g i o n s .
D i r e c t c o n t a c t between t h e s t a f f
offices
and t h e l o c a l o f f i c e s
directors'
weeks.
meetings,
which take place every
a year
four to s i x
i n t h e Länder a g e n c i e s .
seminar f o r f u r t h e r t r a i n i n g
t a k e s p a l c e once a y e a r
labour
i s e s t a b l i s h e d through
Department heads o f t h e l o c a l a g e n c i e s
or three times
day
o f t h e Länder
m e e t two
A seven
i n a d m i n i s t r a t i v e matters
i n o n e — o f t h e BA's a d m i n i s t r a t i o n
scholls.
C o n t a c t between t h e d i f f e r e n t
take place very o f t e n .
precedence over d i r e c t
expressed
hierarchical
levels
does n o t
W r i t t e n i n f o r m a t i o n exchange
communication.
h i s discontent thusly:
takes
A department head
'We a r e f l o o d e d b y p a p e r .
I f we r e a d a n d f o l l o w e d a l l o f t h e s e r e g u l a t i o n s , o u r e n t e r
prise
w o u l d b r e a k down'.
between t h e l o c a l
a c t i v e enough.
He c o m p l a i n e d
l e v e l a n d t h e Länder l e v e l
co-operation
i s f a r from
I n o r d e r t o h e l p overcome t h i s
a r e g u l a r exchange o f e x p e r i e n c e s
some a d j o i n i n g l a b o u r o f f i c e s
level.
that
Normally,
deficit,
between t h e d i r e c t o r s o f
was i n i t i a t e d o n t h e l o c a l
minutes, o f these meetings a r e sent t o
t h e Länder l a b o u r o f f i c e s . .
' S i n c e t h e Länder l a b o u r
however, does n o t l i k e i n f o r m a l d i s c u s s i o n t o t a k e
we do n o t f o r w a r d
office
tives
vent
these minutes.
knew a b o u t o u r m e e t i n g s ,
to observe.
1
t h e ' b u i l t - i n feedback
loop'.
of the l o c a l o f f i c e s
tion,
on t h e o t h e r hand, t h e y
by t h e s t a t e s
i t would send
Local offices,
staff
tion
I f the^Land
offices.
office
place,
employment
representa-
we s e e , t r y t o c i r c u m On t h e o n e h a n d , t h e
w o u l d p r e f e r b e t t e r communicafear a too strong interven-
-
On
32
-
t h e l o c a l l e v e l , m o s t c o n f e r e n c e s and m e e t i n g s a r e
informal.
They a r e d i s c u s s i o n s between
directors
d e p a r t m e n t h e a d s , and m e e t i n g s o f p a r t i c u l a r
heads w i t h t h e i r
own
group heads.
Formal
and
department
discussions
i n c l u d i n g a l l the departments are scheduled every s i x t o
e i g h t weeks.
tically
Minutes of these conferences are theore-
s e n t t o t h e Länder a g e n c i e s , t o be c h e c k e d
corrected.
T h i s documentary
and
r e c o r d o f c o n f e r e n c e s , an
imnortant bureaucratic c h a r a c t e r i s t i c ,
a l l o w s t h e Länder
offices
'We
t o c o n t r o l the l o c a l o f f i c e s .
m i n u t e s i f we
not
In
a
d o c t o r up t h e
c o n s i d e r i t b e t t e r t h a t t h e Länder
know a b o u t o u r d e c i s i o n m a k i n g
agency
process.'
some l o c a l a g e n c i e s ( t h e s e m e e t i n g s a r e n o t
obligatory)
' l a b o u r market c o n f e r e n c e ' t a k e s p l a c e once a month,
a t t e n d e d by t h e l o c a l d i r e c t o r , t h e major placement o f f i c e r s o f
the main o f f i c e , and t h e i r branch o f f i c e s .
I n the case we observed,
t h i s meeting was i n i t i a t e d by t h e o f f i c i a l s t a t i s t i c a l
expert,
a n d s e r v e d t o e l a b o r a t e on t h e m o n t h l y r e p o r t on t h e
labour market s i t u a t i o n .
In other o f f i c e s ,
departments d e a l w i t h the monthly r e p o r t s
Here, however,
agents.
the s t a t i s t i q a l
autonomously.
an a t t e m p t i s made t o i n c l u d e a l l p l a c e m e n t
I n t h i s manner, each i n d i v i d u a l
involved i s
i n f o r m e d on w h a t goes on i n e a c h j o b - p l a c i n g d i v i s i o n .
limited
The
w i l l i n g n e s s or capacity of the s t a f f i n analyzing
l a b o u r m a r k e t p r o b l e m s and d i s c u s s i n g p o l i c y
comes c l e a r i n s u c h m e e t i n g s .
measures
be-
Upon b e i n g q u e s t i o n e d r e -
g a r d i n g the causes of c e r t a i n developments
i n specific
v o c a t i o n a l f i e l d s , e.g. t h e i n c r e a s e o f u n e m p l o y m e n t o r t h e
m i n i m a l number o f j o b - p l a c i n g s ,
s e l d o m s u p p l y any e x p l a n a t i o n s .
job-placement agents
Only p a r t i c u l a r l y
o c c u r r e n c e s , s u c h as mass d i s m i s s a l s o r t h e c l o s i n g
of
plants,
are considered relevant causes.
could
decisive
down
Nevertheless,
some c o l l a b o r a t o r s t o o k a d v a n t a g e o f t h e c o n f e r e n c e t o
-
discuss
t h e i r own
33
-
experiences
p l a c e m e n t a g e n t s may
help
.
This
e x c h a n g e among
secure the homogeneity of
the
placement agents' a d m i n i s t r a t i v e approaches.
T h r o u g h t h e s e m e e t i n g s , a s o r t o f g r o u p o p i n i o n may
w h i c h can
i n f l u e n c e p a r t i c u l a r agents to c a r r y out
mentation i n a p a r t i c u l a r d i r e c t i o n .
ings, o r i g i n a l l y
initiated
problem s o l v i n g c a p a c i t y .
take place
labour
and
the
labour
e f f e c t on
market
the
group's
T h e s e m e e t i n g s , h o w e v e r , do
i n a l l l o c a l agencies;
d i v i s i o n of
imple-
These r e g u l a r meet-
to prepare the
r e p o r t , seem t o h a v e a p o s i t i v e
develop,
not
problems concerning
lack of information
the
exchange
are seldom overcome.
In a d d i t i o n to these formal
h e a d s and
and
informal meetings,
placement agents a l s o have day-to-day
A placement agent faced w i t h
m a t t e r can
uncertainty
in a
contact.
non-routine
c o n s u l t h i s group l e a d e r o r department head.
T h u s , many o f d a y - t o - d a y p r o b l e m s a r e d a l t w i t h b y
leaders.
One
department leader
d e p a r t m e n t i s o n l y as
Vertical
c a p a b l e as
between department l e a d e r s
Each labour
office,
r e g u l a t e the
the
their
This
record;
existing
staff.
power
t h e Länder o f f i c e o f
their
feed-back can
has
to
However,
f u n c t i o n as
l o n g as
decisions
i n f o r m a l agreements withdraw a c o n t r o l o f
superior administration.
a c t u a l l y goes
placement
the
task distribution.-
circumvent t h i s
(1)
and
'The
group
i t s group heads.'
generally speaking,
they are o b l i g e d to inform
a r e on
explains:
c o n t r o l s r e p l a c e thos c o n t r o l s not
decisions.
group
Local o f f i c e s often t r y to
f o r m a l i t y of informing
the
LAA
of
what
on.
I n one c a s e , a d i s c u s s i o n on m o b i l i t y a i d s was b r o u g h t
up:
t h e a s s e m b l e d p l a c e m e n t a g e n t s a g r e e d t h a t someone
u n w i l l i n g t o c h a n g e h i s r e s i d e n c e c a n n o t be
convinced
by any i n c e n t i v e s . I n m o s t c a s e s , t h o s e who b e g a n i n
a new w o r k - p l a c e s t a r t i n g i n November 1976 f i l e d an
application for mobility aid afterwards.
Thus, those
w i l l i n g t o move w e r e r e w a r d e d , a l t h o u g h t h i s h a r d l y
p r o v i d e s i n c e n t i v e f o r t h o s e who a r e u n d e c i d e d .
- 34 -
By w i t h h o l d i n g i n f o r m a t i o n , t h e l o c a l a g e n c i e s may
t h e i r d i s c r e t i o n a r y power.
back necessary
to policy
may t h u s be r e n d e r e d
never
strengthen
f o r m u l a t i o n on t h e c e n t r a l
level
'The p r o b l e m s we h a v e
The b u r e a u c r a t i c s t r u c t u r e d o e s n o t
t h e f l o w o f communication from t h e lower t o
the t o p l e v e l s .
to
A t t h e same t i m e , t h a t f e e d -
insufficient.
r e a c h t h e LAA.'
enlarge
Any c o m m u n i c a t i o n s • f r o m t h e l o c a l
t h e Länder l e v e l m u s t o f f i c i a l l y
d i r e c t o r and t h e d e p a r t m e n t h e a d s .
are not allowed
level
go t h r o u g h t h e
Placement
agents
t o d i r e c t l y contact t h e i r department a t
t h e Länder l e v e l .
A l l e n q u i r i e s must be f i l e d
and c o u n t e r -
s i g n e d by t h e d i r e c t o r b e f o r e b e i n g s e n t t o t h e Land
employment o f f i c e .
Likewise, i t i s not possible f o r the
directors of the local offices
a n s t a l t without going through
t o a p p e a l t o t h e Bundest h e Länder- o f f i c e .
communication b a r r i e r t h e o r e t i c a l l y
flexibility
and c r e a t i v i t y
strengthens the
o f the agents.
uncertainties are largely
This
Decision
c l e a r e d up a t t h e l o c a l
level.
A t t h e same t i m e , t h e s t a t e o f f i c e s h a v e t o g i v e u p p a r t ,
of
their
The
control.
conference
system
makes i t p o s s i b l e t o b r e a k
through
the s t r i c t l y
vertical
fests i t s e l f
i n w r i t t e n r e g u l a t i o n s and i n s t r u c t i o n s .
The
degree t o which
i n f o r m a t i o n flow,'a flow which
mani-
the local administrations follow
their
p r o p o s a l s depends on t h e m e d i a t i n g
ability
referees.
as d e s c r i b e d above,
The . c o n f e r e n c e , s y s t e m ,
o f t h e Länder
p r o v i d e s a way o f b y p a s s i n g c o m m u n i c a t i o n b a r r i e r s
which
w o u l d o t h e r w i s e i s o l a t e t h e p o l i c y m a k i n g b o d y o f t h e BA
from
i n f o r m a t i o n on a c t u a l
hand, t h e l o c a l a g e n c i e s
the feed-back
implementation.
On t h e o t h e r
t r yto withhold their information:
p r o c e s s does n o t always
take place.
d e c e n t r a l i s a t i o n t e n d e n c i e s become o b v i o u s .
Thus,'
- 35 -
2.4.2.
One
§tatistical_Records_as_a_Performance_Control
of the
c h a r a c t e r i s t i c s of
operations
a bureaucracy i s
a r e b a s e d on w r i t t e n d o c u m e n t s .
ment d e p a r t m e n t , t h e
labour
that
I n thé
place-
administration records
three unusual r o l e s :
1)
job-seekers
play
contact
p l a c e m e n t a g e n t s t o c l a i m unemployment b e n e f i t s . .
p r i m a r y n e e d i s money.
receives
a number:
(Every
the
Their
p e r s o n g a i n f u l l y employed
detailed information
on
the
occupation
of the claimant
is filed.)
An u n e m p l o y m e n t b e n e f i t c l a i m
c o m p r i s e s an o f f i c i a l a d m i n i s t r a t i v e a c t , w h i c h i s a l s o f i l e d
in writing.
2)
Para.
to prepare s t a t i s t i c a l
e m p l o y m e n t and
6/3,
AFG,
reports
unemployment.
c o l l e c t the
The
s t a f f of
relevant
that
'the
concerning labour
Results
t o t h e M i n i s t r y o f L a b o u r and
a g e n t s , as w e l l as
prescribes
are
t o be
Social Affairs'.
lower l e v e l
data during
itutes
u s e d as
3)
The
preparation
a method
submitted
Placement
collaborators
s e v e r a l days each month.
an o b j e c t i v e b a s i s
positions
agents'
( a u t h o r i s e d by
development of the
reports
s t a f f operations.
f o r the
the
constThey
c a l c u l a t i o n of
t h e b u d g e t ) and
records
labour
are
necessary
r a t i n g of
Landesamter
evaluated
by
p r i m a r i l y serve to analyse
market, they are
i n t e r n a l c o n t r o l mechanism.
Statistical
and
these f i g u r e s .
records
local
A b r i e f d i s c u s s i o n of
The
of a formula to r a t e the
devised
are
agencies
control follows.
has
of placement agents which i n v o l v e s the
t h e number o f r e g i s t e r e d v a c a n c i e s ,
and
the''
performances
number o f
the
number
jobseekers,
of
The
number o f p l a c e m e n t s i s r e g a r d e d by
officials
the
r e a l performance i n d i c a t o r .
equals p o s i t i v e performance e v a l u a t i o n ;
functions
aire n o t
measured
at a l l .
sent
are
placements.
as
the
a l s o u s e d as 'an
consequences of t h i s
BA
discussed
performance.
Although s t a t i s t i c a l
to the
of s t a t i s t i c a l
of. e v a l u a t i n g
has
force
r e s u l t s o f t h e s e q u a n t i t a t i v e f i g u r e s w i l l be
later.
BA
High
many
placement
counselling
Statistics
provide
- 36
-
a c c u r a t e f i g u r e s o n t h e number o f r e g i s t e r e d
and v a c a n c i e s , b u t t h e y c a n n o t
placement.
Because agents
comment on t h e q u a l i t y
know t h a t p r i o r i t y
q u a n t i t y , they are unconcerned
placement
function.
jobseekers
i s placed
w i t h the q u a l i t y
M a x i m i z i n g t h e number o f
p l a c e d o f t e n cannot
but d i m i n i s h the q u a l i t y
mediating functions.
of
jobseekers
of
the
T h i s k i n d o f c o n t r o l a l s o may
negative effect i s that
on
the
lead
to a c e r t a i n p e r f o r m a n c e - o r i e n t a t i o n of placement
Another
of
agents.
Competitive s p i r i t i s
festered.''
B l a u , who
s t u d i e d the e f f e c t of s t a t i s t i c s '
the performance
of o f f i c i a l s
2)
control:
effectively;
4)
s u p e r v i s o r s and
disadvantage:
t o improve
they
they'improve
the r e l a t i o n s
system,
B l a u ' a l s o sees
a
clients.
negative effects
c o d i f i e d , and t a b u l a t e d , and s t a t i s t i c s
local offices
Thus c a n t h e p e r f o r m a n c e
sent back to
i n computer
of the agencies
the upper l e v e l s of a d m i n i s t r a t i o n .
internally publish lists
are
i n Nürnberg. • T h e r e ,
l e v e l a r e c o m p u t e d and
and
process
of the l o c a l agencies
sent to headquarters
on t h e n a t i o n a l
seem t o
w i l l be d i s c u s s e d more e x t e n s i v e l y .
on a l l a c t i v i t i e s
Länder o f f i c e s
and
between
f i g u r e s a t t h e e x p e n s e of. t h e
f i g u r e s are c l a s s i f i e d ,
which
rank
the
print-outs.
can be c o n t r o l l e d bv
Some Länder . o f f i c e s
t h e a g e n c i e s by
per-
criteria.
I n t h e two
s u b - c h a p t e r s , two
examples demonstrate
l a b o u r a d m i n i s t r a t i o n i s d o i n g t o g u i d e and
i m p l e m e n t a t i o n o f programmes on t h e l o c a l
P.
enable
g o a l d i s p l a c e m e n t o c c u r s when o f f i c i a l s t r y
3) , t h i s p r o b l e m
c o l l e c t e d and
(1)
hierarchical
I n our a n a l y s i s o f the i m p l e m e n t a t i o n
Statistics
formance
statistics
changes i n o p e r a t i o n s q u i c k l y
I n t h e German p l a c e m e n t
(Chapter
3)
a g e n t s H o w e v e r ,
their
prevail.
1)
they f a c i l i t a t e
c o n t r o l over o p e r a t i n g o f f i c i a l s ;
superiors to i n s t i t u t e
on
i n an e m p l o y m e n t a g e n c y , shows
some p o s i t i v e e f f e c t s o f t h i s
increase productivity;
priority
Blau
(1 969) , p.
42.
what
control
level.
the
The
- 37 -
Länder o f f i c e
and
stresses
c o n t r o l s performance of the l o c a l
compliance with
legal regulations, rather
measuring r e s u l t s of p o l i c y implementation.
statistical
This
records
the
cannot c o n t r o l performance.
does e x i s t a b u r e a u c r a t i c
state offices-
of the l o c a l o f f i c e
above:
are
obviously
criteria.
c o n t r o l between
and t h e l o c a l a g e n c i e s ,
s t a f f do n o t f e e l a n y p r e s s u r e
'Nobody i n t h e Länder o f f i c e r e a l l y
doing.'
Considering
than
Control of
may be a c a u s e o f i n a d e q u a t e p e r f o r m a n c e
Although there
agencies,
that with
most
from
knows w h a t we
the exception
of stat-
i s t i c a l , checks.,, t h e r e , i s . no. . d i r e c t c o n t r o l o f t h e a g e n t s '
a c t i v i t i e s w i t h i n t h e laüour a d m i n i s t r a t i o n , t h e i n d i v i d u a l
has
.a.
c e r t a i n amount o f d i s c r e t i o n .
t o c r e a t e ' l a w s s u c h as t h e AFG w i t h
for
the operational
one
possibility
level.
only
I t i s insufficient
side
regulations
The c o n f e r e n c e s y s t e m
provides
f o r r e c i p r o c a l communication.
I n many, s t u d i e s , f r o m t h e H a w t h o r n e e x p e r i m e n t t o t h e
s t u d i e s o f C h . A g y r i s , H. S i m o n , D. K a t z / R . K a h n , s t r e s s i s
placed
upon t h e e x i s t e n c e
bureaucracy.
'ideal'
Among t h e s e ,
two s t u d i e s
c r i t i c i s e the
c o n s t r u c t i o n o f Max Weber's b u r e a u c r a c y ,
employment a g e n c i e s .
the
of informal rules within a
Francis
and Stone f o u n d t h a t .
s t r u c t u r e o f a l o c a l employment o f f i c e
bureaucratic
understood hierarchy.
The same h o l d s t r u e
w o u l d b r e a k down i f e v e r y o f f i c i a l f o l l o w e d
to the l e t t e r ,
and c o n s u l t e d
d i d not p r o v i d e
s u f f i c i e n t guidance.
initiative
(1)
P. B l a u
superiors
and w i l l i n g
The s y s t e m
a l l regulations
whenever
I t can only
R. F r a n c i s / R .
regulations
function
t o a c t on t h e i r
when n e c e s s a r y .
(1955);
f o r the
f r o m t h e BA down t o t h e
Länder o f f i c e s a n d i n t o t h e l o c a l a g e n c i e s .
the agents are able
They
a d m i n i s t r a t i o n depends on a
German a d m i n i s t r a t i o n , r e a c h i n g
if
i s based on
as w e l l as p r o f e s s i o n a l p r i n c i p l e s .
show t h a t t h e A m e r i c a n l a b o u r
clearly
analysing
Stone
(1956)
own
- 38 -
2.5.
The_Personnel_Staff_and_Career_Mode
One o f t h e c h a r a c t e r i s t i c s o f a b u r e a u c r a c y i s t h a t o f h i g h l y
r e g u l a r i s e d t r a i n i n g p r o c e d u r e s and c a r e e r
Even w i t h i n t h e formal
careers
called
structures.
promotion, system o f l o c a l
a r e o r i e n t e d t o w a r d s w h a t F. M o r s t e i n - M a r x h a s ,
'the economics o f s m a l l chances'.
The d e g r e e t o
which t r a i n i n g and p r o m o t i o n p o s s i b i l i t i e s
occupational
This
r o l e performance can only
becomes c l e a r e r i n a n a l y s i n g
process
be s p e c u l a t e d
about.
the implementation
§ize_and_Vgçatignal_Training_gf_the_Staff
BA i s o f n e c e s s i t y
responsible
a l a r g e b u r e a u c r a c y , as i t i s
f o r unemployment c o m p e n s a t i o n as w e l l as
placement, v o c a t i o n a l guidance and other
instruments.
one t h i r d b e c a u s e o f l a b o u r
During the c y c l i c a l c r i s i s
extended t o nearly
30,000.
s t a f f h a s grown s t e a d i l y d u r i n g
i n personnel;
t h e BA t o o k o v e r t h e f u n c t i o n s
family
When
allow-
t o expand i t s s t a f f
The b u d g e t p l a n o f 19 76
applies
t o 51,757
Tv/o t h i r d s o f t h e t o t a l s t a f f w o r k i n t h e l o c a l
(35,697 e m p l o y e e s ) .
L e g a l l y , t h e BA i s c o m p o s e d o f t w e n t y - f i v e
percent
and s e v e n t y - f i v p e r cent employees.
are
a l s o 4,000 t r a i n e e s .
are
ranked according
servants,
the s i z e of
the past years.
of granting
a n c e s , t h e o r g a n i s a t i o n was f o r c e d
officials
again
The amendment o f t h e AFG d i d
the
agencies
stream-lining.
o f 1 9 6 6 / 6 7 , t h e s t a f f was
lead t o a rapid increase
employees.
market
p e r s o n n e l was c u t down
administration
not
enormously.
labour
When t h e BA was f o u n d e d , i t h a d a s t a f f o f
3 3 , 0 0 0 . I n t h e course o f ' t h e t e n y e a r s ,
by
influence
(Chapter 3 ) .
2.5.1.
The
offices,
E m p l o y e e s , as w e l l a s o f f i c i a l s ,
to the salary levels of a l l public
s t a t e d i n t h e FRG.
'upper' and ' h i g h e r '
There
ranks
The m a i n g r o u p s a r e 'medium',
( m i t t l e r e r , gehobener und
-
höherer D i e n s t ) .
training
are
and
t h e work l o c a t i o n .
l o c a l labour
in
-
D e c i s i v e here are
o f medium r a n k .
office
39
office
The
education,
Half of the
distribution
collaborators
of the
i s shown i n t h i s
vocational
staff
of
a
i l l u s t r a t i o n of
the
Kiel:
payment &
adnùnistration
job
placement
job
counselling
2 medical
., .
doctors
,._ .
director
1
13
2
upper l e v e l
29
17
20
66
medium l e v e l
50
28
45
123
TOTAL
80
58
67
208
higher
level
The
o
19
t a b l e shows t h a t s i x t y
t o t h e medium l e v e l .
administrations
per
I f we.
s u c h .as t h e
employment a d m i n i s t r a t i o n s
medium l e v e l p e r s o n n e l .
cent of the
more t h a n t h i r t y p e r
E x a m i n a t i o n of
the
revenue-offices,
I n most o f the
total
distribution
other
college
from the very
The
between the
extravagant',
whereas they themselves are
underdogs of the
As
with, a l l bureaucracies,
i n g many e l d e r l y
persons;
German
for
also
upper
difference in salaries
vocational counsellors
'the
of
account
f o r secondary
j o b - c o u n s e l l i n g department.
as
the
staff.
agents regard
young people.
local
. graduates are ranked at the h i g h e s t
start.
belong
that
portion
not
placement agents are
accounts f o r poor co-operation
d e p a r t m e n t and
see
in a'local office
medium l e v e l , w h e r e a s j o b - c o u n s e l l o r s
and
we
h a v e a much h i g h e r
cent of the
t h a t most o f t h e
local staff
c o n t r a s t t h i s . w i t h comparable
a d m i n i s t r a t i o n s , medium l e v e l p o s i t i o n s do
reveals
TOTAL
as
and
school
level
partially
job-placement
Many p l a c e m e n t
'intellectually
often
described
office'.
t h e BA
has
i t is
very
Reasons f o r t h i s
can
to deal with
be
difficult
to
seen i n the
employattract
minimal
- 40 -
salary
a n d b a d image o f t h i s b u r e a u c r a c y . . M e a n w h i l e , t h e
BA h a s s u c c e e d e d
ing
the s t a f f :
younger than
In
i n i m p r o v i n g t h e a g e - s t r u c t u r e by e n l a r g t o d a y , more t h a n h a l f o f t h e p e r s o n n e l a r e
thirty-nine.
t h e p u b l i c s e r v i c e o f t h e FRG, many g o v e r n m e n t a l
h a v e t h e i r own i n t e r n a l
training.
T h o s e t r a i n e d f o r t h e medium l e v e l as c i v i l
generally
branches
come f r o m s e c o n d a r y
schools.
leted three years of t r a i n i n g ,
servants
A f t e r having
comp-
they take the f i r s t
q u a l i f y i n g examination. . Higher s e r v i c e also r e q u i r e s a
three-year preparatory service,
inspector's examination.
t r a i n i n g process
completed
through
an
The g o v e r n m e n t p l a n s t o t u r n t h i s
i n t o a p r o f e s s i o n a l t e c h n i c a l school.. Those
who s t a r t i n a medium s e r v i c e c a r e e r may t a k e a q u a l i f y i n g
e x a m i n a t i o n a f t e r t w o y e a r s o f e m p l o y m e n t i n t h e BA i f t h e y
are over t w e n t y - f i v e .
is
T h i s second
qualifying
examination
s i m i l a r t o t h e i n s p e c t o r ' s e x a m i n a t i o n , and p e r m i t s an
e m p l o y e e t o assume ' o f f i c i a l
status'.
E m p l o y e e s w i s h i n g t o become p l a c e m e n t
agents
g e n e r a l l y do s o a f t e r h a v i n g c o m p l e t e d
and c o u n s e l l o r s
professional
o u t s i d e t h e a d m i n i s t r a t i o n , and undergo t h e second
ing
examination a f t e r having completed
years of on-the-job
training.
A professional technical school,
Beratungskrafte der BA), also e x i s t s .
This
(Akademie f u r
institution
' V e r w a l t u n g s w i r t e ' i n f o u r terms o f s t u d y and one
p r a c t i c a l year; i t s graduates
ment a n d c o n s u l t i n g p o s i t i o n s .
are appointed to job placeStill
i n the planning
phase i s a p r o v i s i o n n e c e s s i t a t i n g a t e c h n i c a l
diploma
qualify-
two a n d a q u a r t e r
t h e Academy f o r C o n s u l t i n g Manpower o f t h e BA
educates
training
school
f o r those a s p i r i n g t o upper rank p o s i t i o n s .
l e v e l p e r s o n n e l w i t h u n i v e r s i t y degrees
attend a
Higher
one-year
c o u r s e , i n c l u d i n g one t e r m a t t h e A d m i n i s t r a t i o n S c h o o l a t
Speyer
a n d s e v e r a l c o u r s e s a t t h e B A - r u n Academy f o r
Administration.
A f t e r having f i n i s h e d these
courses,
c a n d i d a t e s e i t h e r become d e p a r t m e n t h e a d s o r c o n s u l t a n t s
for secondary school and c o l l e a e graduates. As i n many bureaucracies, the
-
top p o s i t i o n s are
filled
by
-
41
outsiders, qualified
professional experience outside
o f them a r e
positions.
often
up
through the
"Relations between
strained.
On
the
for managerial
administration reach
'outsiders'
other
and
who
these
'insiders'
hand, o u t s i d e r s
thus b e t t e r
are
prepared
functions.
degree of
f u n c t i o n a l d i v i s i o n and
v a r i e t y of t r a i n i n g p o s s i b i l i t i e s
s t r u c t u r e of
Most
Sometimes o f f i c i a l s
l e s s b u r e a u c r a t i c a l l y o r i e n t e d and
A high
administration.
l a w y e r s or. e c o n o m i s t s .
cnake t h e i r way
are
the
by
the
characteristic
labour
a
corresponding
parallel
administration.
i s that a l l aspirants
the
The
fragmented
common .
p a r t i c i p a t e i n on-the-
j o b t r a i n i n g . Evan the. p r o f e s s i o n a l t e c h n i c a l school f o r c o u n s e l l o r s
-
i s run by the BA: i t s e l f ;• Values. and r e g u l a t i o n s w h i c h a r e
o f f i c i a l by
during
the
labour
a d m i n i s t r a t i o n can
a period of v o c a t i o n a l s o c i a l i s a t i o n .
h a n d , f u t u r e p l a c e m e n t a g e n t s and
vocational t r a i n i n g before
ation.
The
t y p e of
their clients,
On
counsellors
entering
the
b a s i c t r a i n i n g an
influences.the
As
t h u s be
made
mediated
the
other
need
labour
administrr
a s p i r a n t has
had
agents' o r i e n t a t i o n v i s - a - v i s
i . e . r u l e - o r i e n t a t i o n or c l i e n t - o r i e n t a t i o n .
p l a c e m e n t a g e n c i e s a r e d i v i d e d i n t o b l u e - c o l l a r and
collar
s e c t o r s , agents are
always confronted
homogeneous g r o u p o f c l i e n t s .
a l s o i n f l u e n c e d by
the
Their
a t t i t u d e and
with
white-
a
o r i e n t a t i o n i s thus
b e h a v i o u r of
their
clients.
The
BA
i s a l s o well-known f o r i t s extensive
i n g programmes.
percent of the
Some y e a r s ago,
entire staff
t r a i n i n g courses.
As
a t any
took part
further
given
i n some k i n d
mentioned i n p u b l i c a t i o n s of
BA,
f u r t h e r t r a i n i n g has
Due
to the
receded i n t o the
s m a l l number o f a g e n t s who
s t a f f members f o r f u r t h e r t r a i n i n g .
must cope
BA
solves
and
guidelines.
The
ten
of
the
background.
a l a r g e number o f u n e m p l o y e d , i t i s i m p o s s i b l e
the
time
train-
with
to
question
t h i s p r o b l e m o f e x p l a i n i n g new
release
is
how
regulations
- 42 -
2.5.2.
The
The_Wa2§_and_Promotion_SYstem
personnel
o f t h e BA i s p a i d i n a c c o r d a n c e w i t h t h e
public service regulations.
corresponding
preceding
C e r t a i n entrance
t o the d i f f e r e n t ranks
sub-chapter,
are fixed
fees-
described i nthe
a c c o r d i n g t o TVBA
( c o l l e c t i v e b a r g a i n i n g agreements f o r employees o f t h e B A ) .
E v e n members o f t h e same h i e r a r c h i c a l
l o c a l agency have d i f f e r e n t s a l a r i e s :
f o r example, a r e p a i d a c c o r d i n g
the earnings
counsellors
of a foreign correspondent),
f o rhigh-school
Payment c l a s s e s a l s o v a r y
agents,
graduates
whereas v o c a t i o n a l
a r e p a i d as a c a d e m i c s .
t h i s payment i n e q u i t y .
according
t o t h e s i z e o f an
I n m o s t s m a l l a n d medium s i z e d o f f i c e s , t h e
directors
are paid according
a few l a r g e o f f i c e s
t o A16.
placement
t o TVBA 5b ( e q u i v a l e n t t o
Placement agents o f t e n c r i t i c i s e
office.
l e v e l w i t h i n one
I n both
t o A15.
There a r e , however,
i n which d i r e c t o r s are p a i d
according
o f t h e o f f i c e s we v i s i t e d , A15 p o s i t i o n s
were t h e h i g h e s t .
T h i s s a l a r y seems r a t h e r l o w when
compared t o o t h e r a d m i n i s t r a t i o n s :
the F r e i b u r g labour o f f i c e
the director of
( w i t h 400 e m p l o y e e s ) i s p a i d
a c c o r d i n g t o A15, w h i l e t h e d i r e c t o r o f t h e county r e v e n u e o f f i c e , w i t h 80 e m p l o y e e s , h o l d s
The
ranking of the directors'
all
subordinate
positions.
p o s i t i o n has an e f f e c t on
In the l a r g e r agencies, the
heads o f t h e f o u r departments n o r m a l l y
corresponding
t o A13 a n d A 1 4 .
small o f f i c e s are less a t t r a c t i v e ,
mobile
The
enough t o a p p l y
criteria
receive
t h e s t a f f here u s u a l l y
o r o f e m p l o y e e s who a r e n o t
f o ra better
position.
performance and
A placement agent beginning
a 5b r a n k i n g c a n a p p l y
every-
Because s a l a r i e s i n
f o r promotion are s e n i o r i t y ,
job d e s c r i p t i o n .
salaries
T h i s e x p l a i n s why
body wants t o work i n b i g o f f i c e s .
consists e i t h e r of beginners
an A 1 6 • p o s i t i o n .
with
f o r a 4a p o s i t i o n a f t e r he h a s
w o r k e d two a n d a h a l f y e a r s .
Within the o f f i c e s ,
inexplic-
- 43 -
a b l y d i f f e r e n t s a l a r y l e v e l s a r e a c c e p t e d as n o r m a l :
placement
o f w h i t e - c o l l a r workers
important than placement
i s c o n s i d e r e d more
of b l u e - c o l l a r workers.
Place-
ment o f t h e d i s a b l e d a l s o r e c e i v e s a h i g h e r r a t i n g .
If
c l i e n t s with a u n i v e r s i t y education comprise a t l e a s t
fifty
per cent o f a l l j o b s e e k e r s , t h e placement
r a n k i n g c a n be c o r r e s p o n d i n g l y r a i s e d .
importance o f s t a t i s t i c s :
luation
lity
T h i s shows t h e
t h e y s e r v e as a b a s i s o f eva-
f o r promotion o f a placement
f o r such p o s i t i o n a l m o b i l i t y
G e n e r a l l y s p e a k i n g , t h e chances
o f f i c e are limited.
agents'
is,
agent.
The p o s s i b i -
however,
limited.
o f p r o m o t i o n w i t h i n an
Upon h a v i n g p a s s e d t h e e n t r a n c e
e x a m i n a t i o n , he c a n a f t e r s e v e r a l y e a r s become a m a i n
placement
agent.
Each placement o f f i c e has one main
placement
agent and one s u b o r d i n a t e one.
The n e x t p r o -
m o t i o n w o u l d be t o t h e p o s i t i o n o f g r o u p h e a d ,
seldom o c c u r s , because
positions.
departments
which
o n l y o f f e r two s u c h
A n o t h e r p o s s i b i l i t y w o u l d be a t r a n s f e r . t o
a Land Labour O f f i c e , which i s a l s o a c o m p l i c a t e d p r o c e s s .
The
chances
a l s o low.
o f a promotion f o r a c o u n s e l l i n g agent a r e
I n g e n e r a l , however, t h e y r e c e i v e a h i g h e r
entrance c l a s s i f i c a t i o n than job-placing agents.
chances
limited.
o f becoming
a department
head a r e even
v
'work t h e i r way up'
'.
f r o m among d e p a r t m e n t
'incentives'
Directors
rarely
F o r t h e most p a r t t h e y a r e r e -
the l a b o u r a d m i n i s t r a t i o n from
The
more
Top p o s i t i o n s a r e a l m o s t i n v a r i a b l y o c c u p i e d
by u n i v e r s i t y g r a d u a t e s f r o m o u t s i d e .
(1 ) '
cruited
The
h e a d s , who t e n d t o e n t e r
outside.
o f t h e wage s y s t e m a n d t h e c a r e e r
p a t t e r n s o f t h e l a b o u r a d m i n i s t r a t i o n seem t o be
relatively
ineffective.
level
E m p l o y e e s on t h e same h i e r a r c h i c a l
r e c e i v e d i f f e r e n t p a y , and chances
o f promotion a r e low.
(1) B e t w e e n 1972 a n d 1976, n o t more t h a n 74 p e r s o n s w e r e
promoted from t h e upper t o t h e h i g h e r l e v e l ; w i t h i n
t h e e n t i r e BA.
- 44 -
Low c a r e e r e x p e c t a t i o n s , c o m b i n e d w i t h l o w e a r n i n g s , may
lead to bureaucratic thinking.
is
This type of o r i e n t a t i o n
f u r t h e r s t r e n g t h e n e d by m i s p l a c e d p e r f o r m a n c e
2.6.
criteria.
The_Conce2t_of_the_^Selbstverwaltun2^_as_an
I f we l o o k a t t h e c h a p t e r i n t h e AFG
entitled
1
'Bundesanstalt
describes only
( p a r a s . 189-214)
f u r A r b e i t , we s e e t h a t i t
.. • • - t h e s t r u c t u r e
'administrative boards',
and t a s k s o f t h e
w i t h o u t even m e n t i o n i n g t h e
o r g a n i s a t i o n a l s t r u c t u r e o f t h e e x e c u t i v e body.
verwaltung'
i s regarded
as t h e m a i n s t r u c t u r a l
'Selbstprinciple
by t h e l a b o u r a d m i n i s t r a t i o n .
As
shown i n t h e g r a p h
organised interests
federal levels.
i n chapter
2.2., c o - o p e r a t i o n
e x i s t s on t h e l o c a l ,
between
r e g i o n a l and
The b o a r d s c o n s i s t o f e m p l o y e r s ,
trade
u n i o n i s t s , a n d members o f t h e p u b l i c a d m i n i s t r a t i o n . The
' a d m i n i s t r a t i v e boards'
of the federal l e v e l consist of
t h i r t y - n i n e members, o n t h e L a n d l e v e l o f b e t w e e n
and
twenty-seven
members, a n d on t h e l o c a l
n i n e and twenty-one.
According to para.
economic s e c t o r s , o c c u p a t i o n a l groups,
members a n d t h e i r s u b s t i t u t e s
unions, the employers'
organisations
of the l o c a l
authorities,
by t h e t r a d e
levels.
Members
who i s i n o f f i c e
conferences
when
Two t o f i v e m e e t i n g s a r e h e l d w i t h i n
o f f i c e s every
The
and c o r r e s p o n d i n g
The c h a i r m a n ,
f o r one y e a r , h a s t h e r i g h t t o c a l l
boards'
a n d women.
a s s o c i a t i o n s , t h e Government, t o p
serve a term o f s i x y e a r s .
The
(b) AFG, f o c u s
regional
are suggested
o r g a n i s a t i o n s o f t h e n a t i o n a l and l o c a l
necessary.
l e v e l o f between
19 2
i s p l a c e d on a d e q u a t e r e p r e s e n t a t i o n o f
fifteen
local
year.
main f u n c t i o n s a r e t o f u r t h e r c i t i z e n ,
partici-
p a t i o n i n the performance o f s o c i a l insurance s e r v i c e s , a
p r i n c i p l e d a t i n g back t o the n i n e t e e n t h century.
of the 'Selbstverwaltung' i s t o guarantee
'The t a s k
close relations
- 45 -
b e t w e e n t h e o f f i c e s o f t h e BA a n d t h e r e p r e s e n t a t i v e s
of
s o c i a l a n d e c o n o m i c s e c t o r s , and- t o e n a b l e t h e s o c i a l
groups
t o shape t h e t a s k s
o f t h e BA t o c o r r e s p o n d t o t h e i n t e r e s t s
o f e m p l o y e r s , employees and t h e g e n e r a l
'Selbstverwaltung'
public'
^ .
r e f e r s t o an a d m i n i s t r a t i v e b o d y w h i c h
i s detached from governmental a d m i n i s t r a t i o n , and performs
p u b l i c s e r v i c e s autonomously.
have
A l l three
'Selbstverwaltungsausschüsse',
responsibilities
reveals
hierarchical levels.
level,
great
but a comparison o f
d i f f e r e n c e s between t h e three
The ' g o v e r n i n g b o a r d ' o n t h e c e n t r a l
functioning l i k e a parliament,
amend b y - l a w s , w h i c h a r e t h e n s u b j e c t
(2)
the M i n i s t r y o f Labour
.
on d e l i m i t a t i o n o f • l a b o u r
advisory
functions
president.
has t h e r i g h t t o
t o a u t h o r i s a t i o n by
I t a l s o determines t h e budget
market d i s t r i c t s ,
The management b o a r d - t h e s e c o n d m o s t
body on t h e c e n t r a l l e v e l -
on t h e e x e c u t i v e
level.
I t i s responsible f o r
s e t t i n g up t h e b u d g e t , "and a d m i n i s t e r i n g
BA.
f o r t h e BA's p e r s o n n e l p o l i c y
controls the recruitment
giving
•'
o f d i r e c t o r s on t h e l o c a l
level,
tripartite
offices.
a d m i n i s t r a t i v e b o a r d s o n t h e Länder
have a l m o s t e x c l u s i v e l y c o u n s e l l i n g f u n c t i o n s .
budget proposals
The
i n that
i t a c e r t a i n amount o f i n f l u e n c e i n t h e
management o f t h e l o c a l
The
t h e funds o f t h e
T h e management b o a r d i s t h e s u p r e m e a d m i n i s t r a t i o n o f
t h e BA, r e s p o n s i b l e
it
and i t has
c o n c e r n i n g t h e n o m i n a t i o n o f t h e BA's
important self-governing
functions
hierarchical levels
and d e a l w i t h
general
a d m i n i s t r a t i v e b o a r d s on t h e l o c a l
(1969) :
Die Selbstverwaltung
personnel
level
T h e y make
matters.
l e v e l determine the
(1)
BA
der Bundesanstalt,
p.6.
(2)
The c o n c r e t e s h a p i n g o f t h e ' a d m i n i s t r a t i o n b o a r d s '
i s a point of controversy throughout the h i s t o r y of the
BA.
I n the e a r l y twenties, the a d m i n i s t r a t i v e boards
were under t h e c h a i r m a n s h i p o f t h e d i r e c t o r s r e s p .
presidents of the administrations.
I n 19 33 t h e b o a r d s
w e r e d i s m i s s e d , a n d i n 19 52 r e i n s t a l l e d .
P a r a . 1 9 1 , AFG
e x p r e s s e s c e r t a i n l i m i t a t i o n s f o r t h e b o a r d s and
s t r e n g t h e n s t h e p o s i t i o n o f t h e government:
a l l by-laws
and r e g u l a t i o n s now r e q u i r e e n d o r s e m e n t o f t h e M i n i s t e r
of L a b o u r and S o c i a l A f f a i r s .
-
agency p o l i c y o n l y
over the
-
46
indirectly.
They have a c e r t a i n c o n t r o l
implementation functions
of
the
administration.
They shape t h e s e f u n c t i o n s - a u t o n o m o u s l y .
consulting functions
their
attempts to i n f l u e n c e the
d e p e n d on
Local
and
level
representatives
recruitment
g o v e r n i n g and
formulate
on
limited
executive
regulations
and
t h e L a n d l e v e l , so
according
ever,
to a s p e c i f i c
a d m i n i s t r a t i o n i n any
and
b o a r d s on
The
of the
The
local
level.
central
not
bind
i n the
directors:
not want i t t o .
the
state
final
self-governing
clarified
concrete
shape p o l i c y
of the
i n t h a t t h e y make t h e
local office
level
l o c a l b o a r d , how-
president
' i n my
house'.'
have
decisions.
bodies
and
following state-
'The
board
I f I do
not
cannot
agree
Another d i r e c t o r stated:
b o a r d t r i e s t o k e e p a s t r i c t eye
them t o , t h e y c a n n o t l o o k
j u d g e on
ranking
the b a s i s
on
us, but
'behind the
of performance.'
persons i n the
local office,
determination
for local
labour
i f we
scenes';
According
the
s a u s s c h u s s ' i s a r e l a t i v e l y weak b o d y .
The
'Selbst-
with
' r e s o l u t i o n s ' , I l e t t h e m know t h a t I d e c i d e w h a t
g o e s on
policy
term
local administration
a d m i n i s t r a t i o n are
their
the
f u n c t i o n s w h i c h do
the
i f I do
the
matters,
s t a t u t e s , w h i c h a r e made
power r e l a t i o n s b e t w e e n t h e
intervene
budetary
m e a n i n g on
The
m e n t s o f two
agencies
boards.
However, t h e
situation.
way.
the d i r c t o r
corrective functions
on
having
matters,
t h a t each l o c a l body can
o n l y have a d v i s o r y
office
local
advise
of d i r e c t o r s .
only
personnel
p o l i c y of the
the w i l l i n g n e s s of the
v e r w a l t u n g ' has
The
i n b u d g e t and
Beside,
'The
do
they
not
want
cannot
to high-
.
'SelbstverwaltungT h e i r power i n
offices
is
limited.
m i n u t e s show t h a t t h e b o a r d i s a l m o s t e x c l u s i v e l y o c c u -
pied with personnel
matters.
- 47 The BA's own o f f i c i a l
s t a t e m e n t r u n s as f o l l o w s :
'The
a d m i n i s t r a t i v e b o a r d s must a d e q u a t e l y p a r t i c i p a t e i n
nominations, dismissals or the r e t i r i n g of o f f i c i a l s
the
upper and h i g h e r
upgrading.
the
levels,
as w e l l a s i n p l a c e m e n t a n d
The a d m i n i s t r a t i v e b o d i e s m u s t a l s o
prepare
b u d g e t s and p a r t i c i p a t e i n t h e a p p o i n t m e n t o f
office directors.
discretion
matters,
not
A p a r t from the f a c t t h a t
i s a matter of high
practically
importance
budgetary
i n t h a t i t determines
the a c t i v i t i e s
o f the a d m i n i s t r a t i v e boards are
legally
assigned
to
T h u s , we a t t e m p t s u c c e s s f u l i m p l e m e n t a t i o n i n
placement, c o u n s e l l i n g , promotion of v o c a t i o n a l
and
labour
a l l t e c h n i c a l , o r g a n i s a t i o n a l and p e r s o n n e l
r e s t r i c t e d . t o the i n d i v i d u a l tasks
them.
of
regarding
training,
s t r u c t u r a l improvement o f t h e d i s t r i c t s . '
^
The a d m i n i s t r a t i v e b o a r d s h a v e t h e p o s s i b i l i t y o f e x e r t i n g
a much g r e a t e r
i n f l u e n c e on t h e employment a d m i n i s t r a t i o n
than they i n a c t u a l i t y exert.
M o s t o f t h e members o f t h e ' S e l b s t v e r w a l t u n g s a u s s c h u s s e n '
we i n t e r v i e w e d
described
a rather resigned
their
fashion:
actions
' I t i s not possible to
r e a l i s e e f f e c t i v e co-determination;
a
'group o f a c c l a m a t i o n ' . '
and
i n these boards i n
t h e b o a r d 'can b e c a l l e d
C o l l a b o r a t i o n between
e m p l o y e e s i n t h e s e g r o u p s seems t o be' e x t e n s i v e :
'Ideology hardly
comes i n t o p l a y ' .
seems t o e x i s t .
I n s p i t e of the f a c t that these
cannot p o s s i b l y represent
the
A social
the opinions
partnership
a t t i t u d e seems
The b o a r d s f u n c t i o n i s t o f a c i l i t a t e
information
concerning the labour
comments
o f e a c h member o f
l o c a l a d m i n i s t r a t i v e committees, t h i s
to p r e v a i l .
of
employers
an exchange
m a r k e t s i t u a t i o n and
the p r o b l e m s o f and between e m p l o y e r s and employees.
the other
hand, t h e aim o f t h e l o c a l o f f i c e s i s t o d e l i v e r
information
o n t h e AFG a n d t h e i r
to l e g i t i m i z e t h e i r a c t i v i t i e s .
this
On
information
implementation i n order
I f b o a r d members
to t h e i r organized
transmit
i n t e r e s t groups, the
r e s u l t i n g d i f f u s i o n may h a v e g o o d e f f e c t s f o r t h e l o c a l
offices.
(1)
T h i s -phenomenon w i l l
l a t e r be d i s c u s s e d
BA ( 1 9 6 9 ) :
Die Selbstverwaltung
für A r b e i t , p. 19 f .
more deeply.
i n der Bundesanstalt
The
48
f o l l o w i n g i s a summary o f
the
functions
of the
Selbst-
verwaltung:
Although"our knowledge or the
s t r a t i v e b o a r d s on
the
the
f u n c t i o n i n g of the
central level
admini-
i s e m p i r i c a l l y weak,
G o v e r n m e n t s t r e n g t h e n e d i t s p o s i t i o n vis-ä-vis
Selbstverwaltungsausschüssen a f t e r t h e
AFG.
'Even i f t h e
the
'Selbstverwaltung'
f a c t remains t h a t the
amendment
of
the
i s formally kept
has
The
i n f l u e n t i a l power o f t h e M i n i s t r y i s i n c o n s i s t e n t
the
notion
On
the
local
instrument of the
Social Affairs,
(1)
and
of a
'self-governing
level,
real
to -advisory
functions
questions.
The
co-determination
formal
the
is
d e g r e e t o w h i c h t h e members
the
local
hand, the
l e v e l may
their
l e v e l do
In t h i s
connection,
budget
labour
market
a group of
not
seem t o h a v e
the
labour
discuss
can
the
group i n t e r e s t s .
administrative staff
p r a c t i c e an
and
local
representatives
J u s t as
a d m i n i s t r a t i o n to t h e i r groups.
how
On
multipliers'.
h o w e v e r , i s t h a t t h e members c a r r y i n f o r m a t i o n
the
the
policy.
'information
i t i s important that
expre'ss t h e i r o r g a n i s e d
policyi
activities.
' a d m i n i s t r a t i v e b o a r d s ' on
f u n c t i o n as
with
influence
power n e c e s s a r y t o d e t e r m i n e t h e i r own
other
body'
restricted
i n p e r s o n n e l m a t t e r s and
programmes i s d e p e n d e n t on
b o a r d s on
executive
body'.
r e g i o n a l l y adequate implementation of
The
up,
Bundesanstalt i s largely
i n t e g r a t e d i n t o t h e M i n i s t r y o f L a b o u r and
t h u s become an
the
important,
concerning
L a t e r , we
shall
representatives
' i n t e g r a t i v e e m p l o y m e n t ' p o l i c y ' on
the
local
level.
2.7.
The_ImDlementation_Structure_of_the_German_Labour
B e f o r e we
t r y t o sum
the
formal
the
reader should
be
empirical results dealing
not
t a t i o n s t r u c t u r e was
look
a t the
German l a b o u r
given
information
have been a c q u a i n t e d .
represented
by
our
on
question
a
The
G.
Böhme
system
implemen-
t h e o r e t i c a l approaches d e a l i n g
( 1 9 7 7 ) , p.
284.
of
organisational
i m p l e m e n t a t i o n p r o b l e m s shows t h a t a l l r e s e a r c h e r s
(1)
with
administration,
reminded of the u n d e r l y i n g
r e a d e r was
w i t h w h i c h he may
A
the
o r g a n i s a t i o n of the
c h a p t e r 2. The
chart.
up
with
differ-
e n t i a t e between the
t h e s e two
implies
the
and
the
i n connection with
E m p i r i c a l d a t a on how
the
In
the
of
two
reality,
closely related.
organisational structure
When d i s c u s s e d
procedure.
are
the
existence
independent a n a l y t i c a l categories.
aspects of
gap
This
u n i t s of a n a l y s i s
influence
-
implementation structure
implementation process.
different,
49
Many
o n l y make s e n s e
implementation
organisational
variables
implementation procedure i s hard to f i n d .
A
e x i s t s between o r g a n i s a t i o n a l a n a l y s e s c a r r i e d out
organisational
s o c i o l o g i s t s and
a n a l y s e s c a r r i e d t h r o u g h by
This
gap
manifests i t s e l f
C h a p t e r 2)
of the
implementation
most of our
r e a d e r s do
i n the
i n the
not
o u t l i n e seems
separation
1)
The
2)
the
labour
three
l e v e l s , the
p r i n c i p l e of
unemployment a f t e r the
labour
still
of
the
labour
central
Thus,
the
i n s u r a n c e and
social
works out
i s a c e n t r a l i s e d body
f u n c t i o n s , but
regard
highly
a
to executive
formalized
w h i c h m u s t t h e n be
market problems.
than
system.
administration
with
service
administration
image o f a c o n t r o l l i n g body r a t h e r
- organisation
labour
War,
created.
p l a c e m e n t ) i n t o one
to l e g i s l a t i v e
guidelines
twenties,
Second World
' d o l e a g e n c y ' was
i n t e g r a t i o n of s o c i a l
BA
the
e x i s t today.
the
administration.
social service delivery
The
on
up
self-government,
of the
regard
a
of time: a h i e r -
activity
The
the
institution
u n e m p l o y m e n t b e n e f i t became t h e
created
5)
period
economical recession
f u n c t i o n s (such as
4)
i s an
granting
The
on
have i n f l u e n c e
administration
n e g a t i v e image o f a
3)
As
a t t e m p t t o sum
a multi-functional organisation
high
actual
administration,
H e r e , we
developed i n a long
Because of the
and
the
in
process:
w h i c h has
and
and
have enough i n f o r m a t i o n
necessary.
German l a b o u r
a r c h y on
(discussed
following chapters).
t h o s e r e s u l t s o f C h a p t e r 2, w h i c h may
implementation
and
implementation-researchers.
o r g a n i s a t i o n a l s t r u c t u r e of
basic
social psychologists,
organisational structure,
(discussed
by
with
decentralised
functions.
and
adapted to
standardized
regional
a
- 50 -
6)
The Länder o f f i c e s
they
seem t o be i n a weak
position;
h a v e no l e g i s l a t i v e p o w e r a n d few
functions.
The g r e a t e r
local office
the weaker
executive
t h e d i s t a n c e between
and t h e c o r r e s p o n d i n g
Länder
a
office,
t h e i n f l u e n t i a l power o f t h e s u p e r i o r
a d m i n i s t r a t i o n seems t o b e .
7)
The
l o c a l agency
i s a m u l t i - f u n c t i o n a l body.
seen i n i t s complex s t r u c t u r e .
consist of four h i e r a r c h i c a l
a n d a l a r g e number-.of
8)
The
core
of a l o c a l
The
local
This i s
offices
l e v e l s , many
sub-units
specialisedpositions.
labour o f f i c e
i s the placement
d e p a r t m e n t , i n w h i c h m o s t o f t h e programmes a r e
c a r r i e d out.
This
organisational
9)
sub-department
i s a multi-functional
unit..
B a s e d on t h e p r i n c i p l e o f t h e a d a p t a b i l i t y o f
lations
to local
agencies
labour market needs, the
local
have a h i g h degree o f r e g u l a t o r y
a r y power.
each day-to-day d e c i s i o n .
The
routine tasks
so t h a t h i s m a i n
function i s motivating
department
t o the placement agents
the
the organisations' substantive
He a l s o h a s t h e f u n c t i o n o f h o l d i n g c l o s e
staff
goals.
relations
t o e m p l o y e r s and r e l e v a n t a c t o r s on t h e l o c a l
As o u t s i d e c o n t a c t s
p l a y an i m p o r t a n t
d e p a r t m e n t l e a d e r c a n be r e g a r d e d
important
10)
Eesides
position in a local
w r i t t e n proposals
the upper l e v e l s ,
11)
role,
level.
the
as t h e most
labour
office.
and r e g u l a t i o n s i s s u e d
the conference
of i n f o r m a t i o n .
L o c a l agencies
their
The
t r y to circumvent
i n order
to maintain
e v a l u a t i o n of agents'
basis of s t a t i s t i c s ,
from
system
g u a r a n t e e s an a d d i t i o n a l e x c h a n g e
functions
span
cannot
leader delegates
to achieve
discretion-
As t h e d e p a r t m e n t l e a d e r h a s a w i d e
o f c o n t r o l on d i f f e r e n t o p e r a t i o n s , he
supervise
regu-
their
feedback
independence.
performance occurs
not through q u a l i t a t i v e
on t h e
- 51
evaluation.
-
Q u a n t i t a t i v e out-put
strengthened,
orientation i s
which' impedes the i m p l e m e n t a t i o n
of
social service functions..
12)
W o r k i n g c o n d i t i o n s i n t h e German l a b o u r a d m i n i s t r a tion
are i n f e r i o r
to other p u b l i c s e r v i c e sectors:
s a l a r i e s a r e l o w and
tic
behaviour
promotions r a r e .
and ways o f t h o u g h t
Bureaucra-
are
thus
strengthened.
13)
Self-governing bodies
to
ing
t h e German l a b o u r a d m i n i s t r a t i o n .
bodies
on
the l o c a l
f u n c t i o n s , and
can
The
The
main focus of our study
vital
Self-govern-
l e v e l have o n l y
seldom take
3.
advisory
action.
Labour • A d m i n i s t r a t i o n i n A c t i o n
implementation
during times
the
a r e c o n s i d e r e d t o be
process
i s on a n a l y s i s . o f t h e
of labour market p o l i c y
o f h i g h unemployment.
As
programmes
shown i n C h a p t e r
l a b o u r a d m i n i s t r a t i o n i s c l o s e l y bound
by
1,
legal,
regulations.
The
l e g a l system a l l o w s f o r open programming, w h i c h
those
to
responsible f o r implementation
t o a d a p t programmes
the dynamic s t r u c t u r e o f the l a b o u r market.
offices
helps
implement the v a r i o u s procedures
The
labour
according to
the
k i n d o f d i s c r e p a n c y between s u p p l y and
demand.
Thus,
the
implementation
i s not a f i x e d
and
of labour market p o l i c y
definable function.
A n a l y s i s of the implementation
presupposes the researcher's
p r o b l e m s , and
f a m i l i a r i t y w i t h labour
labour o f f i c e r e a c t i o n s t o then/"^ .
the c o n s t r a i n t s of a mismatch between supply
and
p a r t i c u l a r patterns of a d m i n i s t r a t i v e behaviour
likely
(1)
process
to appear than i n times
market
Within
demand
a r e more
of a well-balanced
labour
See A p p e n d i x I:- E c o n o m i c S t r u c t u r e a n d U n e m p l o y m e n t
P r o b l e m s i n Two S e l e c t e d L a b o u r M a r k e t R e g i o n s .
- 52 -
market.
The q u a l i t y
and q u a n t i t y o f job-demands and j o b -
o f f e r s o b v i o u s l y determine t h e labour a d m i n i s t r a t i o n ' s p o s s i b l e
courses o f a c t i o n .
The r e s e a r c h q u e s t i o n
i s how t h e l a b o u r
a d m i n i s t r a t i o n cope w i t h i t s problems w i t h i n t h e l e g a l
in
terms o f h i g h unemployment.
frame
Implementation o f labour
market p o l i c y depends on i n f o r m a t i o n s c o l l e c t e d by t h e s t a f f
of a l o c a l
labour
office.
D e c i s i o n s a r e made b o t h
on t h e b a s i s o f l e g a l l y d e f i n e d
and more s u b j e c t i v e c r i t e r i a .
perceive t h e i r problems;
making c r i t e r i a ;
in
and
how do t h e y
employees
define their decision-
a n d how do t h e y . d e v e l o p
the implementation
specific strategies
o f d i f f e r e n t programmes?
d i v e r s i t y of the information gathered
necessary-for
The
How do l a b o u r o f f i c e
data,
The q u a l i t y
i s one r e q u i s i t e ,
successful-implementation.
d i f f e r e n t f u n c t i o n s o f t h e l a b o u r a d m i n i s t r a t i o n demand
d i f f e r e n t l i n e s o f a c t i o n : g r a n t i n g unemployment b e n e f i t i s
a h i g h l y standardised procedure;
ing
promotion o f f u r t h e r t r a i n -
and r e - t r a i n i n g , on t h e o t h e r hand, p r e s u p p o s e s t h e p r o -
v i s i o n o f an i n f r a s t r u c t u r e f o r v o c a t i o n a l t r a i n i n g , t h e
1
m o t i v a t i o n o f p a r t i c i p a n t s , as w e l l as t h e employees i n f l u e n c e on t h e type o f c o u r s e
chapter,
lysed:
ing
d i f f e r e n t types
the spectrum w i l l cover
In the following
o f o p e r a t i o n s w i l l be anar o u t i n e t a s k s s u c h as g r a n t -
unemployment b e n e f i t , p l a c e m e n t and v o c a t i o n a l c o u n s e l -
ling,
and
those
offered.
a s w e l l as, p o l i c y t a s k s s u c h a s j o b - c r e a t i o n m e a s u r e s
p r o m o t i o n o f f u r t h e r t r a i n i n g and r e - t r a i n i n g .
instruments
mediating
c a n be d e s c r i b e d a s r e g u l a t o r y f u n c t i o n s ,
f u n c t i o n s , and p o l i c y
t h a t the m u l t i p l i c i t y o f these
functions.
I t w i l l b e shown
functions leads to p a r t i a l l y
c o n t r a d i c t i n g demands o n t h e l o c a l
Contrary
The
agent.
t o many o t h e r b u r e a u c r a c i e s ,
the labour
administra-
t i o n has t o i n t e r a c t w i t h d i f f e r e n t k i n d s o f c l i e n t s
marily jobseekers
and p o t e n t i a l employers).
o f power t h e o f f i c i a l s
relations
The amount
a r e able t o e x e r c i s e over
c l i e n t s v a r i e s g r e a t l y , h o w e v e r , we
(pri-
their
s h a l l d e s c r i b e how power
i n f l u e n c e the implementation
process.
Power r e l a t i o n s
- 53
between j o b s e e k e r s ,
d e p e n d i n g on
market.
can
We
-
e m p l o y e r s and
placement agents
the kinds of imbalances e x i s t i n g
will
c o n s i d e r whether the
r e d u c e t h i s power d i s c r e p a n c y ,
change
i n the
labour
labour administration
or whether the
staff
actually reinforces i t .
The
q u e s t i o n o f how
the
needs o f i t s c l i e n t s
discrepancy.
difficulty
periences
termine
these
The
l a b o u r a d m i n i s t r a t i o n meets
the
i s l i n k e d w i t h t h e i s s u e o f power
In times
o f h i g h employment, j o b s e e k e r s
finding a personally satisfying
job.
The
c l i e n t s have w i t h the l a b o u r market s t a f f
their
have
exde-
a t t i t u d e s towards the labour a d m i n i s t r a t i o n ;
a t t i t u d e s a l s o i n f l u e n c e the
implementation
process
implementation
process.
i s the dependent v a r i a b l e :
r e g i o n a l labour market problems, o r g a n i s a t i o n s p r e r e q u i sites
in
and
c l i e n t s ' behaviour
the implementation
are the u n c e r t a i n elements
process.
The
main q u e s t i o n
cannot
be how
e f f e c t i v e l y .and e f f i c i e n t l y l a b o u r m a r k e t p r o b l e m s .
c a n be
s o l v e d , because the balance
is
Likewise f a i l u r e of
c a n n o t be b l a m e d c o m p l e t e l y
programmes
task of t h i s p r o j e c t i s to describe and.analyse
implementation
In order
f a c t o r s , we
to determine these
viewed a labour o f f i c e
easily
observed.
staff.
files.
t h u s b e s t be
analysed
on
through
files.
and
through
nor
intercan
granting
written
procedure.
examination
Many programmes demand a g r e a t d e a l o f
of
the implementation
the
preparatory
e v a l u a t e d by
ana-
Here, o n l y i n t e r v i e w s w i t h the a c t o r s
h e l p us t o u n d e r s t a n d
whole.
observed
Placement a c t i v i t i e s
w o r k w h i c h c a n n e i t h e r be o b s e r v e d
lysing
those
process.
O t h e r programmes, such as
s h o r t - t i m e money, a r e d e c i d e d
They can
the
on t h e l a b o u r a d m i n i s t r a t i o n .
f a c t o r s which i n f l u e n c e the
be
supply
d e p e n d e n t on a g r e a t number o f v a r i a b l e s ' o u t s i d e '
labour administration.
The
o f demand and
p r o c e d u r e as
can
a.
-
54
-
C h a p t e r 3, w h i c h d e a l s w i t h t h e d e s c r i p t i o n o f
tasks
and
(such as
routine
r e g i s t r a t i o n of the.unemployed, placement
v o c a t i o n a l c o u n s e l l i n g ) i s b a s e d on
the
observation
o f i n t e r a c t i o n b e t w e e n l a b o u r o f f i c e a g e n t s and
Chapter 4 describes those
t a s k s w h i c h we
m a r k e t p o l i c y programmes.
activities
In handling these
s u c h as p r e d i c t i n g a n d
portant role.
p r e s u p p o s e s i n t e r v i e w s w i t h t h o s e who
a c t o r s o u t s i d e the
process.
For
programmes,
of
actively
this
participate
purpose,
f o r example,
r e t r a i n i n g as w e l l
p u b l i c s e r v i c e o r g a n i z a t i o n s , c a r r y i n g through
m e a s u r e s m u s t be
chapters
staff
the
i n c l u d e d i n the survey.
The
t r a c e the range of a c t i o n of the
s t a r t i n g from the
jobseekers
and
im-
implementation
l a b o u r a d m i n i s t r a t i o n , as
p r o v i d e r s f o r f u r t h e r t r a i n i n g and
labour
p l a n n i n g , p l a y an
Analysing that process
i n the implementation
call
clients.
job-creationfollowing
labour
office
f a c e - t o - f a c e - r e l a t i o n s between
t h e a g e n t s and
ending
up
i n the
inter-
o r g a n i z a t i o n a l r e l a t i o n s between the l a b o u r o f f i c e
t h e r e l e v a n t i n s t i t u t i o n s on
3.1.
as
a l o c a l labour
and
market.
The_Standard_Procedure_for_Unemgloyment_Re2istration
Traditionally,
t h e German l a b o u r a d m i n i s t r a t i o n i s
i n s t i t u t i o n r e s p o n s i b l e f o r the r e g i s t r a t i o n of
u n e m p l o y e d , and
the
the
a l l o c a t i o n of unemployment b e n e f i t s .
The
r e g i s t r a t i o n of the unemployed i s a h i g h l y f o r m a l i s e d
procedure:
dismissal.
a jobseeker
T h e r e , he
has
has
t o r e g i s t e r one
to f i l l
day
after
1
i n a jobseeker s
card
c o n s i s t i n g of p e r s o n a l data, i n f o r m a t i o n concerning
and
vocational training,
f o r how
long.
b e n e f i t , he
i s o b l i g e d t o s u b m i t employment
filled
i n by
of occupation.
Every
j o b as
soon as p o s s i b l e .
had
f o r unemployment
certificates
the employers of the
t o c o n t a c t a p l a c e m e n t a g e n t , who
new
academic
w h a t k i n d o f e m p l o y m e n t he
T o g e t h e r w i t h an a p p l i c a t i o n
w h i c h h a v e t o be
three years
and
his
last
applicant i s obliged
should t r y to f i n d
a
- 55 -
3.1.1.
The_Legal_Auth^rity_On^
The c o n d i t i o n s u n d e r w h i c h a j o b s e e k e r
unemployment b e n e f i t s a r e l a i d
i s entitled to
down i n p a r a g r a p h
.100,1, AFG:
'Unemployment b e n e f i t s ..are g i v e n t o a- p e r s o n who i s o u t
o f w o r k , a v a i l a b l e t o t h e p l a c e m e n t d e p a r t m e n t , who
has c o m p l e t e d t h e q u a l i f y i n g p e r i o d , r e g i s t e r e d h i s
u n e m p l o y m e n t w i t h t h e a g e n c y , a n d made a n u n e m p l o y m e n t
benefit claim.'
The q u a l i f y i n g p e r i o d i s f u l f i l l e d
i f a .person h a s
w o r k e d a t l e a s t s i x months w i t h i n t h e t h r e e y e a r s
previous
to
through
t h e unemployment p e r i o d .
employment c e r t i f i c a t e s
I f a person
c a n show
that-he has worked w i t h i n t h e l a s t
- t h r e e y e a r s , he r e c e i v e s c o m p e n s a t i o n .
The unemployment
b e n e f i t , up t o s i x t y - e i g h t p e r c e n t o f t h e l a s t n e t s a l a r y ,
is paid into the client's
bank account.
unemployment b e n e f i t s t h e c l i e n t
up t o f i f t y - e i g h t
gets
A f t e r one y e a r o f
'unemployment
p e r cent o f the l a s t s a l a r y .
relief,
These
funds
come f r o m s o c i a l
c o n t r i b u t i o n s a d m i n i s t e r e d by t h e l o c a l
labour o f f i c e s .
I f a client
g i v e s n o t i c e , o r has been
d i s m i s s e d w i t h g o o d r e a s o n , he c a n o n l y r e c e i v e c o m p e n s a t i o n
a f t e r f o u r weeks o f u n e m p l o y m e n t .
Registering
as a n u n e m p l o y e d p e r s o n
necessitates contacting
two d e p a r t m e n t s o f t h e l a b o u r o f f i c e s - ;
ment
and t h e p l a c e m e n t d e p a r t m e n t .
t h e payment
The p l a c e m e n t
has t h e - p r e p a r a t o r y f u n c t i o n o f d e c i d i n g ' o n
of a r e g i s t e r e d jobseeker.
I n paragraph
departagent
the 'availability'
1 0 3 , A F G , we
' A v a i l a b l e f o r placement a r e those persons
read:
(1) who a r e a b l e
t o w o r k u n d e r t h e g e n e r a l c o n d i t i o n s o f t h e common l a b o u r
m a r k e t , a n d (2) who a r e w i l l i n g
occupation
they
can f u l f i l . . .
e x a m p l e o f how f l e x i b l y
1
a legal
t o accept
any a d e q u a t e
Paragraph
1 0 3 , AFG, i s an
term
' a d e q u a t e ' c a n be .
like
- 56 -
i n t e r p r e t e d according t o a changing
economic
situation.
S i n c e t h e summer o f 1 9 7 6 , p u b l i c i t y h a s b e e n f o c u s e d
what i s c a l l e d a growing
urgent
' u n w i l l i n g n e s s t o work'. A t t h e
r e q u e s t i o n o f employers'
the M i n i s t r y o f Labour
a s s o c i a t i o n s a n d t h e CDU,
and S o c i a l A f f a i r s consented t o a more
i n t e n s i v e look i n t o t h e matter.
Paragraph 103, AFG was changed i n t h a t
' a d e q u a t e ' was d i f f e r e n t l y
interpreted.
the labour o f f i c e a r e o f f i c i a l l y
if
on
t h e y do n o t c o r r e s p o n d
Jobs o f f e r e d by
considered adequate,
to- t h e a p p l i c a n t ' s
even
former
v o c a t i o n a l work, i f the work-place
i s f u r t h e r away f r o m t h e
a p p l i c a n t ' s home t h a n h i s p r e v i o u s
j o b , and i f t h e w o r k i n g
c o n d i t i o n s a r e worse - s p e c i f i c a l l y w i t h r e g a r d t o s a l a r y .
T h i s new i n t e r p r e t a t i o n o f p a r a g r a p h
many more j o b s e e k e r s
an o f f i c i a l
that
are forced t o take jobs i n c o n s i s t e n t
with their personal conceptions.
accept
103 AFG means
I f a jobseeker
does n e t
o f f e r , he c a n l o s e h i s r i g h t t o r e c e i v e
unemployment b e n e f i t f o r f o u r weeks.
I f he r e f u s e s a
s e c o n d t i m e , h i s c l a i m t o c o m p e n s a t i o n c a n be c a n c e l l e d .
CD
In
any
practice
t/
the- w i l l i n g n e s s o f t h e u n e m p l o y e d t o a c c e p t
( a d e q u a t e ) j o b c a n o n l y be c h e c k e d b y a c o n c r e t e j o b
offer.
F o r many j o b s e e k e r s , t h e r e a r e no
registered;
t h e agent has t o d e c i d e
from the c l i e n t ' s
information.
on t h e ' a v a i l a b i l i t y '
Many p l a c e m e n t
e x p l a i n t h a t t h e y do n o t i n t e n d t o p e r f o r m
willingness
vacancies
the 'test of
t o w o r k ' when a n u n e m p l o y e d p e r s o n
the labour o f f i c e t h e f i r s t time.
agents
contacts
I f t h e y have t h e im-
(1) The f o l l o w i n g f i g u r e s show t h e amount o f r e c o m p e n s a t i o n
c e s s a t i o n compared t o r e g i s t e r e d unemployed because o f
r e j e c t i o n o f a j o b o f f e r ( p a r a 119 (1) A F G ) :
1965
1966
1967
1968
1969
1970
2.1 %
2.3 %
4.1 %
4.8 %
3.7 %
2.5 %
1 971
1972
1974
1975
1976
3.0 %
3.7%
4.0 %
4.3 %
5.4 %
. 1973
3.5 %
- 57 -
pression that a jobseeker
i s not w i l l i n g
t o work a f t e r
months o f unemployment, t h e y t r y t o p l a c e t h e c l i e n t
if
t h e j o b i s worse than h i s p r e v i o u s o c c u p a t i o n .
the s t r a t e g i e s w h i c h t h e agents have developed
applied uniformly.
some
even
However,
are not
Depending on t h e l a b o u r m a r k e t
situation,
w i t h regard t o a p a r t i c u l a r occupation, t h e agent can decide
to o f f e r a job d i f f e r e n t
person
from t h a t which t h e unemployed
had p r e v i o u s l y h e l d .
also includes the c r i t e r i o n
Paragraph
104, AFG
t h a t 'the general c o n d i t i o n s o f
t h e common l a b o u r m a r k e t s h o u l d b e t a k e n i n t o c o n s i d e r a t i o n ' .
T h i s c l a u s e p r e s u p p o s e s t h a t e a c h p l a c e m e n t a g e n t h a s a n exact
overview
Many
often
o f the s t r u c t u r e o f the labour market a t any g i v e n time.
examples show t h a t the c r i t e r i a o f the 'labour market s i t u a t i o n '
(1)
n e c e s s i t a t e withdrawal o f any o p e r a t i o n a l i s a t i o n
decision-making
criteria
. As
are not precisely prescribed, the
p l a c e m e n t a g e n t s a r e f o r c e d t o make d e c i s i o n s o n t h e b a s i s
o f i n s u f f i c i e n t information.
O b v i o u s l y , many d e c i s i v e f a c t o r s
c a n n o t be c o n t r o l l e d b y t h e i r s u p e r i o r s .
regulations concerning
more p r e c i s e t h a n t h o s e
policy
Although
unemployment c o m p e n s a t i o n a r e even
concerning
other
labour
market
i n s t r u m e n t s , they a l s o have t o be f o r m u l a t e d
.enough t o make t h e m s e l v e s
-
market problems .
adaptable
t o changing
By u s i n g u n p r e c i s e t e r m s l i k e
c o n d i t i o n s o f a labour market', the c e n t r a l
local
level.
labour
'the general
labour
i s t r a t i o n hopes t o a t t a i n adequate i m p l e m e n t a t i o n
openly
adminon t h e
Thus, each i n d i v i d u a l agent has t h e d i s c r e t -
ion involved i n t r a n s l a t i n g ' g l o b a l goals
into precise
activities.
Due t o t h e l a c k . of. c o - o r d i n a t i o n w i t h i n t h e
(1)
I n an i n t e r n a l r e g u l a t i o n , of. J a n u a r y 1-976, p l a c e m e n t
agents were r e q u e s t e d t o d i r e c t t h e i r a t t e n t i o n t o
t e s t i n g t h e ' a v a i l a b i l i t y ' o f j o b l e s s women, v/ho h a d
worked p a r t - t i m e b e f o r e t h e d i s m i s s a l .
'Availability'
can o n l y be g r a n t e d them i f t h e y a r e p r e p a r e d t o a c c e p t
a f u l l - t i m e job, unless t h e i r occupation i s u s u a l l y
p a r t - t i m e on t h e m a r k e t .
Thus, t h e placement agents
have t o d e c i d e whether p a r t - t i m e work i s u s u a l f o r
a c e r t a i n j o b i n a c e r t a i n r e g i o n . They c a n n o t , however,
r e l y on any p r e c i s e i n d i c a t i o n s t o t e l l them what i s
usual.
Many i n t e r v i e w s w i t h d i f f e r e n t a g e n t s showed
t h a t each agent has h i s o w n . i n t e r p r e t a t i o n o f t h e
instruction.
C o n s e q u e n t l y , unemployment c o m p e n s a t i o n i s
g r a n t e d some women, a n d d e n i e d o t h e r s , r e g a r d l e s s o f
their legal.rights to i t .
- 58
local
levels,
gies.
The
either
t h e a g e n t s h a v e t o d e v e l o p t h e i r own
example of p e r s o n a l
willingness'
-
discretion
on t h e
strate'work-
m a t t e r shows t h a t a g e n t s c a n be c h a r a c t e r i z e d
as s u c h o r i e n t e d
(following
the instructions
c o n s c i e n t i o u s l y as p o s s i b l e ) o r a s i n t e r e s t e d
in
as
circum-
venting r e s t r i c t i v e regulations.
Some a g e n t s d e m o n s t r a t e t h e i r c o n t r o l
stop t h e i r
c l i e n t s ' recompensation.
by t h r e a t e n i n g
O t h e r s see
their
f u n c t i o n as h e l p i n g t h e unemployed f i n d t h e b e s t
job.
As we
exhibit
learned
t h o s e who
u n e m p l o y m e n t a s a f a i l u r e on t h e p a r t o f t h e
a r e o f t e n more
strategies:
law-oriented,
punish
As
t o work.
t h e m a l l , a s we
regard
and p u r s u e r a t h e r r e s t r i c t i v e
fifty
U n f o r t u n a t e l y , we
do n o t h a v e e n o u g h j o b s
some a g e n t s c a n n o t p u r s u e t h e i r
vis-a-vis
controlling
to
functions
Grantin2_Unemploy^ent_Benefits
important
characteristic
for-compensation
w i t h i n one
agency
o f t h e German s y s t e m i s t h a t
and p l a c e m e n t a r e
and d e c i d e d
by one a g e n t .
p o i n t f o r each c l i e n t o f the placement
registration
o f f i c e , which i s c a l l e d
( A n m e l d u n g s - und B e a r b e i t u n g s b i i r o ) .
offices
These
i n l i n e s of
should
t h e y may
relieve
concentrate
placement
on.actual
i s the
registration
forms and
placement
departments
the task of the placement
gistration officers distribute
starting
occupation.
the p r e p a r a t i o n of the c l a i m a n t s '
f o r m i s no l o n g e r
The
'AB-Stelle'
the r e o r g a n i s a t i o n of the placement
1975,
administered
department
are'generally responsible f o r three
o f f i c e s , which are organised
This
labour
of. t h e c l i e n t .
the claims
in
strate-
s i t u a t i o n , b u t w h i c h a r e more i n d e p e n d e n t o f t h e
3.1.2.
Since
offer."
a l l c l i e n t s , they have t o use s e l e c t i v e
agent's p e r c e p t i o n
One
per
cannot
g i e s , w h i c h a r e n o t always based on a p a r t i c u l a r
market
agents
individual
"Of a l l t h e u n e m p l o y e d , a t l e a s t
cent are u n w i l l i n g
suitable
from our i n t e r v i e w s , placement
varying behaviour patterns:
to
application
agent.
Re-
information.
a g e n t s o f e x t r a work so
placement.
that
However, t h e
- 59
-
d i v i s i o n of l a b o u r between the r e g i s t r a t i o n o f f i c e r s
the placement agent i s not c l e a r l y d e f i n e d
complain
and
.
and
Many a g e n t s
about the f a c t t h a t they have t o c o n t r o l the
forms,
thus negating
files
the value of the r e o r g a n i s a t i o n .
P a r t o f t h e p r e p a r a t o r y work f o r t h e payment d e p a r t m e n t •
remains w i t h - t h e agents.
Since the beginning
of
high
unemployment, t h e r e a l work, t h a t o f p l a c i n g j o b s e e k e r s ,
has
receded
i n t o the background.
t h e number o f p l a c e m e n t s h a s
o f p l a c e m e n t s has
e x p l a i n e d o n l y by t h e b a d
s c a r c i t y of job o f f e r s .
last
few
same.
r i s e n d r a m a t i c a l l y , the
declined.
This cannot
economic s i t u a t i o n and
The
years,
r e m a i n e d more o r l e s s t h e
H o w e v e r , s i n c e u n e m p l o y m e n t has
percentage
In the
be
the
l i n k i n g o f p a y m e n t and
place-
ment s e r v i c e s l e a d s t o t h e c o n c l u s i o n t h a t b o t h
functions
c a n n o t be p e r f o r m e d a s w e l l as t h e y
Thus,
agents are f o r c e d to develop
range,
s h o u l d be.
priorities:
'In the
of not p l a c i n g jobseekers
again d i r e c t l y
after
M o s t o f t h e p l a c e m e n t a g e n t s s p e n d much t i m e on
work n e c e s s a r y
be
shown l a t e r ,
rather than
the
costs
dismissal'.
preparatory
f o r r e c e i v i n g unemployment b e n e f i t .
As
t h e German L a b o u r B o a r d i s s l o w l y
a c q u i r i n g t h e r e p u t a t i o n o f b e i n g an
(1)
long
t h e s o c i a l c o s t s o f n o t g e t t i n g u n e m p l o y m e n t com-
p e n s a t i o n as q u i c k l y as p o s s i b l e a r e h i g h e r t h a n
will
the
an e m p l o y m e n t
unemployment
service.
As t h e A B - S t e l l e n w e r e s e t up d u r i n g o u r r e s e a r c h ,
we c o u l d o b s e r v e
t h e d i f f i c u l t i e s i n v o l v e d i n s u c h an
o r g a n i s a t i o n a l change. A l t h o u g h the s e t - u p of
A B - S t e l l e n was p r e s c r i b e d i n g r e a t d e t a i l by BA
r e g u l a t i o n s many p r o b l e m s h a d t o be s o l v e d by t h e l o c a l
offices.
I t was n o t c l e a r w h e r e t h e a c t u a l f i l e s
s h o u l d be:
s t o r i n g them i n t h e r e g i s t r a t i o n o f f i c e s
w o u l d make i t d i f f i c u l t f o r t h e p l a c e m e n t a g e n t s t o
h a v e an o v e r v i e w o f t h e i r c l i e n t g r o u p .
I t was n o t
c l e a r l y r e g u l a t e d w h e t h e r j o b s e e k e r s had o n l y t o
r e g i s t e r o n c e , o r i f t h e y had t o c o n t a c t the
r e g i s t r a t i o n o f f i c e e v e r y t i m e t h e y came t o t h e l a b o u r
office.
The q u e s t i o n o f who i s a u t h o r i s e d t o s i g n
f o r t h e e m p l o y e e s i n t h e r e g i s t r a t i o n o f f i c e s was n o t
h a n d l e d i n t h e r e g u l a t i o n . The p r o p o s a l s r o u g h l y
f o r m u l a t e d by t h e BA o f t e n n e e d e d f u r t h e r i n t e r p r e t a t i o n i n e x e c u t i o n , done by t h e l o c a l o f f i c e s t a f f s .
-
3.2.
-
60
£laçement_Funçtions_in_Ti^
P l a c e m e n t , as one
istration,
of the c e n t r a l t a s k s of l a b o u r
i s r e g u l a t e d i n p a r a g r a p h s 13-24
p l a c e m e n t means ' b r i n g i n g t o g e t h e r
i n order
is
to provide
AFG.
jobseekers
f o r job c o n t r a c t s ' .
adminJob
and
employers
P a r a g r a p h 15,
concerned w i t h job c o u n s e l l i n g , which i s defined
' p r o v i d i n g e m p l o y e e s and
the s i t u a t i o n of the
as
employers w i t h i n f o r m a t i o n about
labour market, developments i n
d i f f e r e n t s e c t o r s o f t h e economy, t h e n e c e s s i t y f o r
availability
of v o c a t i o n a l t r a i n i n g ,
vocational training
and
as
and
separate
f r o m one
and
assistance with
schemes t o e n c o u r a g e j o b
offer assistance with respect to s p e c i f i c
'Placement' and
AFG
'counselling', although
placement
wishes.'
legally
defined
f u n c t i o n s , are o f t e n s c a r c e l y d i s t i n g u i s h a b l e
another.
L e g i s l a t i o n a l s o emphasizes the s e r v i c e •
c h a r a c t e r of placement t a s k s :
p l a c e m e n t and c o u n s e l l i n g
a r e t h e o r e t i c a l l y a v a i l a b l e on
request.
The
f o l l o w i n g are the
s h o u l d be
voluntary;
legal principles
'capabilities
h i s personal circumstances'
non-partisanship
conflicts
should
of the
s h o u l d be
jobseekers;
into
to
The
i n accordance
charge.
services.
exists
can
t h e i r s e r v i c e s h o u l d be a v a i l a b l e
German L a b o u r A d m i n i s t r a t i o n has
place
interest
" r e s p e c t f o r wage
t a k e no p a r t i n b r i n g i n g a b o u t e m p l o y m e n t n o t
without
and
account;
means t h a t t h e " ' j o b p l a c e m e n t o f f i c e r
w i t h wage a g r e e m e n t s ' , and
requests-
jobseeker
taken
e x i s t with regard
o f e m p l o y e r s and
requirements
of p l a c i n g :
Only the Bundesanstalt
jobseekers
formally.
i n I t a l y , where every
a m o n o p o l y on
i s g i v e n the r i g h t
A more e x t e n s i v e
v a c a n c y must be
national labour administration.
placement
The
BA
p r i v a t e , g a i n f u l placement a c t i v i t i e s ,
to
monopoly
p l a c e d by
attempts
s i n c e one
to
the
outlaw
central
body can b e t t e r g u a r a n t e e a c o m p r e h e n s i v e s e r v i c e , m a i n t a i n i n g an e q u i l i b r i u m i n e c o n o m i c and
social
criteria;
-
providing
t h e BA
jobs w i t h people
has
-
61
and
people
with jobs.
Meanwhile
g i v e n up p a r t o f i t s m o n o p o l i s t i c c l a i m
by
a u t h o r i s i n g some p l a c e m e n t s e r v i c e s f o r s p e c i a l g r o u p s
as a r t i s t s '
agencies,
or
'hiring firms'
I f we
look at the placement s e r v i c e s t a t i s t i c s
local
l a b o u r o f f i c e s we
reached
over
see
of the
2,700 i n t h e m o n t h l y a v e r a g e .
There are ten o f f i c e s
labour o f f i c e
1,700
in
came up
e a c h o f f i c e has
The
number of.
to
i n F r e i b u r g , p e r month .
Although
and
about
one
figure for ' registered
t o a p p r o m i m a t e l y 1,200
t h a n on t h e n a t i o n a l l e v e l ,
The
i n the placement department
in Kiel;
t h e number o f j o b s e e k e r s
jobseekers
of the month, r a n
thousand unemployed r e g i s t e r e d .
vacancies
i n both
t h a t t h e number o f
u n e m p l o y e d , c o u n t e d i n the- m i d d l e
9,800.
such
in Kiel,
and
the d i f f e r e n c e •
vacancies
i s less
drastic
t h e r e a r e enormous d i s c r e p (2)
a n c i e s between supply
and
demand i n c e r t a i n o c c u p a t i o n s
What h a p p e n s when a j o b s e e k e r
ment a g e n t ?
H e r e we
enters the o f f i c e of a p l a c e -
have t o t a k e
t h e f i r s t m e e t i n g o f c l i e n t and
o f c l i e n t s who
s p e c i a l note,
agent.
client
doing
The
majority
r e g i s t e r as unemployed, q u e s t i o n s
d u t i e s are discussed.
seldom take p l a c e .
. a g e n t s and
i f this i s
For the
u n e m p l o y m e n t c l a i m a r e t h e m a j o r concern..
r i g h t s and
clients
The
.
The
the
client's
Attempts to place
conversations
show t h a t t h e
about
the
between
f i r s t meeting i s spent
t h e p r e p a r a t o r y work f o r t h e payment d e p a r t m e n t .
c l i e n t s are requested
sometimes a date
t o come back' one
i s made f o r t h e n e x t
week
later,
month.
(1)
A t the b e g i n n i n g of the s e v e n t i e s , p r i v a t e agencies.
S p r u n g up e v e r y w h e r e , and t h e BA h a d t o a c t u p o n
s e v e r a l thousand a p p l i c a t i o n s f o r placement agencies
o r h i r i n g f i r m s . A t t h a t t i m e , t h e BA h a d n o t e n o u g h
s t a f f t o make t h e n e c e s s a r y c o n t r o l s . I n t h e m e a n t i m e
t h e number o f p r i v a t e a g e n c i e s d i m i n i s h e d more and
more. T h e y c a n no l o n g e r be r e g a r d e d as k e e n
competition f o r the p u b l i c placement s e r v i c e s .
(2)
A c c o r d i n g t o a s p e c i a l i n v e s t i g a t i o n made i n
S c h l e s w i g - H o l s t e i n i n 19 76, f o r e v e r y 100 u n e m p l o y e d
s k i l l e d w o r k e r s t h e r e ' e x i s t e d 79 v a c a n c i e s .
For every
100 u n s k i l l e d w o r k e r s , t h e r e w e r e o n l y 19 v a c a n c i e s .
F o r 2,773 u n e m p l o y e d f e m a l e s k i l l e d s e c r e t a r i e s , t h e r e
w e r e e x a c t l y 214 v a c a n c i e s .
- 62 -
T h o s e c l i e n t s whose p r o c e d u r e o f c l a i m i n g
unemployment
b e n e f i t i s s e t t l e d , p r i m a r i l y c o n t a c t t h e p l a c e m e n t 'agent
a b o u t f i n d i n g a new
job.
As t h e a b o v e m e n t i o n e d
show, t h e c h a n c e o f b e i n g p l a c e d i s s l i g h t .
' I am
I c a n n o t do a n y t h i n g f o r y o u , I do n o t h a v e any
registered',
i s t h e m o s t common a n s w e r .
seldom t a k e s p l a c e .
o f f e r which f i t s
figures
Job
sorry,
vacancy
counselling
I f t h e placement agent has a j o b
the c l i e n t ' s
qualifications,
the
client
r e c e i v e s a p r e s e n t a t i o n c a r d and- i s r e q u e s t e d t o a p p l y t o
the employer.
O f t e n t h e agent's knowledge
t i o n s and s a l a r y a r e r a t h e r weak.
The
o f work
jobseeker i s asked
to inform the placement agent of the r e s u l t o f the
w i t h t h e p o t e n t i a l e m p l o y e r by s e n d i n g b a c k t h e
card'.
condiinterview
'presentation
The d e s c r i b e d a t t e m p t t o p l a c e a j o b s e e k e r o f t e n
d o e s n o t l a s t l o n g e r t h a n a few m i n u t e s .
Each c l i e n t
i s dependent
agent i s w i l l i n g
on t h e i n f o r m a t i o n a
to give.
In countries with a
s y s t e m , t h e c l i e n t c a n f o r m h i s own
overview o f the job market.
ries
particular
'self
c o n c l u s i o n s b a s e d on
an
He c a n c o m p a r e j o b s a n d s a l a . -
i n v a r i o u s s e c t o r s , and i s t h u s b y some e x t e n t
pendent o f h i s agent.
service'
inde-
I n t h e German s y s t e m , t h e a g e n t
d e c i d e s when t o o f f e r w h a t j o b a n d t o whom.
Activities
range from r o u t i n e placement q u i c k l y executed
through r e s t r i c t i v e measures,
to entirely permissive
ment i n c l u d i n g c o u n s e l l i n g b a s e d on t h e j o b s e e k e r ' s
problems.
placepersonal
Behaviour patterns of the agents are p a r t l y i n -
f l u e n c e d by t h e t u r n o v e r r a t e s i n t h e d i f f e r e n t
s e c t o r s and p a r t l y b y d i f f e r e n c e s
occupational
i n a t t i t u d e of both clients
and a g e n t s , w h e r e c o m m u n i c a t i o n i n t h e
'blue-collar-sector'
i n the ' w h i t e - c o l l a r - s e c t o r ' , a r e a l dialogue takes place
between
c l i e n t and a g e n t , w h e r e a s
'blue-collar sector'
'communication' i n the
t e n d s t o be a o n e - s i d e d a f f a i r .
-
In
are
a system l i k e
The
-
t h a t i n F r a n c e , where t h e placement
not organized according t o p r o f e s s i o n ,
d e a l w i t h many d i f f e r e n t
of
63
sorts of c l i e n t s ,
so t h a t
offices
agents
the behaviour
t h e a g e n t seems t o be l e s s v a r i e d t h a n * i n Germany.
above mentioned
and p l a c e m e n t
activities.
s i m u l t a n e i t y of claims f o r compensation
i s a major
determining f a c t o r i n placement
C h e c k i n g unemployment c o m p e n s a t i o n
claims
demands so much a d m i n i s t r a t i v e w o r k t h a t p l a c e m e n t
t i e s must t a k e second p l a c e .
Placement
activi-
agents o f t e n
com-
p l a i n t h a t t h e y do n o t h a v e e n o u g h t i m e f o r p l a c e m e n t
tions.
T h i s i m p l i e s the danger
o f f e r s w h i c h do n o t m a t c h t h e i r
f o r b i d s r e f u s a l o f an o f f e r e d
to
func-
that jobseekers receive
interests.
job
As t h e
( u n l e s s one
law
is willing
f o r g o unemployment c o m p e n s a t i o n ) , t h e j o b s e e k e r i s
forced to f i r s t
a c c e p t a j o b a n d t h e n g i v e i t up
after
a short time.
Many a g e n t s seem t o p u r s u e a ' t u r n o v e r s t r a t e g y ' ;
rapidly
they
t r y t o match j o b s e e k e r s w i t h v a c a n c i e s , even
match i s o n l y t e m p o r a r i l y .
T h e s e s t r a t e g i e s may
f o r c e d by t h e i n t e r n a l c o n t r o l s y s t e m .
be
rein-
Each placement
even i f o n l y . f o r a few days - i s r e g i s t e r e d and
as an i n d i c a t o r o f t h e ' a c t i v i t y o f t h e p l a c e m e n t
Statistics
d e a l w i t h the agent's c o n s i d e r a t i o n of the
vocational wishes.
The
agent.
do
evanot
individual's
a g e n t ' s h e a v y w o r k - l o a d and
f a c t t h e y m u s t as w e l l p e r f o r m a d m i n i s t r a t i v e
As t h e i r p e r f o r m a n c e
primary
i s measured
by t h e number o f p l a c e m e n t s , t h e a g e n t s c a n n o t s p e n d
t i m e on
' f i n d i n g t h e r i g h t man
f o r the r i g h t
the
functions,
p r e v e n t s them f r o m d e v o t i n g t h e m s e l v e s t o t h e i r
f u n c t i o n of placement.
-
judged
A h i g h number o f p l a c e m e n t s means, t h e n , a p o s i t i v e
l u a t i o n of the agent's performance.
i f the
job'.
much
This
t e n d e n c y t o w a r d a ' t u r n o v e r s t r a t e g y ' has n e g a t i v e e f f e c t s
on t h e image, o f t h e l a b o u r a d m i n i s t r a t i o n .
Turnover
t e g i e s l e a d t o bad matches,
in dissatis-
and t h u s r e s u l t
f a c t i o n on t h e p a r t o f b o t h e m p l o y e e s
and e m p l o y e r s .
straPer-
-
formance-oriented
behaviour
-
64
o f t h e agent almost
invariably
means t h a t t h e c l i e n t ' s n e e d s a r e d i s r e g a r d e d .
Those s t r a t e g i e s a l s o have t h e i r
market.
T h o s e who c a n n o t f i n d a new j o b b y
r i s k being placed.in inadequate
of jobs renders
to
find
i n f l u e n c e on t h e l a b o u r
jobs.
Frequent
i t more a n d more d i f f i c u l t
a long-term
occupation.
available
i n that
i n industry:
jobseeker
strategy helps
jobseekers
for short-term positions.
t h i s the labour a d m i n i s t r a t i o n strengthens
observable
changing
for a
The t u r n o v e r
employers dispose o f labour resources
are immediately
themselves
By
a tendency
the existence of a dual
labour
(1)
market
.
Whereas a ' p r i m a r y m a r k e t ' c o n s i s t s o f a p e r -
manent s t a f f o f w e l l - p a i d s k i l l e d w o r k e r s ,
the
'secondary
market' s p e c i f i e s a group o f u n s k i l l e d workers w i t h
jobs, bad working
By
unstable
c o n d i t i o n s a n d no c h a n c e o f a d v a n c e m e n t .
following turnover
strategies,
contributes to a 'crystalization'
the labour administration
of a two-class-system
of
workers.
An
a r e a where t h e agents have c o n s i d e r a b l e
power i s t h e m a t t e r
While
of labour permits
discretionary
for foreigners.
EC c i t i z e n s h a v e t h e r i g h t t o w o r k i n a l l EC c o u n t r i e s ,
( 2)
non-EC f o r e i g n e r s a r e s u b j e c t t o s t r i c t r e g u l a t i o n s
When a l a b o u r p e r m i t becomes i n v a l i d
e x p i r a t i o n date
has
after the regular'
o r because o f a d i s m i s s a l ,
the foreigner
t o c o n t a c t t h e p l a c e m e n t s e r v i c e t o c l a i m a new p e r m i t .
I n t e r v i e w s w i t h p l a c e m e n t a g e n t s h a v e shown t h a t
there
e x i s t s no c o n s e n s u s among them r e g a r d i n g how s t r i c t l y t h e
labour permit procedure
s h o u l d be h a n d l e d .
The N a t i o n a l
L a b o u r B o a r d • r e g u l a t i o n t h a t no f o r e i g n e r s h o u l d b e
p l a c e d i n a j o b f o r w h i c h a German w o r k e r i s a v a i l a b l e
necessitates
ally
an e x a m i n a t i o n
process
i m p o s s i b l e t o implement.
practical,
labour permits
the l o c a l o f f i c e s .
As t h i s
are handled
instruction
i s not
i n d i f f e r e n t ways b y
Some a g e n t s seem t o p u r s u e a s t r a t e g y
(1)
P. D o e r i n g e r / M . P i o r e ( 1 9 7 1 ) ;
(2)
See n e x t
page.
which i s o r g a n i s a t i o n -
M. P i o r e
(1973).
- 65
of
' d r y i n g up
labour'.
-
Unemployed f o r e i g n e r can
u n e m p l o y m e n t b e n e f i t f o r a maximum o f one
on
s o c i a l w e l f a r e b e n e f i t s f o r more t h a n
to
deportation. Therefore,
t h e i r home-countries.
argued:
'As we
One
h a v e one
one
to
f u t u r e i m p r o v e m e n t s on
find
can
even t r y t o
to
interviewed
two
million
foreign
O t h e r s were
'hoarded
the economic s i t u a t i o n .
agents f o r f o r e i g n workers,
of
up'
Firms
in
order
j o b s w h i c h German w o r k e r s w o u l d l e a v e a f t e r a
w h i l e . One
lead
m i l l i o n unemployed, i t i s unreason-
i n the F e d e r a l R e p u b l i c '
often t r y to pressure
living
y e a r many go b a c k
t h e o p i n i o n t h a t f o r e i g n w o r k e r s s h o u l d be
for
year
not
o f t h e a g e n t s we
a b l e f o r Germans t o h a v e more t h a n
workers l i v i n g
year, but
some a g e n t s do
p l a c e u n e m p l o y e d f o r e i g n e r s . A f t e r one
claim
a g e n t u n d e r much p r e s s u r e fronu e m p l o y e r s
short
told
me:
' I f we would s t r i c t l y f o l l o w a l l r e g u l a t i o n s o f the N a t i o n a l Labour Board,
we
w o u l d be
u n a b l e t o a c t and
ested i n working
unbureaucratically.'
agents'
(2)
The
'In o r d e r
inter-
t o have good
a r e sometimes f o r c e d t o
act
problem of p l a c i n g f o r e i g n workers
i d e a s on g l o b a l e c o n o m i c d e v e l o p m e n t s
the employers' pressure
Footnote
e m p l o y e r w o u l d be
t o g e t h e r w i t h us.'
r e l a t i o n s w i t h t h e f i r m s , we
shows how
no
on
the agents i n f l u e n c e the
or
stra-
(2) o f p a g e
I n t h e ' A d m i n i s t r a t i v e O r d e r on L a b o u r P e r m i t s '
( A r b e i t s e r l a u b n i s v e r o r d n u n g ) , d a t i n g back t o 1971, t h e
l a b o u r a d m i n i s t r a t i o n was g i v e n t h e power t o d e c i d e on
l a b o u r p e r m i t s f o r non-EC members who w a n t e d t o w o r k
i n Germany. A t t h a t t i m e , t h e r e was a g r e a t demand
for foreign labour.
P a r a . 19, AFG s t a t e s t h a t non-EC
members n e e d a l a b o u r p e r m i t , ' w h i c h i s g r a n t e d
a c c o r d i n g t o t h e s i t u a t i o n and d e v e l o p m e n t o f t h e
l a b o u r m a r k e t , and a c c o r d i n g t o t h e p e r s o n a l c i r c u m stances of the i n d i v i d u a l . '
D i s t i n c t i o n s a r e made
b e t w e e n 'a g e n e r a l l a b o u r p e r m i t ' , g r a n t e d f o r one
y e a r f o r a s p e c i f i e d j o b i n a s p e c i f i e d f i r m , and 'a
s p e c i a l l a b o u r p e r m i t ' w h i c h c a n be g r a n t e d a f t e r
f i v e - y e a r employment. T h i s s p e c i a l p e r m i t i s n o t
bound t o a p a r t i c u l a r f i r m .
A f t e r ten years' residence,
a l a b o u r p e r m i t i s no l o n g e r n e c e s s a r y .
The l a b o u r
p e r m i t c o n d i t i o n s h a v e c h a n g e d now, s o t h a t non-members
o f t h e E u r o p e a n Common M a r k e t who i m m i g r a t e d t o Germany
a f t e r November 19 73 h a v e no c h a n c e o f g e t t i n g a l a b o u r
permit.
The g r a n t i n g o f a s p e c i a l p e r m i t i s o n l y
p o s s i b l e i f t h e r e i s no German j o b s e e k e r a v a i l a b l e f o r
a p a r t i c u l a r vacancy.
- 66 -
tegies of labour
office
staff.
As a l o c a l o f f i c e does n o t
have an o v e r a l l p o l i c y f o r f o r e i g n w o r k e r s , w h i c h c a n be
defined
according
t o p a r t i c u l a r needs o f t h e l o c a l
market, the adaptation
necessary i s l e f t
a g e n t , who i s o f t e n i n c a p a b l e
decisions
t h e y h a v e t o make.
to theindividual
o f such a conscious
Many a g e n t s s e e t h e m s e l v e s a s b e i n g
labour
matching.
overburdened by t h e
C u r r e n t l y , placement
occurs
a m i d s t an o n - g o i n g c o n f l i c t between economic and s o c i a l
policy.
Goals as formulated
i n p a r a 2 , C h a p t e r 1 AFG
' t h a t n e i t h e r unemployment n o r u n d e r q u a l i f i e d
should
law.
employment
e x i s t ' , were p a r t l y abandoned by t h e change o f t h e
T h e new r e g u l a t i o n s r e g a r d i n g
t h e adequcy o f an
o f f e r e d j o b i m p l i e s t h e danger o f an u n d e r q u a l i f i e d
occupation.
ties
The
Some o f t h e a g e n t s e x p r e s s e d t h e i r
i n pursuing
difficul-
g o a l s , w h i c h seem t o b e i n c o n s i s t e n t . .
a t t i t u d e s o f t h e agents c a n be e x p l a i n e d
as f o l l o w s :
Because d e c i s i o n s on p l a c i n g unemployed a r e based on l o c a l
labour
the
market c o n d i t i o n s
clients,
and p e r s o n a l
1)
o f d i s c r e t i o n , whereas
w o u l d p r e f e r t o h a v e more p r e c i s e r e g u l a t i o n s f o r
'the p e r f o r m a n c e o f t h e i r
Let
•
t h e a g e n t s have a h i g h d i s c r e t i o n a r y power.
Some a g e n t s s t r e s s t h e n e c e s s i t y
others
circumstances.of
tasks.
us sum up:
Counselling
and p l a c i n g f u n c t i o n s
background because o f t h e high
who r e g i s t e r .
The m a i n t a s k
i s doing preparation
recede i n t o the
numbers o f u n e m p l o y e d
o f t h e placement
agent
work f o r ' unemployment b e n e f i t
claims.
2)
The s i m u l t a n e i t y o f r e g i s t e r i n g a n d p l a c i n g t h e
unemployed, o f t e n
rather
t o more c o n t r o l - o r i e n t e d ,
than c l i e n t - o r i e n t e d behaviour.
efficiency
of
leads
i s evaluated
jobseekers
by s t a t i s t i c s
they place.
The a g e n t s '
o n t h e number
The a c c e n t i s on q u a n t i t y ,
-
not q u a l i t y .
67
-
Those p e r f o r m a n c e - o r i e n t e d
agents
tend
to
pursue t u r n o v e r - s t r a t e g i e s , which prevents' c l i e n t orientation.
3)
Long-term h i g h unemployment l e a d s t o the
overloaded,
so t h a t t a s k s l i k e p l a n n i n g
agents
and
being
policy
f o r m u l a t i n g take second place to r o u t i n e t a s k s .
main f u n c t i o n of the p l a c e m e n t agents i s ' t o
The
administer
unemployed'.
4)
5)
As
o n l y the placement agent disposes
on
job vacancies,
of
information
t h e c l i e n t i s i n a weak
position.
L o c a l labour o f f i c e placement agents i n t e r a c t
in
d i f f e r e n t ways w i t h t h e i r c l i e n t s , d e p e n d i n g on
own
vocational socialisation,
communication a b i l i t y
own
work-load.
t h e s t a t u s and
the
c l i e n t s ' , and
their
of t h e i r
A g e n t s c a n be
. communicative, or permissive
their
r e p r e s s i v e , and
and
non-
co-operative.
In
g e n e r a l , more i n d i v i d u a l i s e d p l a c e m e n t i s f o u n d i n
the w h i t e - c o l l a r s e c t o r ;
c o l l a r s e c t o r c a n be
6)
The
interactions i n the-blue-
s a i d t o be
vague f o r m u l a t i o n of g o a l s
the i n t e r p r e t a t i o n of the
placement agents.
unilateral.
and
l e g a l terms
l a w s l a r g e l y up
to
leave
the
P l a c e m e n t a g e n t s o f t e n use
their
d i s c r e t i o n i n d i f f e r e n t ways.
7)
S i n c e d a t a on t h e
r e g i o n a l labour market, based
the r e g i s t r a t i o n of jobseekers
and
vacancies
only
show a d i s t o r t e d p i c t u r e o f t h e s i t u a t i o n ,
and
i n f o r m a t i o n does n o t s u p p l y
the
situation,
they
cannot
a prognosis
of
on
the
a g e n t s a r e f o r c e d t o make d e c i s i o n s w h i c h
justify.
- 68
3.3..
-
D o e s _ t h e _ P l a c e m e n t S e r v i c e meet t h e N e e d s
Clients?
'
~
To
a n s w e r t h e q u e s t i o n o f how
we
must c o n s i d e r t h e a g e n t - c l i e n t i n t e r a c t i o n .
understand
the r e l a t i o n s
programmes a r e
of these
of_the
implemented,
In. order t o
a c t o r s more t h o r o u g h l y ,
s h o u l d know more a b o u t t h e g e n e r a l
a t t i t u d e s and
of c l i e n t s .
e x p l a i n e d s o l e l y by
I n t e r a c t i o n c a n n o t be
prescriptions
and
situational
perceptions
p s y c h o l o g i c a l d i s p o s i t i o n of those
parties involved.
B e y o n d o r g a n i s a t i o n a l and
f a c t o r s , there are
ments o f t h e e n v i r o n m e n t i n w h i c h t h e
f u n c t i o n s , and
and
Whether a l a b o u r o f f i c e
i s located
composition
of c l i e n t s with regard
important
t o age,
v o c a t i o n a l q u a l i f i c a t i o n determines the r e l a t i o n
a g e n t s and
i n these
ele-
labour administration
i n a l a r g e t o w n o r i n a s m a l l c o m m u n i t y p l a y s an
The
the
i t s s o c i e t a l context, which i n f l u e n c e s
agent-client relations.
role.
role
a s p e c t s , b u t must i n c l u d e
personal
we
clients.
between
I s o l a t i o n of a l l v a r i a b l e s involved
r e l a t i o n s w o u l d n e c e s s i t a t e a more d e t a i l e d
l y s i s b a s e d on
sex
interviews of both
interactors.
n o t h a v e e n o u g h e m p i r i c a l k n o w l e d g e , we
ana-
As we
can o n l y
do
discuss
some s e l e c t e d a s p e c t s .
Clients
of the
expectations
l a b o u r a d m i n i s t r a t i o n do
vis-à-vis t h e
a d m i n i s t r a t i o n has
clients:
administration.
contact with very
jobseekers,
n o t h a v e homogeneous
The
labour
d i f f e r e n t types
of
unemployed, young s c h o o l - l e a v e r s
l o o k i n g f o r c o u n s e l l i n g , f o r e i g n workers asking f o r a
labour permit
subsidies.
and
employers o f f e r i n g
Each of these
g r o u p s has- s p e c i f i c
and
expectations-.
The
l a b o u r a d m i n i s t r a t i o n c a n be
administrations
i n t h a t i t has
d i f f e r e n t groups of c l i e n t s :
employers.
d i s t i n g u i s h e d from
jobseekers,
and
other
two
potential
the r e s p e c t i v e i n t e r e s t s
Demands of e m p l o y e r s are
p a t i b l e w i t h those of the
interests
to mediate between
A g e n t s must b a l a n c e
each c l i e n t group.
jobs or c l a i m i n g
jobseekers.
c h a n g e a l o n g with v a r i e d s i t u a t i o n s of
of
o f t e n incom-
The
clients'
interests
the
labour market.
- 69 -
In times o f high
on
the labour
employment, j o b s e e k e r s
a r e n o t as dependent
market a d m i n i s t r a t i o n as d u r i n g
times o f un-
employment.
One
o f t h e m a i n d i f f e r e n c e s between t h e two c l i e n t
i s t h a t t h e u n e m p l o y e d m u s t go t o t h e l a b o u r
as
groups
office,
where-
e m p l o y e r s may c h o o s e w h e t h e r o r n o t t o u s e t h e s e r v i c e .
Employers o f t e n have v a r i o u s
possibilities
to recruit
w o r k e r s . T h e y a r e t h u s i n d e p e n d e n t o f the labour a d m i n i s t r a t i o n ,
whereas j o b s e e k e r s
a r e n e c e s s a r i l y dependent.
Agent-client
i n t e r a c t i o n i s s i m i l a r t o t h a t between a d o c t o r
patient.
A common d e f i n i t i o n
i s given
as a p r o d u c t o f
r e c i p r o c a l i n t e r a c t i o n and s t e r e o t y p i n g ,
power l i e s
i n t h e hands o f t h e agent.
employers and t h e labour
like;
and h i s
but the definitive
The r e l a t i o n s between
a d m i n i s t r a t i o n a r e more
business-
b o t h p a r t i e s c a n be s a l e s m e n a s w e l l a s c u s t o m e r s .
The
employer can be d e s c r i b e d
the
'labour
The
main t a r g e t groups o f t h e l a b o u r
jobseekers
force'.
In this
dealing with
groups.
administration are
(among whom e i g h t y p e r c e n t a r e u n e m p l o y e d ) a n d
employers.
studies
as buyer o f t h e merchandise,
c h a p t e r we d e a l w i t h
those
empirical
c h a r a c t e r i s t i c s o f t h e s e two c l i e n t
On t h e j o b s e e k e r s '
s i d e , we h a v e t o r e f e r t o
p u b l i c a t i o n s , w h e r e a s o n t h e demand s i d e we c a n r e l y o n o u r
own
e m p i r i c a l f i n d i n g s based on o u r i n t e r v i e w s w i t h
i n t h e two l a b o u r
3.3.1.
market regions
we s e l e c t e d .
3§is£i2S§-^§£'^§§2_-^2§2£§_SS^_!Z2^§§§3S§E§
Effective
i n t e r a c t i o n between o f f i c i a l s
and c l i e n t s
supposes t h a t t h e agents u n d e r s t a n d and a r e a b l e
the b e h a v i o u r o f t h e i r c l i e n t e l e .
deal with
the
(1)
employers
unemployed themselves ^
to predict
Many e m p i r i c a l
unemployment as a s o c i o - p s y c h o l o g i c a l
pre-
studies
problem o f
..
O n l y a f e w c a n b e m e n t i o n e d h e r e : : M. J a h o d a / J . P .
L a z a r s f e l d / H . Z e i s e l (1960);
E.W. B a k k e ( 1 9 6 3 ) ;
M.J. H i l l e t . a l . (1973).; A. W a c k e r ( 1 9 7 6 ) ;
K.
Hentschel/C. M o l l e r / R . P i n t a r (1977).
- 70 -
All
the studies c l e a r l y
s t a t e t h a t t h e main burden
of the
unemployed i s n o t t h e l a c k o f f i n a n c e s , b u t r a t h e r t h e
f e e l i n g o f n o t being able t o s o l v e the problem
The
individually.
p s y c h o l o g i c a l s i t u a t i o n o f t h e unemployed l e a d s t o
p a s s i v i t y and r e s i g n a t i o n . There
a r e no e x i s t i n g o r g a n i z a -
t i o n s which r e p r e s e n t t h e i n t e r e s t s o f t h e unemployed.
The
q u e s t i o n i s whether t h e agents
t i o n a r e a b l e t o adapt
themselves
i n the labour administrat o the unusual psycholo-
g i c a l c i r c u m s t a n c e s o f t h e unemployed.
Placement
agents o f t e n complain of t h e j o b s e e k e r s
u n w i l l i n g n e s s t o accept a job which
their
seen
p r e v i o u s one.
1
i s less attractive
than
The a d a p t a b i l i t y o f j o b s e e k e r s c a n b e
from those s t u d i e s which d e a l w i t h t h e m o b i l i t y o f the
labour
force-.
Labour
Market
A comprehensive
Research
survey of the I n s t i t u t e f o r
and v o c a t i o n a l R e s e a r c h ,
dealing with
more t h a n 8,000 u n e m p l o y e d p e r s o n s , i s r e p r e s e n t a t i v e i n
terms
of attitudes
and b e h a v i o u r o f t h e u n e m p l o y e d ^ .
1972,
t h e enormous j o b f l u c t u a t i o n was due t o d i s m i s s a l
r e s u l t i n g from t h e companies'
At the beginning of this
'last-in-first-out'
cyclical crisis,
the unemployed had low q u a l i f i c a t i o n s ,
f i r m s b e f o r e they were d i s m i s s e d .
In
principle.
the majority of
and worked i n s m a l l
A l t h o u g h most o f t h e
unemployed e x p r e s s e d t h e i r w i l l i n g n e s s t o work i n a n o t h e r
industrial
sector,
j o b s e e k e r s were j u s t as u n w i l l i n g t o
(2)
w o r k f o r a l o w e r s a l a r y a s t h e y w e r e t o move
b e e n shown t h a t s i x t y - s e v e n p e r c e n t o f t h o s e
.
I t has
integrated
i n t o t h e l a b o u r market a f t e r a c e r t a i n p e r i o d o f unemployment w e r e g i v e n w o r k i n a n o t h e r b r a n c h .
have haved t h e i r o c c u p a t i o n , and cannot
skills;
F o r t y - f o u r per cent
use.their
the. s a l a r i e s o f f o r t y - f o u r p e r c e n t were
former
lower
than before.
(1)
R e s u l t s o f t h e s u r v e y a r e t o be f o u n d i n t h e f o l l o w i n g
essays:
H. S a t e r d a g ( 1 9 7 5 ) ; C h . B r i n k m a n n / K . S c h o b e r G o t t w a l d (1976);
Ch. Brinkmann (1976); Ch. B r i n k m a n n
(1977) .
(2)
S i m i l a r r e s u l t s a r e t o be f o u n d i n o t h e r s t u d i e s
as K. H e n t s c h e l / C . Möller/R. P i n t a r ( 1 9 7 7 ) .
such
-
-
71
'These r e s u l t s i n d i c a t e t h a t t h e r e
and
a d a p t a b i l i t y on
groups of the
the
i s a high
o f f e r side of
flexibility
labour.
For
certain
u n e m p l o y e d , enormous e n c u m b r a n c e s a r i s e
a f t e r - e f f e c t s of t h e i r adaptation:
loss of earnings,
occupational
l o s s of
d e c l i n e or
as
qualifications,
recurring
unemployment.'^
A comparison of the
a c t u a l a t t i t u d e of the
the b e h a v i o u r expected from the
discrepancy
administration,
I t seems o b s o l u t e l y
employer, i n order
the
unemployed a f t e r r e i n t e g r a t i o n .
E m p l o y e r s use
supply
cheap l a b o u r .
to avoid
this;
on
market p o l i c i e s ,
'adequacy' o f
as
job o f f e r s
The
the
e m p l o y e r s ' b e h a v i o u r by
labour
of labour
labour
used t o , jobseekers
of high
and
The
formulating
seen i n the
although l e g a l l y ,
stances of the
more as
often lose their
unemployment
labour
i s t h a t the
jobseekers
Thus, jobseekers
they
more
reinforce
repressive
the
than they have been
faith
i n d i v i d u a l needs
cannot receive
should
may
i n placement
a d m i n i s t r a t i o n i n times
bë
see
first
priority,
personal
taken i n t o
the placement
a s a n c t i o n i n g body t h a n a s e r v i c e
seekers i n f l u e n c e the behaviour of the
service
organisation.
clients.
to escape the
agents' p o t e n t i a l s a n c t i o n i n g
avoid
with
for
Ch.
l i e i n the
Brinkmann
dearth
( 1 9 7 7 ) , p.
of
with
joborder
clients
Another reason
the
registered jobs.
219.
In
power,
a g e n t whenever p o s s i b l e .
the d i s s a t i s f a c t i o n of jobseekers
a g e n c y may
(1)
the
circum-
consider-
T h e s e p o w e r r e l a t i o n s b e t w e e n p l a c e m e n t a g e n t s and
contact
of
get
example of
' t h e q u a l i f i c a t i o n s and
jobseekers
to
for
( C h a p t e r 3 . 1 . 1 . ) . Because employees are
dilemma of the
wishes of the
ation' .
that
administration -
contrary,
f o r c e d t o work under w o r s e . c o n d i t i o n s
agents.
necessary
to prevent vocational decline
the -excessive
q u a l i f i e d , but
the
the
a d m i n i s t r a t i o n t r y t o c r e a t e more i n c e n t i v e s
the
i s unable
and
b e t w e e n demands o f c l i e n t s and the p o t e n t i a l o f the labour
m a r k e t becomes o b v i o u s .
the-labour
unemployed
placement
One
of
the
- 72
r e s u l t s of the I A B - p r o j e c t
-
shows t h a t o n l y t w e n t y p e r
o f the unemployed have found t h e i r
office.
We
do n o t know enough a b o u t t h e
expectations
o n l y a few
seekers
e m p i r i c a l studies touch
w i t h the
In Heidtmann's study
the
labour
jobseekers'
of the p u b l i c placement agency.
experiences
vis-a-vis
job through the
cent
Unfortunately
s u b j e c t of
job-
labour a d m i n i s t r a t i o n .
o f 1974 ^ ,
a t t i t u d e s of the
t h e p l a c e m e n t a g e n t s a r e d e s c r i b e d by
profiles.
H e r e , a g e n t s w e r e f o u n d t o be
'reserved'
and
clients
polarity
'pleasant',
'economical'.
T h e s e r e s u l t s m i g h t be
d i d n o t d e p e n d on
the
a symptom o f a t i m e when
jobseekers
labour o f f i c e because of a
demand f o r l a b o u r on. -the
large
free"market.
(2)
The
IAB
survey
concerning
o f unemployed
the c l i e n t s '
i n c l u d e d a few
s a t i s f a c t i o n w i t h the
cent
of those
questions
placement
service.
S i x t y - t h r e e per
interviewed
expressed
t h e i r s a t i s f a c t i o n w i t h the s e r v i c e s of
the
p l a c e m e n t department. Their main p o i n i s o f c r i t i c i s m
t h a t they
had
t h e i r money.
following:
c e n t ) , and
to w a i t too
T h o s e who
long i n the o f f i c e ,
were d i s s a t i s f i e d blamed
coldness",' t o o m u c h ' b u r e a u c r a c y
little
Heidtmann
and
e f f o r t on
the p a r t of the
(49.8
were
for
the
per
placement
(1)
W.
(1974).
(2)
T a k i n g i n t o c o n s i d e r a t i o n t h a t t h e s u r v e y was made
by t h e BA, we c a n assume t h a t t h e i n t e r v i e w e e s w e r e
r a t h e r i n c l i n e d to give p o s i t i v e answers.
- 73 -
agent t o look f o r a new j o b (43.2 p e r cent)
. Some o f the c r i t i c a l
p o i n t s can be found i n the h i g h work-load o f the placement agents.
Still
a h i g h number o f c l i e n t s
l a c k o f f r i e n d l i n e s s described.
see
should not n e c e s s i t a t e the
From e m p i r i c a l r e s u l t s ,
that the majority of jobseekers
w i t h the placement s e r v i c e .
c o n s i d e r i n g t h a t unemployment
d e c l i n e i n the long run.
seem
t o be
These r e s u l t s
we
satisfied
are a s t o n i s h i n g ,
o f t e n means o c c u p a t i o n a l
A s we do n o t h a v e more
s i v e i n f o r m a t i o n on t h e j o b s e e k e r s
1
comprehen-
perception of the labour
a d m i n i s t r a t i o n , we a r e n o t a b l e t o e x p l a i n t h e
discrepancy
between the f a c t t h a t o n l y 20 per cent are placed by the labour o f f i c e s ,
and the jobseekers
istration.
1
s a t i s f a c t i o n w i t h the s e r v i c e s o f the labour admin-
The discrepancy may be e x p l a i n a b l e i n t h a t jobseekers a r e
u n w i l l i n g t o b i t e the hand t h a t feeds them, so t o speak.
I f we c o n t i n u e
on t h e a s s u m p t i o n t h a t j o b s e e k e r s
tend
t o be
s a t i s f i e d , we s h o u l d k e e p i n m i n d t h a t p l a c e m e n t a g e n t s
two d i f f e r e n t c l i e n t g r o u p s :
employers.
jobseekers
o f t e n have i n c o m p a t i b l e
(1)
as w e l l a s
A p l a c e m e n t s e r v i c e c a n o n l y be c a l l e d
o r i e n t e d , i f i t meets t h e needs o f b o t h
demands.
T h o s e who w e r e d i s s a t i s f i e d ,
have
client-
t a r g e t groups,
who
In a pilot-study,
answered:
- No b a d e x p e r i e n c e
- I h a d t o w a i t t o o l o n g f o r my
money
- The a g e n t d i d n o t c a r e enough
a b o u t f i n d i n g a new j o b
.
- They were n o t p o l i t e enough, t h e y
were t o o b u r e a u c r a t i c
- I h a d d i f f i c u l t i e s i n f i n d i n g my
way
-\to t h e l a b o u r o f f i c e
- The w a i t i n g p e r i o d was t o o l o n g .
- The a g e n t d i d n o t d e v o t e e n o u g h
t i m e t o my p l a c e m e n t
- I was b a d l y a d v i s e d b y t h e a g e n t ,
he was n o t w e l l i n f o r m e d
- Other bad e x p e r i e n c e s
. ...
2.2
%
35.7 %
43.2 %
49.8 %
9.7 %
28.5 %
29.0 %
20.9 %
14.4 %
multiple
answers
possible
-
S.
Schmidt
found out
much s t r o n g e r
who
they are
opinions
i n the
the
that job a p p l i c a n t s
of the
s e r v i c e than
i s much
thus obtain,
Schmidt deducts from h i s
to
groups.
non-transferable,
them i n mind, i n d i s c u s s i n g t h e
the
empirical
respect
r e s u l t i n d i s s e r v i c e f o r other
the American r e s u l t s are
have
employers,
a d m i n i s t r a t i v e procedure
that service effectiveness with
g r o u p may
tend to
it.--
e m p l o y e r s ' g r o u p s , who
s e r v i c e s they need.
results
-
l e s s d e p e n d e n t on
F a m i l i a r i t y with
higher
74
we
one
Although
should
r e s u l t s of the
keep
following
chapter.
The
labour
a d m i n i s t r a t i o n can
seekers i n the
fulfil
t h e needs o f
job-
f o l l o w i n g ways:
I n t i m e s o f l o n g - t e r m u n e m p l o y m e n t i t seems i n e v i t a b l e t h a t
t h o s e who
are
t i v e l y bad
out
jobs.
o f a j o b are w i l l i n g t o a c c e p t
I n many e m p i r i c a l s t u d i e s
m e n t i o n e d above) we'see t h a t j o b s e e k e r s
enough.
R e l a t i v e l y few
of the
change t h e i r r e s i d e n c e
surveys of the
IAB
fifty
these r e a l i t i e s ,
situation,
per
change o f o c c u p a t i o n
cent of the
necessitated
f a c t s by
mobile
by
time.
However,
labour
s m o o t h l y due
On
t h e BA's
to a
the
labour
lower s a l a -
Submission
t h e bad
jobseekers..
and
to
to
market
realistic
other
repressive
market p o l i c y .
T h o s e who
t r y to f i n d a job through the
without searching
(1)
those
unemployed are p r e p a r e d
'hand, s u b m i s s i o n i s r e i n f o r c e d by
labour
are not
show t h a t r e i n t e g r a t i o n i n t o t h e
occurs r e l a t i v e l y
acceptance of the
(some o f
o r w o r k f o r l o w e r wages.'
m a r k e t . i s combined w i t h
ries nearly
compara-
p r i y a t e l y are
placement agency
often e i t h e r handicapped
S. S c h m i d t (1977) t r i e d t o m e a s u r e t h e A m e r i c a n
Employment S e r v i c e ' s e f f e c t i v e n e s s from the c l i e n t s '
perspective.
He i n t e r v i e w e d 500 e m p l o y e e s and
300
j o b a p p l i c a n t s of t h r e e Employment S e r v i c e d i s t r i c t s
i n a m i d w e a t e r n s t a t e by m a i l e d
questionnaires.
or
- 75
passive;
for
some may
be
i n t e r e s t e d i n remaining
a certain period.
confronted with
'unable'
-
Thus, the placement agents
' s o - c a l l e d ' problem cases:
to find
a j o b by
The
selected groups of jobseekers
too l i t t l e
time
real clients,
their
The
many
are
of
these
p r e j u d i c e s . t h e placement
As
the agents have
to
a d m i n i s t r a t i v e f u n c t i o n s , they
have
to devote themselves to the problems of
t h o s e who
their
a c t u a l l y are u n a b l e t o f i n d work
s t r o n g e r t h e b u r e a u c r a t i c o r i e n t a t i o n o f the a g e n t ,
they handle t h e i r c l i e n t s .
e v a l u a t i n g agents say
lack thereof.
every
two
years
s c a l e reads
'determined,
nothing
about
Those
on
'client-orientation'
' s o c i a l behaviour'.
f r o m one
' c o n g e n i a l and
The
help';
middle
natural authority .
the
the
top,
and
T h u s , an i n t e r a c t i o n p a t t e r n f o r
agent-client relationship i s already fixed.
The
the
best agent .
c h a r a c t e r i z e d as b e i n g d o m i n a n t o v e r p a s s i v e
3.3.2.
judged
of
a p e r s o n a l i t y of strong s e l f - c o n f i d e n c e
1
or
A s c a l e i s used
to seven.
readyto
the
statistics
Labour o f f i c e employees are o f f i c i a l l y
with points ranging
jobseekers.
Selati-ons_between_Placement_A2
B e t w e e n 1974
and
1975
t h e number o f w o r k p l a c e s
i n d u s t r i a l s e c t o r decreased
t h a t the t e r t i a r y
by
s i x per
s e c t o r i s not
cent.
expected
c a n n o t be
i n the near f u t u r e ;
times
a n t i c i p a t e d f o r the next
a d m i n i s t r a t i o n i s not
in
the
Considering
able to absorb t h i s
p e r c e n t a g e o f u n e m p l o y m e n t , an e x p a n s i v e
high
economy c a n n o t
of f u l l
few y e a r s .
As
able to s t r i k e t h i s balance
a t t e n t i o n e i t h e r to reducing
the
be
employment
the
labour
force or
m o t i v a t i n g e m p l o y e r s t o c r e a t e more w o r k p l a c e s .
labour
with
c o n v e n t i o n a l m e a s u r e s , many l a b o u r m a r k e t p o l i t i c i a n s
their
on
own.
more r e s t r i c t i v e l y
is
who
actual
characteristics
agents a g a i n s t t h e i r c l i e n t s .
a great
are
people
themselves under the
labour market.conditions.
fulfil
unemployed
direct
to
-
On t h e l a t t e r
concerned w i t h
published.
firms.
a 'number o f e m p i r i c a l
i n t r a p l a n t manpower p l a n n i n g
Interviews
they have o n l y
the
strategy,
-
76
with
scarce
studies
have been
t h e p l a c e m e n t a g e n t s show
information
o n manpower p o l i c i e s i n
B e s i d e t h e w a r n i n g s y s t e m c o n c e r n i n g mass
d i s m i s s a l s , the labour
a d m i n i s t r a t i o n h a s no l e g a l means
t o g e t more d e t a i l e d i n f o r m a t i o n
about t h e f i r m s ^ .
p l a c e m e n t a g e n t s do n o t h a v e e n o u g h t i m e t o c o n t a c t
regions'
that
firms r e g u l a r l y , they normally
first
As
their
realise
'what i s g o i n g o n i n t h e f i r m , when t h e d i s m i s s e d
workers
register'.
3.3.3.
55}Ei£i25l_522Hl§^2§_22_^2E2H§£_£l§22i2£f
Whereas
in
s t u d i e s o n manpower p l a n n i n g
the United
States
i nthe sixties,
was n o t t a k e n up i n Germany u n t i l
first
studies
managers
the
- were p u b l i s h e d
researchers
planning
this research
subject
the early seventies.
The
by t h e ' I n s t i t u t f u r S o z i a l w i s s e n A s i n t r a p l a n t manpower
i s independent o f a l l outside
exception
published
- except l i t e r a t u r e w r i t t e n f o r personnel
s c h a f t l i c h e Forschung' i n Munich.
planning
were a l r e a d y
interference
(with
o f t h e m i n i m a l i n f l u e n c e o f t h e work c o u n c i l s ) ,
h a d t o g a i n a b a s i c k n o w l e d g e o f how manpower
i s p r a c t i s e d from t h e f i r m s themselves.
' i n t r a p l a n t employment p o l i c y
l o n g - r a n g manpower p l a n n i n g
1
i s more a c c u r a t e ,
i s a c t u a l l y only
The t e r m
because
a p p l i e d by
(2)
8.5 p e r c e n t o f a l l f i r m s
(1)
v
.
I n t e r v i e w s w i t h o f f i c i a l s i n t h e l a b o u r o f f i c e s made
c l e a r t o a n a l a r m i n g e x t e n t how l i m i t e d t h e i r k n o w l e d g e
o f i n t r a p l a n t employment p o l i c y i s . A l t h o u g h e v e r y
newspaper c a r r i e d s t o r i e s t o t h e e f f e c t t h a t t h e s h i p b u i l d i n g i n d u s t r y i n K i e l was f o r c e d t o d e c r e a s e i t s
l a b o u r f o r c e , nobody c o u l d g i v e e x a c t f i g u r e s .
Stat i s t i c a l d a t a p r o t e c t i o n r u l e s p r e v e n t anybody, even
the a d m i n i s t r a t i o n , from i d e n t i f y i n g f i g u r e s f o r i n d i v i d u a l f i r m s ' . As s h i p b u i l d i n g f i g u r e s c o u l d e a s i l y b e
i d e n t i f i e d , t h e c e n t r a l - s t a t i s t i c s s e r v i c e does n o t
p r i n t t h e i r f i g u r e s s e p a r a t e l y , b u t l u m p s them t o g e t h e r
with those o f v e h i c l e c o n s t r u c t i o n firms.
(2) E. G a u g l e r
( 1 9 7 4 ) , p. 30.
-
The
studies,
' w h i c h we
77
-
shall discuss shortly, deal
three research questions:
1)
what a r e
the e f f e c t s
i n t r a p l a n t e m p l o y m e n t p o l i c y on
e m p l o y e e s , and
t h i s a f f e c t the
2)
trade unions
personnel
The
found i n the orders
3)
how
can
received.
Part-time
orders
and
work
i n hand s u p p l y work f o r a t l e a s t t h r e e
characteristics:
in production,
in
general.
or d i s m i s s a l
orders
( i . e . f o r a t l e a s t one
u n s k i l l e d workers are r e c r u i t e d
Employers a l s o t r y not
year).
i f the
months.
to dismiss workers w i t h the f o l l o w i n g
h i g h l y q u a l i f i e d workers,
those
employed
f u l l - t i m e employees, o l d e r workers,
These employment s t r a t e g i e s s u p p o r t
labour p o l i c y .
of
Additional
e m p l o y m e n t i s f e a s i b l e o n l y when t h e . p r o s p e c t
guarantee long-range
does
policy
i n recruitment
g i v e n and
Germans
segmented
Mendius/Sengenberger t a l k of a ' s t a b l e '
and
a 'variable'
and
f o r e i g n e r s f i t i n t o the v a r i a b l e segment, w h i c h i s
called
the
labour force.
U n q u a l i f i e d workers,
'secondary labour market'.
consists of h i g h l y - q u a l i f i e d workers,
workers,
The
and
d i s a b l e d persons.
and
legally
market"
permanent
industry, or
Long-range i n t e g r a t i o n of l a b o u r ,
d i s p o s a b i l i t y on t h e o t h e r , a r e t h e
s t r a t e g i e s of the employers.
Because the
c o m p l e t e i n f o r m a t i o n on
labour
every
t i n g of i n f o r m a t i o n i s expensive,
t h e e m p l o y e r d e c i d e s w h a t he c a n
groups w i t h o u t
women
'primary
s u c h as o l d e r w o r k e r s i n t h e m e t a l
flexibility
an
intraplant
used t o implement l a b o u r
main determinant
of
what i s the r o l e
i n employment p o l i c y ?
d e c i s i o n s be
measures?
is
labour market?
how
with
and
main
f i r m s seldom
f o r c e , and
the
i t seems o b v i o u s
has
collecthat
expect
from c e r t a i n worker
(2)
o r i e n t i n g himself to the i n d i v i d u a l '
(1)
E. G a u g l e r ( 1 9 7 4 ) ;
H.G.. M e n d i u s e t a l . ( 1 9 7 6 ) ;
H.
K o h l (1976);
J . Kühl ( 1 9 7 6 ) ;
G. N e r b / L . R e y e r / E .
S p i t z n a g e l (1977);
F. W e l t z ( 1 9 7 6 ) .
(2)
H.G.
M e n d i u s e t a l . , (1976) p.
38.
-
78
-
Weltz d e s c r i b e s the employers' s t r a t e g i e s i n the f o l l o w i n g
more g e n e r a l
manner:
Their goal formulations
are
'1)
t o t r y t o d e p e n d as
as p o s s i b l e on t h e e x t e r n a l l a b o u r m a r k e t , and
prevent
to
external factors diminishing .inplant discretion
employment p o l i c i e s . ' ^
e x p l a i n why
and
2)
little
the r e l a t i o n s between the
employers are not
cyclical
T h e s e s t r a t e g i e s may
as
i n t e n s i v e as
help
to
labour administration
they were b e f o r e
the
c r i s i s , when f i r m s w e r e f o r c e d t o s e e k l a b o u r
the e x t e r n a l market.
jobs w i t h the
T o d a y , thé
on
necessity of
l a b o u r a d m i n i s t r a t i o n has
on
registering
decreased
and
the
labour o f f i c e s consequently know l e s s o f the f i r m s ' i n t e r n a l planning.
Unfortunately, no f i g u r e s e x i s t showing the proportions o f r e g i s t e r e d
vacancies
on
compared t o a l l v a c a n c i e s
(2)
a survey
through
by
-dealing w i t h the
t h e IAB
s t a f f of l e s s than
f o r up
demand o r l a b o u r
i n 4,644 f i r m s ) ,
100
i n the long-run.
those
firms with
cent of a l l vacancies,
b i g p l a n t s announced n i n e t y per cent
of t h e i r
An
i n 1975
results:
carried
through
i n the placement s e r v i c e f o r seventy-seven
other
f o r s k i l l e d workers,
employees t h i r t y - t w o per
lower
here,
of the producing
s i n c e the
showed
called
cent of a l l
s i x t y - s e v e n per cent,
(3}
cent of the time
surveys
Secondly,
i n d i c a t o r o f r e c r u i t m e n t s made.
twenty-two per
similar
firms
.
for
A
look
f i g u r e s are
included only
s e c t o r , w h i c h c o m p r i s e s o n l y one
the whole labour market.
real
whereas
per
a t t h e e n t i r e l a b o u r m a r k e t shows t h a t t h e s e
certainly
a
vacancies.
i n searching f o r u n s k i l l e d workers,
vacancies;
(carried
c a l l e d upon t h e p l a c e m e n t s e r v i c e
to s i x t y - s i x per
employers' survey
Based
firms
third
r e g i s t r a t i o n i s not
I n 1973,
of
a
only
cent of a l l job placements occurred
through
the labour a d m i n i s t r a t i o n .
We
see
t h a t the
the higher
lower
t h e use
the q u a l i t y of the
labour
demanded,
o f t h e placement, s e r v i c e .
F.
Weltz:
(1976),
(2)
J.
Kuhl
(3)
G.
Nerb/L. Reyher/E. S p i t z n a g e l
(1976),
p.
p.
12.
434.
(1977),
p.
185.
- 79 -
T h e s e f i n d i n g s l e a d us t o o u r own e m p i r i c a l r e s u l t s ,
which
show t h e same t e n d e n c y .
3.3. 4.
In
?5}Ei2Y®£§l_§ÈEâ£ê3iêË_iB_!îyi2_Î!â^2H£_^â£]SËt»5Ë2i2D§
times
o f h i g h unemployment, v a c a n c i e s
One o f t h e m a i n f u n c t i o n s o f t h e l a b o u r
register
as many j o b o f f e r s
person i s expensive
as p o s s i b l e .
are i n short
supply.
administration i s to
As e a c h
unemployed
t o t h e government, each o f f e r e d j o b
p o t e n t i a l l y means t h e s a v i n g o f g r e a t e x p e n s e s .
placement agents have t o convince
The
employers t h a t i t i s
advantageous t o r e g i s t e r v a c a n c i e s .
Therefore,
the labour
a d m i n i s t r a t i o n has t o implement p u b l i c r e l a t i o n s t r a t e g i e s . .
It
holds
true f o rboth
o f t h e a d m i n i s t r a t i o n s we s t u d i e d ,
t h a t t h e number o f w o r k p l a c e s i n a l l b r a n c h e s shows a
downward movement, s o t h a t v a c a n c i e s
As we h a v e s e e n i n t h e p r e v i o u s
are scarce.
chapter,
t h e mismatch
b e t w e e n j o b o f f e r s a n d j o b demands l e a d s t o a r e l a t i v e
disregard of the jobseekers'
needs.
As i n t e r a c t i o n
p l a c e m e n t agents and employers c a n n o t be o b s e r v e d ,
to
use another
instrument
between
we h a d
t o l e a r n more a b o u t t h e
c o - o p e r a t i o n between agents and t h e i r c l i e n t s
on t h e demand
side.
interviews
We c a r r i e d t h r o u g h
with personnel
managers o f i n d u s t r i a l p l a n t s and e n t e r -
prises of the t e r t i a r y
The
a s e r i e s o f focused
sector'^ .
main s u b j e c t s o f t h e i n t e r v i e w s were t h e g e n e r a l
recruitment p a t t e r n , co-operation w i t h the placement
s e r v i c e , and o t h e r
and
forms o f i n t e r a c t i o n between
employers
the l o c a l o f f i c e s with respect t o the implementation
programmes.
We w i l l
first
g e n e r a l manpower p l a n n i n g
Answering questions
g i v e some r e s u l t s
referring to
behaviour.
concerning
t h e g e n e r a l manpower
development d u r i n g t h e ' l a s t three y e a r s , a l l p e r s o n n e l
(1)
The s a m p l e o f f i r m s i s l i s t e d
i n Table
of
I , Appendix.
- 80
-
managers o f i n d u s t r i a l p l a n t s , c o m m e r c i a l e n t e r p r i s e s ,
public service organisations
reduction
the
has
general
occurred
t o be
p r o d u c t change.
necessity
are:
w i t h i n the
reason that
were e x p l a i n e d
The
labour
enormous
l a s t three
i s too
staff
years.
Beside
e x p e n s i v e , the
causes
r a t i o n a l i s a t i o n , decrease of order,
employers t r i e d
of reduction
by
to deal with
or
the
d i f f e r e n t means, some e x a m p l e s
'natural reduction',
v a c a n t by
s t a t e d t h a t an
and
i . e . p o s i t i o n s w h i c h became
f l u c t u a t i o n were not
filled
again;
premature
retirement or d i s m i s s a l s .
I f d i s m i s s a l s took p l a c e , they
concerned mostly u n q u a l i f i e d and i n t h e i r o p i n i o n u n d i s c i p l i n e d workers.
P r e s e n t l y , m o s t f i r m s do
not
n e e d much l a b o u r .
h i g h l y q u a l i f i e d workers i n the
only
a few
substitues
r e t i r e o r change
Our
shipbuilding industries,
a r e demanded f o r t h o s e w o r k e r s
the q u e s t i o n
r e c r u i t t h e i r personnel i n times of high
should
recruitment
Especially with respect
i n f l u e n c e the
the
patterns
searching
s u c h as
the
using
the
be
2)
to the
In
we
t h e manner
of
engagement
first
stage,
cer-
V a r i a b l e s w h i c h '•
firms are:
first.,
second, f i r m - s p e c i f i c f a c t o r s ,
be
third,
s i z e of the
firm.
done i n s e v e r a l ways:
i n f o r m a l c h a n n e l s , s u c h as
f i r m fo'r s u i t a b l e
asking
the
staff
of
applicants
b)
i n p l a n t announcements
c)
using
d)
a d v e r t i s i n g i n trade
journals
e)
advertising in daily
newspapers
f)
using
D e p e n d i n g on
the
behaviour of the
can
1)
observed.
e c o n o m i c b r a n c h ; . and
Looking for applicants
a)
can
q u a l i f i c a t i o n s needed;
employers
unemployment.
phases:
l o o k i n g f o r p o t e n t i a l e m p l o y e e s and
tain behavioral
o f how
procedure of employers,
d i f f e r e n t i a t e b e t w e e n two
pattern.
who
jobs.
m a i n i n t e r e s t f o c u s e s on
speaking of the
Outside
a p r i v a t e placement agency
the p u b l i c placement
the
service
t a r g e t g r o u p , e m p l o y e r s use
channels or combinations thereof.
One
different
constant
i s that a l l
-
industrial
firms c a l l
-
81
i n t h e p l a c e m e n t s e r v i c e when t h e y
need b l u e - c o l l a r w o r k e r s . O n l y h a l f o f t h e
industrial
firms
use
the placement s e r v i c e to f i n d w h i t e - c o l l a r workers
for
low
and
a
few
medium p o s i t i o n s . F o r
firms c a l l
(ZAV)
i n the
highly qualified
Zentralstelle fur
or C e n t r a l Placement O f f i c e i n
E v e n when u s i n g
all
1
labour,
Arbeitsvermittlung
Frankfurt.
t h e p u b l i c p l a c e m e n t s e r v i c e , one
p e r s o n n e l managers a d v e r t i s e i n t h e
third
f i r m s g e n e r a l l y a d v e r t i s e when t h e y r e a l i s e
the
o f f i c e i s not
labour
force. Within
tertiary
varies. Hospitals
and
specialists
(nurses,
o r bank c l e r k s ) t h e r e
a p p l i c a t i o n s e v e n when no
r e f e r t o when v a c a n c i e s
vacancies
occur.
sector,
banks need
n e i t h e r to r e g i s t e r at the placement o f f i c e nor
For
that
capable of o f f e r i n g a s u i t a b l e
e n t e r p r i s e s o f thé
t h e manner o f s e a r c h i n g
of
l o c a l p r e s s as w e l l .
Industrial
labour
1
advertise.
are
written
e x i s t , which they
I f they address
then
themselves
to the placement s e r v i c e , i t i s f o r u n s k i l l e d workers.
In
commercial e n t e r p r i s e s behaviour i s l e s s standardised.
It
o f t e n s u f f i c e s t o put
firm
itself.
who
' I f an
i s himself
e n o u g h . An
up
a j o b - o f f e r n o t i c e w i t h i n the
a p p l i c a n t i s recommended by
a g o o d man,
we
can
be
s u r e h e ' l l be
employee would never suggest a
whereas the placement agent i s f o r c e d
jobseekers.'
Not
s e r v i c e s , as
there
the
a s t a f f member
'risk'
candidate
t o o f f e r us
e v e n f o r t e m p o r a r y w o r k do
good
unknown
t h e y use
are enough p e r s o n s l o o k i n g
f o r jobs
f r e e market. Because department s t o r e p e r s o n n e l
m o s t l y women, t h e
a great
resource
p e r s o n n e l managers can
o f women who
market from time to time,
but
fill
t o go
on
are
vacancies
withdraw from the
are w i l l i n g
the
from
labour
b a c k when
needed.
In p r a c t i c e , employers only
vacancies
labour,
inform
the
labour
agency
f o r u n q u a l i f i e d w o r k e r s ; t h e more s k i l l e d
t h e more t h e
employers t r y t o use
other
of
the
channels.
- 82
-
A l t h o u g h t h e g r e a t m a j o r i t y o f e m p l o y e r s we
the
placement
s e r v i c e t o some e x t e n t , t h e
interviewed
placement
s e r v i c e does n o t n e c e s s a r i l y h e l p i n r e c r u i t i n g .
the
Most of
i n t e r v i e w e e s s t a t e d t h a t m o s t a p p l i c a n t s s e n t by
labour o f f i c e d i d not q u a l i f y
their
dissatisfaction
for their
jobs.
the
Reasons f o r -
follow:
Most o f t h e p e r s o n n e l managers s a i d t h e
u n e m p l o y e d do n o t f u l f i l
wanted.
use
registered
the q u a l i f i c a t i o n
standards
A few g r o u p s o f s k i l l e d w o r k e r s , s u c h as
ship-
b u i l d e r s , are not r e g i s t e r e d w i t h the labour a d m i n i s t r a t i o n .
One
of the reasons i s that dockyards i n b i g c i t i e s
Hamburg pay more t h a n i n K i e l .
needed,
F o r most o f t h e o t h e r
i n the labour o f f i c e s .
specifications:
of
their
p e r s o n n e l managers c o m p l a i n t h a t t h e y
c a n n o t f i n d good s e c r e t a r i e s .
thousand s e c r e t a r i e s
A t t h e same t i m e , n e a r l y
and o f f i c e w o r k e r s w e r e
as u n e m p l o y e d i n t h e l o c a l
labour o f f i c e .
a mismatch
if
are u n r e a l i s t i c a l l y high.
criteria
registered
I t would
wrong t o c o n s i d e r t h i s
recruiting
they
Employers
s o m e t i m e s do n o t g e t t h e l a b o u r t h e y n e e d b e c a u s e
one
skills
workers are i n f o r m a l l y r e f e r r e d t o the f i r m s ;
never even appear
own
like
between o f f e r
be
a n d demand
Qualific-
a t i o n s w h i c h seem t o be more and more i m p o r t a n t a r e
personality characteristics
and g o o d m a n n e r s .
of
the employers
s u c h as p u n c t u a l i t y ,
In times of high
go up.
As
discipline
unemployment,requirements
the l a b o u r a d m i n i s t r a t i o n
d o e s n o t know
w h a t t h e f i r m s w a n t , i t c a n o n l y j u d g e i f an
applicant f i t s
a v a c a n c y on t h e b a s i s o f
vocational
qualifications.
Summing up t h e r e a s o n s why
t h e y n e e d , we
can say the f o l l o w i n g :
f e s s i o n s does t h e r e e x i s t
cants;
e m p l o y e r s do n o t g e t t h e l a b o u r
a real
O n l y i n a few p r o -
lack of q u a l i f i e d
some o f t h e i m b a l a n c e s o r i g i n a t e f r o m u n f a v o u r a b l e
c o n d i t i o n s s u c h as l o w e a r n i n g s o r b a d w o r k i n g
One
of the main causes f o r the mismatch
relatively
consequence
One
unrealistic
conditions.
seems t o be
the
requirements of the employers,
a
o f h i g h unemployment.
s t a t e m e n t shows how
changed
appli-
the e x p e c t a t i o n s of employers
i n dependence o f the l a b o u r market
situation:
have
' F o r two
years
have i n f o r m e d
I h a v e had
employee I have.
others.'
workers,
Nevertheless,
t o f i n d someone b e t t e r t h a n
I f I f i n d someone g o o d , I c a n
dismiss
'dependable'
a f f i l i a t e d w i t h the p l a n t f o r a long time.
a r e e x p a n d e d by
career planning.
short periods
internal
A d d i t i o n a l workers are placed
according
to h i r i n g
i t i s not worthwhile
for
them.
The
'dual labour market
thus begins
1
and
firing
market, there e x i s t s
low
of workers a r i s e s .
is d i f f i c u l t to place
structure
force with
Thus, a t w o - c l a s s
m a j o r i t y of the
to the
them i n t o l o n g - t e r m
jobs.
who
a r e o f t e n unemployed a r e
second-class
All
personnel
to
f o r a j o b by t h e m s e l v e s ,
are b e t t e r a p p l i c a n t s than
the placement s e r v i c e .
announce t h e i r v a c a n c i e s
same t i m e
labelled
Those workers
managers i n t e r v i e w e d p o i n t e d o u t
advertisements
or i n response
those
i n order
sent
E v e n t h o s e who
do
Doeringer/M. P i o r e
r e g i s t e r e d as
(1971).
the
the
not
clients.
s t i g m a t i z a t i o n , placement a g e n t s have a
poor chance of p l a c i n g those
by
firms
to widen
a d v e r t i s e i n newspapers p r e f e r non-labour o f f i c e
P.
those
to the labour o f f i c e w h i l e at
chance o f f i n d i n g good w o r k e r s .
(1)
workers.
that
T h u s , a g r e a t number o f
a d v e r t i s i n g independently,
Because of t h i s
the
' s e c o n d a r y l a b o u r m a r k e t ' , and i t
system.
apply
high
system
c l i e n t e l e of
Employers c o n t r i b u t e to the two-class
a p p l i c a n t s who
placement
i n a d d i t i o n t o the i n t e r n a l labour
job s e c u r i t y .
labour o f f i c e belong
the
t o i n v e s t much i n l o o k i n g
an u n q u a l i f i e d l a b o u r
The
for
principles.
(Doeringer/Piore^)
to reveal i t s e l f ,
f l u c t u a t i o n and
Often,
further training
Employers t r y to r e c r u i t such workers through
s e r v i c e , as
I
the
Employers t r y to c r e a t e a stock of
qualifications
and
vacancies.
t h e p l a c e m e n t s e r v i c e o f some p o s i t i o n s f o r
which I would l i k e
two
no
unemployed.
- 84 -
The
p l a c e m e n t a g e n t s know t h a t t h e y o f t e n g e t ' p s e u d o -
offers'.
the
A s many o f t h e f i r m s i n s e r t i n t h e n e w s p a p e r s a t
same t i m e ,
they conceal
t h e agents suggest t o t h e i r
to increase
From t h e a g e n t s ' v i e w - p o i n t ,
vancancies are reported,
insured
The
that
t h e f a c t t h a t t h e y have been s e n t by t h e
placement o f f i c e
be
clients
their
chance o f b e i n g
employed.
e v e n i f 100 p e r c e n t o f a l l
a greater placement success would not
s i n c e f i r m s p r e f e r a p p l i c a n t s from t h e f r e e market.
e m p l o y e r s ' s t r a t e g y o f r e g i s t e r i n g w i t h t h e employment
office
but recruiting
with respect
to their
o u t s i d e , narrow the agents'
internal controls.
success
One i n d i c a t o r
of a s u c c e s s f u l placement s e r v i c e i s the p e n e t r a t i o n
i.e.
rate,
t h e number o f p l a c e m e n t s . c o m p a r e d t o a l l r e g i s t e r e d '
jobseekers
and v a c a n c i e s .
According
t o these
F r e i b u r g r a t e s second t o l a s t o f a l l o f f i c e s
area.
This
methods
lists,
i n t h e Länder
i s , however, an i n d i c a t i o n o f t h e f i r m s '
• of searching,
not of placing with the help of
the p u b l i c placement s e r v i c e .
e n t i a t e between s e r i o u s
of the vacancies
A g e n t s now t r y t o d i f f e r -
and pseudo-job o r d e r s
so t h a t
do n o t a p p e a r i n t h e s t a t i s t i c s .
the placement department can i n c r e a s e
some
Thus,
i t s penetration
rate
statistics.
When a s k e d i f t h e y w e r e s a t i s f i e d w i t h
the services of the
p l a c e m e n t d e p a r t m e n t , many e m p l o y e r s s t r e s s e d t h e f a c t
the
labour
'bad'
all
a d m i n i s t r a t i o n c a n n o t be made r e s p o n s i b l e f o r
jobseekers.
With the exception
of those interviewed
fifty
o f one manager,
expressed the opinion
that
between
and s e v e n t y p e r c e n t o f a l l r e g i s t e r e d unemployed a r e
u n w i l l i n g t o .work.
is
that
I t i s l e f t open whether t h i s
p r e j u d i c e , o r b a s e d on e x p e r i e n c e .
opinion
Many p e r s o n n e l
mana-
gers complained about t h e f a c t t h a t t h e placement agents
o f t e n send t h e most d i f f i c u l t j o b s e e k e r s ,
workers.
clients
Other personnel
a r e sent
'availability
not
i n order
such as d i s a b l e d
managers have r e a l i z e d t h a t
t o be a b l e
f o r the labour market'.
some
to register their
Firms obviously
e n j o y s p e n d i n g t i m e a n d money i n o r d e r
do
t o pursue con-
- 85
trolling.functions
managers respond
-
f o r the labour a d m i n i s t r a t i o n . Personnel
to these
'tests' differently:
some t r y t o
f i n d o u t w h e t h e r an a p p l i c a n t i s ' w o r k - s h y ' o r n o t , and
i n f o r m the placement agents
n o t h e l p by
of t h e i r
experiences; others
s i m p l y s t a t i n g t h a t t h e a p p l i c a n t i s 'not
a b l e ' . B e c a u s e some p e r s o n n e l m a n a g e r s h a v e h a d
of
h a v i n g t o s w e a r by t h e i r
when a j o b s e e k e r a p p e a l s
statements
'co-operate'
the
seem t o know w h i c h
w i t h t h e m , and w h i c h
suit-
under o a t h i n the
any
difficulties.
n o t . Sometimes
court
labour
p e r s o n n e l managers
will
do
experience
a g a i n s t the judgement of the
a d m i n i s t r a t i o n , they t r y to circumvent
placement agents
then
The
will
they
phone t h e p e r s o n n e l managers i n o r d e r t o announce t h a t
an
a p p l i c a n t i s coming.
A few o f t h e m a n a g e r s i n t e r v i e w e d d i d n o t c o m p l a i n
bombed' w i t h w o r k - s h y j o b s e e k e r s :
w i t h the agents,
The
agents
am
contact
t r y t o s e n d me
one
of these
firm.
lazy
h a v e c h a n g e d j o b s s e v e r a l t i m e s . Among t h o s e
are r e g i s t e r e d ,
but
I have good
'being
t h e y know e x a c t l y w h a t I n e e d f o r t h e
would never
p e o p l e , who
'As
of
I c a n be
t h e r e a r e o n l y a few
i n whom I am
who
interested,
s u r e t h a t I g e t t h e b e s t . . . From t i m e t o t i m e
s e a r c h i n g f o r someone s p e c i f i c '
This statement,
I
which
h o l d s t r u e f o r a m i n o r i t y o f t h e i n t e r v i e w e d m a n a g e r s , shows
t h a t t h o s e e m p l o y e r s who
well,
and
are
s m a l l firms which
'good c u s t o m e r s ' ,
cannot
are
served
o f f e r many j o b s a r e o f t e n
dissatisfied.
The
s a t i s f a c t i o n o f t h e p e r s o n n e l managers w i t h t h e s e r v i c e s
of
the a d m i n i s t r a t i o n corresponds
of
c o n t a c t between the bureaucracy
t o the frequency
and
and
kind
t h e f i r m . Whereas
r e p r e s e n t a t i v e s o f b i g f i r m s know t h e s t a f f o f t h e
the
labour
o f f i c e p e r s o n a l l y , t h e r e a r e o f t e n no r e l a t i o n s b e t w e e n s m a l l
f i r m s and
the s t a f f of the a d m i n i s t r a t i o n f o r the most p a r t .
S m a l l f i r m m a n a g e r s do n o t know t h e name o f t h e d i r e c t o r
or
t h e p l a c e m e n t d e p a r t m e n t h e a d . L a b o u r a d m i n i s t r a t i o n seems t o
- 86 -
pursue a s e l e c t i v e
s t r a t e g y . As t h e y
i n t o touch w i t h every
their
client regularly,
contact t o employers o f l a r g e
According
are not able t o get
they
tend
t o reduce
firms.
t o i n t e r n a l r e g u l a t i o n s , placement agents a r e
obliged to c a l l
r e g u l a r l y on t h e employers.
viewed agents p o i n t e d out, t h e s i t u a t i o n
y e a r s has been such
As a l l i n t e r -
i n t h e l a s t few
t h a t t h e y do n o t h a v e e n o u g h t i m e f o r
p e r s o n a l c o n t a c t . Thus, t h e t a s k o f f o s t e r i n g good
w i t h t h e labour market i smostly
left
relations
t o t h e department head
o f t h e p l a c e m e n t s e r v i c e , and t h e d i r e c t o r . As t h e y
also
have l i t t l e
this
field
time
t o c o n t a c t t h e numerous e m p l o y e r s ,
s e r v i c e i s o f t e n n e g l e c t e d . When t h e e m p l o y e r s who
have p e r s o n a l c o n t a c t w i t h r e p r e s e n t a t i v e s o f t h e l a b o u r
a d m i n i s t r a t i o n were asked
how t h e s e m e e t i n g s come a b o u t ,
they responded t h a t meetings occur
own
initiative.
l a r g e l y through
their
T h i s shows t h a t t h e s t a f f o f t h e l a b o u r
a d m i n i s t r a t i o n remains p a s s i v e w i t h regard t o t h e p r e p a r a t o r y
activities
In
for their mediating functions.
o r d e r t o meet t h e n e e d s o f t h e e m p l o y e r , s t e a d y
u n i c a t i o n must e x i s t .
A g o o d m a t c h b e t w e e n o f f e r and'
supply requires i n t e n s i v e r e l a t i o n s
and
both
comm-
c l i e n t groups.
between t h e mediators
The t r a n s f e r o f i n f o r m a t i o n i s o n e
of the p r e r e q u i s i t e s f o r s u c c e s s f u l implementation.
procedure,
This
one o f t h e b a s i c f u n c t i o n s o f a l l s t e e r i n g
o r g a n i s a t i o n s , c a n be c a l l e d
'Active s o c i a l marketing
'social
marketing':
means a l l i n d i v i d u a l s w i t h t h e
i n f o r m a t i o n and a v a i l a b i l i t y
o f those
1
services/'products
w h i c h w i l l b e s t meet t h e i r p a r t i c u l a r n e e d s i n t h e l a b o u r
market.
The d e v e l o p m e n t o f programmes, p o l i c i e s and
instruments
i s v i t a l , b u t t h e i r mere e x i s t e n c e i s a n
i n s u f f i c i e n t guarantee.
1
^
1 )
A n a l y s i s of the implementation
process
o f a n a d m i n i s t r a t i v e b o d y c a n n o t s t a r t when
service
i s delivered, but rather i n the e a r l i e r
(1)
W. K e y e r / T . S h a r p
( 1 9 7 6 ) , p. 6 3 .
the
stages o f
- 87 -
administrative action.
the
i m p l e m e n t i n g a g e n c y know t h e n e e d s , d i s p o s i t i o n
preferences
of the p o t e n t i a l c l i e n t s ,
effectively.
the
S o c i a l m a r k e t i n g a l s o demands
l a b o u r a d m i n i s t r a t i o n on t h e l o c a l
employers.
communicate
l e v e l i s f a r from
'active s o c i a l marketing' p o l i c y
A l a c k o f c o m m u n i c a t i o n may
p e r c e p t i o n o f t h e two p a r t n e r s
Not b e i n g
to
and
I n t e r v i e w s w i t h t h e e m p l o y e r s h a v e shown t h a t
e f f e c t i n g an
regarding
i n f l u e n c e the mutual
involved.
f a m i l i a r w i t h the problems of the other
l e a d s t o i n c o r r e c t p e r c e p t i o n o f one's
our
i n order
that
interests
partner.
i n i n t e r v i e w i n g e m p l o y e r s was
often
One
of
to f i n d out
how
they p e r c e i v e d the labour a d m i n i s t r a t i o n ' s a c t i v i t i e s .
c o n n e c t i o n w i t h p l a c e m e n t , we
asked questions
In
concerning
the employers' s a t i s f a c t i o n w i t h the s e r v i c e s rendered.
T h e r e w e r e some p o s i t i v e r e a c t i o n s : B e c a u s e t h e p l a c e m e n t
s e r v i c e i s f r e e o f c o s t , employers use i t t o i n c r e a s e t h e
number o f p o t e n t i a l - j o b c a n d i d a t e s ,
even i f the chances
of
f i n d i n g a s u i t a b l e a p p l i c a n t are poor.
I n t h e law i t i s emphasized t h a t placement agents must
the employers of the labour market s i t u a t i o n .
m a n a g e r s who
Those
personnel
had c l o s e l i n k s w i t h t h e a g e n t s g o t m o n t h l y
r e p o r t s on r e g i o n a l l a b o u r m a r k e t d e v e l o p m e n t s . The
vacancies
e m p l o y e r s announce
to the labour o f f i c e ,
more
t h e more
t h e i r b a r g a i n i n g p o s i t i o n i m p r o v e s . T h e r e seems t o be
c o r r e l a t i o n between
the degree t o which employers'
t h e p l a c e m e n t s e r v i c e s , and how
labour market
utilize
w e l l t h e y a r e i n f o r m e d on
managers,
deep d i s s a t i s f a c t i o n w i t h arguments
however,
s u c h as
express t h e i r
these:
p l a c e m e n t agency p e r f o r m s i t s t a s k s t o o b u r e a u -
cratically;
The
a
policies.
The m a j o r i t y o f p e r s o n n e l
The
inform
agents are not f l e x i b l e
enough.
p l a c e m e n t s e r v i c e does n o t work q u i c k l y
'Some w e e k s ago I p u t an a n n o u n c e m e n t o f
on a s i g n - b o r d
labour o f f i c e
enough:
vacancies
i n f r o n t o f t h e f i r m a n d p h o n e d 'the
t o i n f o r m i t o f t h e vacancies.
The next day
-
-
88
twenty a p p l i c a n t s
came i n r e s p o n s e t o t h e s i g n - b o a r d
notice.
later,
Ten days
by t h e p l a c e m e n t
The
the f i r s t
a p p l i c a n t was s e n t
agency.'
a g e n t s d i s r e g a r d o u r demands i n r e g a r d t o s p e c i a l
qualifications:
'Some weeks a g o , I a s k e d f o r u n s k i l l e d
women w i t h g o o d e y e s i g h t f o r a s s e m b l y w o r k .
the a p p l i c a n t s
from t h e l a b o u r o f f i c e wore
Half of
glasses.'
O f t e n a g e n t s c a n n o t be r e a c h e d by p h o n e .
D e a l i n g s w i t h s e v e r a l agents c o m p l i c a t e s t h e co-operation process.
departments
An o r g a n i s a t i o n o f t h e placement
i n l i n e s o f f i r m s w o u l d make i t e a s i e r
f o r us.'
Agents
c a n n o t u n d e r s t a n d management d e c i s i o n s .
criteria
a r e economic;
they are not always
'Our
consistent
w i t h the s o c i a l p o l i c y o b j e c t i v e s o f t h e placement'
agents.'
Placement agents have too much power t o decide- i n d i v i d u a l l y :
'Often, the labour o f f i c e
lets
their staff
muddle
through, not catching t h e i r mistakes i n time.'
'Today, we c a n c e r t a i n l y .do w i t h o u t t h e p u b l i c
placement
services.'
Host o f t h e managers' c r i t i c i s m c o n c e r n s t h e b u r e a u c r a t i c
administrative behaviour.
T h e y a g r e e w i t h j o b s e e k e r s , who
a l s o regarded the placement
oriented.
agent as t o o b u r e a u c r a t i c a l l y
When e m p l o y e r s w e r e a s k e d i f t h e y had' a n y i d e a
o f how t o i m p r o v e
ansv/ered t h a t
the placement
they had
service,
they
never c o n s i d e r e d i t .
unanimously
Clearly,
r e l a t i o n s between t h e l a b o u r a d m i n i s t r a t i o n and t h e
employers
a r e n o t so p r o b l e m a t i c t h a t employers
do n o t u s e
t h e s e r v i c e . ' I n c o n t r a s t t o many j o b s e e k e r s , e m p l o y e r s a r e
n o t as dependent on t h e p l a c e m e n t
unemployment.
T h i s independence
s e r v i c e i n times of high
manifests i t s e l f
i n '.
the f a c t t h a t they a r e n o t concerned w i t h i m p r o v i n g t h e
placement
service,
criticism
thereof.
I f employers
still
although they expressed strong
use t h e s e r v i c e s
of the placement
agency-
- 89 -
at l e a s t i n r e g i s t e r i n g vacancies
to improve t h e i r b a r g a i n i n g
- i t i s because they
position.
hope
'Placement agents
r e p a y o u r l o y a l t y b y c o m p l y i n g w i t h o u r w i s h e s when-we n e e d
their help.
1
Thus, they
on t h e l a b o u r
labour
expressed t h a t they
administration with
permits.
respect,
a r e dependent
f o r example, t o
They a l s o h a v e t o c o - o p e r a t e w i t h t h e
p l a c e m e n t department i n t h e p l a c e m e n t o f t h e d i s a b l e d , as
they
have t o f u l f i l
w i t h had f i l l e d
a quota
( o n l y two o f t h e f i r m s we d e a l t
t h i s s i x per cent quota).
f e e l o b l i g e d t o announce v a c a n c i e s
department because they
finance there.
labour
Some e m p l o y e r s
t o t h e placement
o b t a i n wage s u b s i d i e s o r s h o r t - t i m e
Others co-operate because they
o f f i c e some time i n t h e f u t u r e f o r s u b s i d i e s .
a few p e r s o n n e l
managers t r i e d
t o convince
us t h a t
c o - o p e r a t e w i t h t h e placement agency i n o r d e r
ducing
3.4.
The
Only
they
t o help r e -
t h e p r o b l e m o f unemployment.
Yoçatignal_Çounsellin^
third
s u b - c h a p t e r o f t h e AFG ( p a r a s
c o u n s e l l i n g f o r young people.
orientation i n school,
3)
may n e e d t h e
and
4)
includes:
1) v o c a t i o n a l
2) i n d i v i d u a l v o c a t i o n a l c o u n s e l l i n g ,
placement f o r a p p r e n t i c e s h i p
education,
This
25-32) c o n c e r n s j o b
p o s i t i o n s and v o c a t i o n a l
promotion of v o c a t i o n a l t r a i n i n g
individual or institutional subsidies.
through
The s u b j e c t o f o u r
a n a l y s i s i s i n d i v i d u a l c o u n s e l l i n g , w h i c h amounts t o more
than s i x t y p e r cent
of the counsellors' job. This
c a n be
o b s e r v e d i n t h e l o c a l o f f i c e s , w h e r e t h o s e who h a v e r e c e n t l y
finished
3.4.1.
school contact
the counsellors.
The_Goal_Çonfliçt_of_Y22§ii2D^i_Ç2HS§§iiiB2
Two c o n s i d e r a t i o n s
determine v o c a t i o n a l guidance:
' i n c l i n a t i o n and p e r s o n a l
the
of
'general
circumstances
o f t h e c l i e n t ' , and
economic and s o c i a l s i t u a t i o n ' .
v o c a t i o n a l guidance i s having
o f t e n c o n t r a d i c t o r y demands.
The dilemma
t o r e c o n c i l e t h e s e two
- 90 -
M o s t y o u n g p e o p l e who h a v e j u s t l e f t
c l e a r conception
any p e r s o n a l
fashionable
has
of the vocation
school
they a r e i n t e r e s t e d i n ;
c o n c e p t i o n s a r e g e n e r a l l y based on well-known
j o b s , s u c h as a u t o - m e c h a n i c .
t o f i n d o u t whether the counsellee's
on r e a l m o t i v a t i o n
short
do n o t h a v e a n y
The c o u n s e l l o r
ideas
are based
o r whether they a r e j u s t t h e r e s u l t o f
term a t t r a c t i o n .
According
t o p a r a 2 7 , c h a p t e r '2,
AFG, v o c a t i o n a l g u i d a n c e m u s t t a k e i n t o c o n s i d e r a t i o n ' t h e
physical,
intellectual
and p e r s o n a l
qualities,
the prefer-
ences, and t h e i n d i v i d u a l c i r c u m s t a n c e s o f t h e c l i e n t ' .
In p r a c t i c e , i n t e l l e c t u a l
reports.
deals
abilities
school
As one o f t h e i n i t i a l . q u e s t i o n s o f t h e c o u n s e l l o r
with
grades, i n t e r a c t i o n o f t e n resembles a
pupil situation.
This
may h a v e a n e g a t i v e
f u r t h e r course o f the conversation.
the
a r e judged by
counsellor's
ma'am) r o l e ,
dominance l e a d s
inducing
This,
the c l i e n t
him t o accept anything
teacher-
i n f l u e n c e on t h e
together
with
i n t o a'yes,
the counsellor
suggests.
Empirical studies
dealing with
the i n t e r a c t i o n of the
g u i d a n c e p r o c e s s show t h e s t r o n g
dominance o f t h e c o u n s e l l o r s
and
t h e l a c k of. c l i e n t - c e n t e r e d c o n v e r s a t i o n ^ .
(1)
a . R. M a n s t e t t e n ( 1 9 7 5 ) . M a n s t e t t e n h a s c a r r i e d t h r o u g h
i n t e r v i e w s w i t h y o u n g g r a d u a t e s , a n d h a s made a
content analysis o f the counselling conversations.
Of a l l t h o s e i n t e r v i e w e d , s i x t y - n i n e p e r c e n t
had no e x a c t v a o c a t i o n a l p l a n s b e f o r e c o u n s e l l i n g . _
A f t e r the conversation, seventy-five per cent stated
t h a t t h e y h a v e made f i r m v o c a t i o n a l d e c i s i o n s . A l t h o u g h
more t h a n n i n e t y p e r c e n t w e r e s a t i s f i e d w i t h t h e
c o u n s e l l i n g , Manstetten s t a t e d that mediators supply
highly standardised information, not s u f f i c i e n t l y
a d j u s t e d t o t h e i n d i v i d u a l n e e d s o f t h e c l i e n t . The
c l a i m that v o c a t i o n a l counsellors give help through
self-help to juveniles i s not j u s t i f i e d .
b. G. v o n L a n d s b e r g ( 1 9 7 7 ) . The a u t h o r c r i t i c i z e s v o c a t i o n a l ! c o u n s e l l i n g saying t h a t i t i s ' n o t very c l i e n t - o r i e n t e d ;
waiting periods are too long, conversations are too
directed, personnel are not trained i n interviewing,
and t h e w o r k o f t h e c o u n s e l l o r s i s n o t r e a l l y c o n t r o l l e d .
-
-
91
A hindrance t o c l i e n t - o r i e n t e d counselling i s the f a c t
that
the
i n t e r a c t i o n must o c c u r w i t h i n a c e r t a i n p e r i o d o f t i m e .
The
first
counselling conversation
regardless
client;
The
o f whether t h i s
counsellors
lasts
forty-five
minutes,
i s adequate f o r each p a r t i c u l a r
stick to this
standardisation.
BA a t t e m p t s t h e a p p l i c a t i o n o f p s y c h o l o g i c a l
and s o c i o -
l o g i c a l m e t h o d s . This s c i e n t i f i c approach i s often, c r i t i c i z e d as being
alienating:
Further
often
not
As
'We s e e o u r s e l v e s
as programmed
training of job counsellors
leads
t o a standardized
automations.
i npsychological
form o f d i a l o g u e s ,
methods
w h i c h does
t a k e i n t o account t h e i n d i v i d u a l needs o f t h e c l i e n t s .
there
school
basis
i s a lack of apprenticeship
of personal
official
vocation,
inclination.
counselling.
regardless
On e x a m p l e :
of differences
of the individual.
Later
offers i n the r e t a i l
a t i o n among c o u n s e l l o r s
a female
t o enter
a retail
i t became c l e a r
trade.
Since
communic-
i s as b a d as w i t h i n t h e p l a c e m e n t
a t i o n on a l l a p p r e n t i c e s h i p s
to bias
their
they have found t h e m s e l v e s .
offered.
advice
the l o c a l labour
know t h a t u n t i l
19 76
s h i p s were r e g i s t e r e d w i t h
counsellors'
ive.
Some c o u n s e l l o r s a r e
i n favour
the labour
A f u r t h e r handicap f o r v o c a t i o n a l
office,
of vocations
counsellors
find
We
market prognosis.
i s hardly
thus the
was a t b e s t s e l e c t t o s i x t y p e r cent.
counsellors
the Bundesanstalt giving information
prospects
familiarity
twenty p e r cent o f a l l a p p r e n t i c e -
f i g u r e has i n c r e a s e d
of a long-term labour
vacancies
not s u f f i c i e n t .
view o f p o s s i b l e vocations
Meanwhile t h i s
of
the agencies'
market i s s t i l l
only
inform-
B u t even i f t h e c o u n s e l l o r
w e r e aware o f a l l a p p r e n t i c e s h i p s ,
with
that
service looking f o r
d e p a r t m e n t , t h e p a r t i c u l a r c o n s e l l o r does n o t have
also inclined
also
i n q u a l i f i c a t i o n and
c o u n s e l l o r was e n g a g e d i n a f i e l d
apprenticeship
on t h e
Some s t r u c t u r a l d e f e c t s
t r i e d t o convince a l l her c l i e n t s
preference
this
p o s i t i o n s i n Germany,
graduates o f t e n cannot choose t h e i r v o c a t i o n
prevent optimal
by
1
i s the lack
A manual
published
on t h e f u t u r e
ever used, because
i t too complicated
t o understand.
When
- 92
questioned
-
which v o c a t i o n provides
c o u n s e l l o r answered:
' I t makes no
secure
prospects
difference;-
the
one
main
. t h i n g i s t o f i n d an o p e n i n g f o r an a p p r e n t i c e s h i p . '
times
o f h i g h unemployment t h e r e d u c t i o n o f y o u t h
ment i s t h e p r i m a r y
i s not questioned
training.
skills
This
pones the c h o i c e o f a l o n g - t e r m
peoples
for
a job, which, although
Due
i s not
to the shortage
focus
an
This
post-
i s because
apprenticeship
g i v i n g them work
experience
career.
o f a p p r e n t i c e s h i p s , more and
i s p l a c e d on t h e
needed
strategy in effect
an o p e n i n g f o r a l o n g - t e r m
g u i d a n c e d e p a r t m e n t s by
In
are r e a l l y
career.
a r e e n c o u r a g e d t o t a k e up
o f some s o r t ,
unemploy-
g o a l of the c o u n s e l l i n g s e r v i c e s . 'It
whether these
a f t e r three years'
In
more
f u n c t i o n s of the v o c a t i o n a l ~
the
public.
c o n j u n c t i o n w i t h t h e d i s c u s s i o n o f t h e amendment t o
'Law
the
on V o c a t i o n a l T r a i n i n g * , t h e l a b o u r a d m i n i s t r a t i o n ,
a l s o landed
in a political crossfire
L a b o u r B o a r d r e s p o n d e d w i t h an
v o c a t i o n a l c o u n s e l l i n g and
be p u b l i s h e d .
statistics.
Every
The
a p p r e n t i c e s h i p placement
These s t a t i s t i c s
National
i n s t r u c t i o n t h a t no f i g u r e s on
l o c a l s o f f i c e has
formation-tailoring':
situation.
i t s own
should
performance
are o f t e n the r e s u l t of ' i n -
u n c l e a r terms are used, which
out-
(1)
s i d e r s can h a r d l y understand
The
.
v o c a t i o n a l guidance department of the
criticised
because of t h i s
labour o f f i c e i s
secretive policy.
Placement
agents complain
t h a t c o u n s e l l o r s ' job performance i s
controlled
theirs.
(1)
than
T h i s r e s e n t m e n t c a n -be
less
explained
When I a s k e d f o r f i g u r e s , o n e ' l e a d e r o f t h e g u i d a n c e
d e p a r t m e n t t o l d - me t h a t a t t h e end o f November o n l y t e n
of the August school-graduates-were
s t i l l , not -provided
for.
A few months l a t e r , more t h a n 100 o f t h i s g r o u p
were s t i l l s e a r c h i n g .
What d o e s t h e t e r m 'not p r o v i d e d
f o r ' mean?
I f t h e r e i s an o f f e r and an a p p l i c a n t who
c o u l d t h e o r e t i c a l l y f i l l i t , he i s c o u n t e d as b e i n g
'provided f o r ' . In i t s o p e r a t i o n a l d e f i n i t i o n of
a p t i t u d e , t h e c o u n s e l l i n g d e p a r t m e n t e l i m i n a t e s a l l those
who h a v e l e f t s c h o o l o r a t t e n d e d a s p e c i a l s c h o o l f o r the
m e n t a l l y d i s a b l e d . • In r e a l i t y , the term 'provided f o r '
d o e s n o t mean a n y t h i n g .
I f t h e r e i s an o f f e r f o r a'
m e c h a n i c a l e n g i n e e r , and t w e n t y a p p l i c a n t s seem t o be
q u a l i f i e d f o r t h i s j o b , t h e y a l l a r e r e g i s t e r e d as b e i n g
' p r o v i d e d f o r ' . T h i s e x a m p l e shows how t h e l a b o u r
a d m i n i s t r a t i o n can m a n i p u l a t e
statistics.
-
by
the
-
l a c k of communication between the
Information
place,
93
exchange i n the
so o f f i c i a l s
two
departments
form of meetings never
cannot r e a l l y
takes
judge performance.
Placement agents argue t h a t communication w i t h
counsellors
is
profession-
impossible
because of t h e i r ' p s y c h o l o g i c a l l y
alised patterns
o f speech'.
a d m i n i s t r a t i o n has
Although the
f r a g m e n t e d as
where d i f f e r e n t a d m i n i s t r a t i o n s
performance of v a r i o u s
labour
i n other
are
be
prescribed,
most c o n t a c t
found i n the
phone.
counsellors
justify
this
i n c r e a s i n g number o f c l i e n t s .
the
v o c a t i o n a l g u i d a n c e d e p a r t m e n t do
primary f u n c t i o n .
the
of
.
firms
Although
is
p e r s o n a l l y , but
the
dramatic increase.
for
lack
(2)
employers
used f o r c o n t a c t i n g
occurs not
one
instruments.
attempts t o communicate c l e a r l y w i t h
amount o f t i m e t o be
into
countries,
responsible
market
Another p o i n t of c r i t i c i s m can
The
labour
integrated different functions
s y s t e m , i t a p p e a r s as
the
German
on
lack of contact
However, t h e
not
the
through
figures
show s u c h
of
a
Job c o u n s e l l o r s regard v o c a t i o n a l guidance as t h e i r
They are not equipped f o r placement:
counselling
cards are f i l e d i n a l p h a b e t i c a l order by f a m i l y name., I f an
apprentice-
s h i p o f f e r comes i n , the c o u n s e l l o r has t o look through a l l the cards
i n order
are
ID
(2)
no
to f i n d the
plans
right client
f o r s u c h an
offer.
There
t o c h a n g e t h i s s y s t e m t o a more p l a c e m e n t -
one e x a m p l e may i l l u s t r a t e t h e c l i m a t e o f n o n - c o m m u n i cation:
t h e p l a c e m e n t d e p a r t m e n t and t h e c o u n s e l l i n g
department both o f f e r a t r a i n i n g course f o r machineoperators.
The f i r s t i s a r e t r a i n i n g c o u r s e o f n i n e
months, the l a t t e r a t r a i n i n g c o u r s e f o r young p e o p l e ,
l a s t i n g two y e a r s .
The same q u a l i f i c a t i o n s c a n be
• obtained through both courses.
T h i s has b e e n c r i t i c i z e d by p a r t i c i p a n t s . E a c h d e p a r t m e n t a c c u s e s t h e
other of l a c k of
co-operation.I n 1974/75 t h e p r o p o r t i o n o f s c h o o l - g r a d u a t e s c o u n s e l l e d
by t h e l a b o u r a d m i n i s t r a t i o n i n K i e l was 5 8.4 p e r c e n t .
Of
76.26 p e r s o n s , o n l y 1,746
c o u l d be p l a c e d i n
apprenticeships.However, the s m a l l p r o p o r t i o n o f
placements i s not only a r e s u l t of the l a c k of
apprenticeships.
Twenty-two per cent of a l l p u p i l s d i d
not have a p r i m a r y s c h o o l c e r t i f i c a t e ;
they d i d not
q u a l i f y t o become a p p r e n t i c e s .
- 94 -
o r i e n t e d one. This
indicates that counsellors are not
o r i e n t e d toward placement, b u t r a t h e r t o c o u n s e l l i n g
school-graduates.
The s e r v i c e s t h e y
o f f e r seldom
to t h e needs o f t h e young s c h o o l - g r a d u a t e s .
o f t e n pass between t h e f i r s t
take place before
school-graduates
T h r e e months
contact with the counselling
department, and f u r t h e r guidance.
should
correspond
Although counselling
a p u p i l leaves
s c h o o l , some
c a n n o t g e t a n a p p o i n t m e n t u n t i l weeks
later.
Many o f t h e y o u n g p e o p l e t r y t o f i n d t h e m s e l v e s a s u i t a b l e
apprenticeship without
the help
employer and j o b s e e k e r
a r e n o t o b l i g e d t o r e p o r t w h e t h e r an
apprenticeship
do
of the labour
position i sfilled
o r not,
n o t have an o v e r v i e w o f t h e r e a l market
o f f i c e . . As
the counsellors
situation.
n
3.4.2.
E2§§i^iii£if 5_2^-22^iH§S£i 2-£^S_2^®£_2£_Y22äÜ22§i
Training
"
"
P a r a g r a p h 2 9 , s e c t i o n 2, AFG s p e c i f i e s t h e r e q u i r e m e n t t h a t
' c l i e n t s a r e t o be provided w i t h places i n v o c a t i o n a l training
w h i c h meet t h e p r o f e s s i o n a l h e a l t h a n d e d u c a t i o n a l
1
standards '.
these
In reality,
j o b c o u n s e l l o r s cannot judge i f
c o n d i t i o n s a r e met.
contact
t h e chambers o f commerce a n d t r a d e , which then examine
whether t h e a p p r e n t i c e s h i p s
the
J o b c o u n s e l l o r s have t o
labour
office
fill
(Berufsbildungsgesetz)
which have been announced t o
t h e ' V o c a t i o n a l T r a i n i n g Law'
standards^ .
Compared t o o t h e r E u r o p e a n c o u n t r i e s , t h e German
Bundesanstalt
is
h a s no i n f l u e n c e o n v o c a t i o n a l t r a i n i n g ;
a matter l a r g e l y outside
the control of the state.
l o n g as t h e G o v e r n m e n t d o e s n o t c r e a t e
(1)
this
As
a . l e g a l framework,
The demand f o r c o - o p e r a t i o n b e t w e e n t h e BA a n d t h e
c h a m b e r s i s f i x e d i n t h e ' R a h m e n v e r e i n b a r u n g über d i e
Zusammenarbeit d e r I n d u s t r i e und Handelskammern sowie
d e r Handwerkskammern m i t d e n D i e n s t s t e l l e n d e r
B u n d e s a n s t a l t für A r b e i t a u f dem G e b i e t d e r B e r u f s b e r a t u n g vom 18.12.1973 (BAnz. N r . l ) '
( S k e l e t o n agreement
c o n c e r n i n g t h e c o - o p e r a t i o n b e t w e e n t h e chambers o f
commerce a n d c h a m b e r s o f t r a d e a n d t h e BA w i t h r e g a r d
to v o c a t i o n a l t r a i n i n g ) .
- 95
the
-
authority largely rests with
responsibilities
the
Länder. . F u r t h e r m o r e ,
are d i v i d e d between m i n i s t r i e s :
c o n c e r n i n g t r a i n i n g a r e d e a l t w i t h by
economics;
facilities
and
the
the
and
regulations
the m i n s t r y
of
supervision of p u b l i c v o c a t i o n a l t r a i n i n g
examinations are
taken care
o f by
committees f o r v o c a t i o n a l t r a i n i n g .
t r a i n i n g body a t t h e
federal level
Labour Board i s represented
T r a i n i n g ' , w h i c h a c k n o w l e d g e s new
The
i n which the
i s the
the
only
National
'Committee f o r
vocations
Länder
and
Vocational
l a y s down
exam s p e c i f i c a t i o n s .
C o - o p e r a t i o n between the
labour
a d m i n i s t r a t i o n and
c o u n s e l l i n g departments of
the
v o c a t i o n a l t r a i n i n g ) a l s o has
apprenticeships.
labour
chambers
an
e f f e c t on
Every apprenticeship
a d m i n i s t r a t i o n has
t o be
Vocational
I n one
Training Law^
of the
labour
market r e g i o n
s t r a t i o n only
have not
market regions
this.
the
on
The
we
should
we
The
standards of
studied,
c o u n s e l l i n g d e p a r t m e n t has
commerce r e f u s e s
tell
i n the
labour
However,
t o do
this:
'We
consider
the
with
the
which
criticises
the s p e c i f i c a t i o n s
firm.
a n y o n e w h e t h e r we
admini-
firms
the
representative
unsatisfactory:
second
s e n t forms i n w h i c h
to give
. The
co-operation
the
this
chamber o f commerce
acceptable o r not.
(1)
the.chambers
announces t r a i n i n g p o s i t i o n s of
v o c a t i o n a l t r a i n i n g of
chamber o f
the
Here, the
c h a m b e r o f commerce i s o b l i g e d
the
the
t h e o r e t i c a l l y only
co-operation
i s minimal.
trained before.
of
.
exchange f u n c t i o n s w e l l , but
labour
of
r e g i s t e r e d by
are
i n t r a i n i n g courses f u l f i l l i n g
sector
control
announced t o
f o r t h e i r i n v e s t i g a t i o n . Thus, a p p l i c a n t s
placed
( i n the
the
we
an
do
the
not
interviewed
bad
why
apprenticeship
c o u n s e l l i n g department to
'Many f i r m s h a v e had
see
considered
be
experiences
with
T h i s c o n t r o l c a n n o t be p e r f o r m e d i n t h e p r e s c r i b e d
way.
As a r e p r e s e n t a t i v e o f t h e chamber o f commerce
s a i d , t h e r e a r e o n l y two e x p e r t s f o r 6,000 f i r m s w h i c h
c a r r y through v o c a t i o n a l t r a i n i n g i n the F r e i b u r g
region.
- 96 -
•the p r a c t i c e o f a n n o u n c i n g a p p r e n t i c e s h i p
labour
administration
graduates.
the
i r i t h e hopes o f p l a c i n g young
The a p p r e n t i c e s h i p s
I n my experience, t h e m a j o r i t y
of firms
from employers
region,
interviews.
do n o t e v e n r e g i s t e r . '
a l l p e r s o n n e l managers s t a t e d
partment.
that
administration
they are
of the counselling
t h e BA r e q u e s t e d e m p l o y e r s t o i n f o r m
department.
associations
the labour
of vacancies i n the t r a i n i n g sector.
i n 1977 more t r a i n i n g p l a c e s
t h i s does n o t mean t h a t
were r e g i s t e r e d than
chance o f p l a c i n g young.people.
t h e y do n o t
Thus, c o u n s e l l o r s
ask school-.graduates t o
a p p l i c a t i o n s without mentioning the labour
Although strong
co-operation
administra-
e f f o r t s a r e made t o s t r e n g t h e n t h e
b e t w e e n t h e demand s i d e a n d t h e c o u n s e l l i n g
department, the labour
in placing
service.
t o r e c r u i t young p e o p l e s e n t by t h e l a b o u r
administration.
tion.
before,
E m p l o y e r s seem t o
J u s t because they have announced t r a i n i n g v a c a n c i e s ,
feel obliged
Although
t h e c o u n s e l l i n g department has had a
t h e same stratégies as vis-à-vis t h e p l a c e m e n t
write
never
t o t h e c o u n s e l l i n g de-
During the l a s t year's meetings, employers'
use
t h e y have
f o r apprenticeships,
dependent on t h e s e r v i c e s
better
results
As e m p l o y e r s do n o t h a v e a n y d i f f i c u l t y
finding suitable applicants
and
vocations.
I n t h e above m e n t i o n e d
announced t h e i r t r a i n i n g p o s i t i o n s
not
certain
s t a t e m e n t c o r r e s p o n d s t o o u r own e m p i r i c a l
1
school-
remained vacant because
c o u n s e l l i n g department favours only
This
positions to the
administration
school-graduates^in
plays
vocation
a weak r o l e
training posi-
tions. .
S i m i l a r r e s u l t s p r e v a i l i n our examination of
between t h e v o c a t i o n a l
level,
and s c h o o l s
counselling
co-operation
d e p a r t m e n t s on t h e l o c a l
and u n i v e r s i t i e s .
Although
skeleton
agreements e x i s t between t h e M i n i s t r i e s o f C u l t u r a l A f f a i r s
o f t h e Länder a n d t h e BA, c o u n s e l l o r s
complain of being
u n i n f o r m e d on t h e n u m e r u s - c l a u s u s - p o s i t i o n s
schools
and u n i v e r s i t i e s .
of the various
A s many y o u n g c l i e n t s a r e
- 97
interested
training,
i n l e a r n i n g more a b o u t s c h o l a s t i c v o c a t i o n a l
counsellors
these s p e c i a l needs.
are under the
information
meet
B e c a u s e u n i v e r s i t i e s and
schools
s c a r c i t y of contacts
and
t h e Länder l a b o u r
a g e n c i e s do
The
not
get
a u t h o r i t i e s and
no
the
BA.
b e t w e e n t h e Länder g o v e r n m e n t
sufficient
local
information.
Jkabour_Administrati^
f r o n t e d do
only
is
a d m i n i s t r a t i o n means t h a t t h e
problems w i t h which the
a b o u t by
t h e Länder, t h e r e
exchange between the
the
The
f e e l themselves unable to
r e s p o n s i b i l i t y of
And
3.5.
-
not
labour
produce themselves, but
economic c r i s e s .
The
limited possibilities
b e t w e e n o f f e r and
alleviate
the
a d m i n i s t r a t i o n i s con-
demand.
labour
a r e - p r i m a r i l y brought
administration
of. o v e r c o m i n g t h e
has
imbalances
In p r a c t i c e , i t s f u n c t i o n i s to
s o c i a l e f f e c t s o f unemployment.
administration p r i m a r i l y acts
by
The
labour
t r a n s f e r r i n g money.
Ah
example o f t h i s i s the securing o f c e r t a i n income l e v e l s f o r the unemployed.
Although the
granting
o f unemployment b e n e f i t s
p r i n c i p l e ' s of a s o c i a l insurance
has
l e g a l claim to f i n a n c i a l
of work, d u r i n g
the
w h i c h he
has
system,
(that a
aid after a prescribed
paid his insurance
labour
criteria
s u c h as
market'.
the
client's
Through- t h i s
legislation tries
market i n order
the
'availability'
status
and
salary.
to the
legislation's
Still,
r i g h t to withdraw
In times of high
many i n d i v i d u a l s c a n n o t m a i n t a i n
these people are
'adequacy' c o n t r o l .
by
the
labour
an
from
portion •
occupational
often
subjected
Through
this
labour
administration.
market
As
e m p i r i c a l r e s u l t s h a v e shown, t h e s e
'repressive'
are
d i f f e r e n t placement
applied to d i f f e r e n t extents
by
the
unemployment
t h e i r previous
time of r e i n t e g r a t i o n i n t o the
i s often defined
for
to receive his acquired
of unemployment c o m p e n s a t i o n .
measure, the
to
t o impede d i s i n t e g r a t i v e f u n c t i o n s :
unemployed p e r s o n does n o t have the
labour
period
premium),
'availability
c o n t r o l of
on
client
a l l o c a t i o n o f unemployment c o m p e n s a t i o n i s bound
other
the
i s based
measures
- 98
agents.
D e p e n d i n g on
instructions,
oriented.
one
they
The
the degree t o which agents follow
are e i t h e r r u l e - o r i e n t e d or
r e f o r m u l a t i o n of the term
e x a m p l e o f how
to changing
-
the
business
client-
'adequacy' i s o n l y
labour a d m i n i s t r a t i o n adapts
cycles.
The
BA
tries
itself
to enforce
c e s s a t i o n o f u n e m p l o y m e n t c o m p e n s a t i o n when w o r k e r s
supposedly
unwilling
t o work.
The
compensation f o r postgraduates.
restrictive
and
retraining.
for mobility
grants
(run i n 1976), the
are
more
of f u r t h e r t r a i n i n g
which
affect
programme
labour administration
incentives for jobseekers.
I t seemed
mainly
w i t h f o r m u l a t i n g a more r e s t r i c t i v e p o l i c y
On
i n t e r and
intraplant
programmes.
concerned
The
with
the o t h e r hand, the a d m i n i s t r a t i o n
i n c r e a s e d the resources
The
enforced
These are a l l r e g u l a t i o n s
r e g a r d t o them.
as
BA
V7ith t h e e x c e p t i o n o f t h e s p e c i a l
c r e a t e d no
concerned
The
the
a b o l i s h e d unemployment
c o n d i t i o n s f o r the promotion
the jobseeker.
has
BA
these
f o r wage s u b s i d i e s , and
f u r t h e r t r a i n i n g and
promoted
retraining
labour a d m i n i s t r a t i o n i s c l e a r l y
w i t h e m p l o y e r s who
more
a r e n o t as d e p e n d e n t on
them
jobseekers.
r e l a t i o n s b e t w e e n e m p l o y e r s and
have changed c o m p l e t e l y
the placement agency
i n t h e p a s t few y e a r s .
e c o n o m i c boom, e m p l o y e r s w e r e d e p e n d e n t on
service
f o r the
l a b o u r they needed.
monopoly i n r e c r u i t i n g
i s t r a t i o n was
needed.
against their
e m p l o y e r s do
clients.
agents'
had
a
admin-
the f i r m s w i t h what
They a r e c o n v i n c e d
a p p r a i s a l of the
o f t e n seems t o be. v e r y
I n e x p l a i n i n g why
placement
labour
e v e r y t h i n g w i t h i n t h e i r power t o
The
they
clients.
employers'
jobseekers,agents
low w a g e s , p o o r
about s p e c i f i c a t t r i b u t e s
There j u s t i f i c a t i o n s
'that
reduce
working
c o n d i t i o n s or u n a t t r a c t i v e a p p r e n t i c e s h i p p o s i t i o n s .
talk
they
uncritical.
c a n n o t p l a c e more
seldom mention c o n d i t i o n s l i k e
mostly
the
many a g e n t s a r e s t r o n g l y b i a s e d
jobseeker
unemployment'.
behaviour
t h e BA
f o r e i g n workers, the
best able to supply
Even today,
As
the
During
c a n be
of t h e i r
They
unemployed
s u m m a r i s e d as
follows:
- 99 -
1)
unsuitability
f o r work
(.fehlende A r b e i t s v e r w e r t b a r k e i t )
2)
incapacity
f o r work
(Arbeitsunfähigkeit)
3)
u n w i l l i n g n e s s t o work
(mangelnde A r b e i t s b e r e i t s c h a f t )
Sub-groups e x i s t between these c a t e g o r i e s .
c a t e g o r y we p r i m a r i l y
qualifications
understand
Under t h e f i r s t
a mismatch between t h e
o f f e r e d a n d t h o s e demanded.
But this i s
a l s o i n d i c a t i v e o f a d i s c r e p a n c y between o f f e r
based on sociodemographic
a n d demand
criteria
like
age a n d s e x .
As
mentioned above, p e r s o n a l c r i t e r i a
such
as d i s c i p l i n e
often
p l a y an i m p o r t a n t r o l e f o r employers.
basis of vocational qualifications
The
second
a reason
large.
group, i n which
Matching
on t h e
i s n o t always
sufficient.
t h e i n c a p a c i t y f o r work i s
f o r weak p l a c e m e n t ,
chances i s q u a n t i t i v e l y r a t h e r
About one q u a r t e r o f a l l unemployed a r e m e n t a l l y
or p h y s i c a l l y disabled.
They a r e o f t e n u n a b l e
the j o b s they were t r a i n e d
f o r and thus they a r e o f t e n
i n c a p a b l e o f doing t h e jobs employers
o c c u p a t i o n a l s e c t o r s , such
t o Work' i n
ask f o r .
I n some
as.construction or shipbuilding,
the m a j o r i t y o f t h e unemployed a r e d i s a b l e d .
Under
c a t e g o r y number t h r e e , we f i n d p e o p l e who p r e f e r t o s e a r c h
f o r a long time
i n order t o f i n d the 'right job'.
There
a r e a l s o t h o s e who q u i t w o r k s h o r t l y b e f o r e r e t i r i n g t o
c o l l e c t unemployment b e n e f i t s ( i . e . o l d e r w o r k e r s
o r women).
Some j o b s e e k e r s h a v e a n a d d i t i o n a l o c c u p a t i o n a n d w a n t t o
c o l l e c t unemployment funds
as w e l l .
o f work f o r a c e r t a i n t i m e .
Some p r e f e r t o b e o u t
The t h i r d g r o u p i s o f t e n o v e r -
e s t i m a t e d by t h e l a b o u r a d m i n i s t r a t i o n s t a f f .
t r y t o l a b e l t h e i r c l i e n t s as work-shy.
Many
Those not-placed a f t e r one year,
who c a n no l o n g e r c l a i m u n e m p l o y m e n t c o m p e n s a t i o n ,
d e a l t w i t h by t h e s o c i a l
results
BA
insurance system.
of t h e s p e c i a l survey
agents
a r e then
Based on t h e
o n u n e m p l o y m e n t , done b y t h e
i n May 19 77, more t h a n t h i r t y p e r c e n t o f a l l u n e m p l o y e d
h a v e b e e n o u t o f w o r k f o r more t h a n a y e a r .
Thus, a t l e a s t
-
these
300,000 p e o p l e
100
a r e c a t e g o r i s e d by
a d m i n i s t r a t i o n as b e i n g u n a b l e
The
-
the
labour
or u n w i l l i n g t o work.
m a j o r i t y of placement agents regard mismatches
r e s u l t of jobseekers
deficiencies:
l a c k of
as
mobility,
wrong v o c a t i o n a l q u a l i f i c a t i o n s , p h y s i c a l handicaps
the a t t i t u d e
ation
t h a t they are e n t i t l e d t o
(Anspruchsdenken).
these b i a s e d views:
b e t w e e n a g e n t s and
u n e m p l o y m e n t compens-
There are s e v e r a l reasons
1)
for
Face-to-face c o n t a c t s occur
only
j o b s e e k e r s , whereas c o n t a c t w i t h
e m p l o y e r s t a k e s p l a c e l a r g e l y on t h e p h o n e .
who
and
Among t h o s e ,
have c o n t a c t s w i t h the l a b o u r a d m i s t r a t i o n s o - c a l l e d
problem cases
unemployed
2)
occur.
A g e n t s t e n d t o d r a w a p i c t u r e 'of
b a s e d on g e n e r a l i z a t i o n s o f p r o b l e m
Unemployed p e r s o n s ,
d e p e n d e n t on u n e m p l o y m e n t b e n e f i t s ,
are.
•• c o n t r o l l e d t o e n s u r e p r o p e r
tion.
T h e r e f o r e , more p o t e n t i a l
b e t w e e n a g e n t s and
employers.
3)
cases.
jobseekers
Vancancies
use
of the
for conflict
compensaexists
than between agents
and
a r e s c a r c e ; ' c r i t i c i s m o f employers
by t h e a g e n t s c o u l d make t h e m s c a r c e r .
4.) M o d i f i c a t i o n s o f
r e g u l a t i o n s as a r e s u l t o f t h e c h a n g e d l a b o u r m a r k e t
tion
The
means', a more r e s t r i c t i v e p o l i c y t o w a r d
i n c r e a s e d use
situa-
jobseekers.
of the labour a d m i n i s t r a t i o n ' s 'santion-
i n g p o w e r ' r e i n f o r c e s t h e agjents ' v i e w t h a t many u n e m p l o y e d
do
not want t o work.
P l a c i n g the unemployed i n times
no way
m e d i a t i o n b e t w e e n two
o f h i g h "unemployment i s i n
equal partners.
r e s u l t o f a p o w e r c o n s t e l l a t i o n b e t w e e n two
w i t h d i f f e r e n t i n t e r e s t s and
The
I t i s the
social
groups
amounts o f i n f l u e n c e ' .
l a b o u r a d m i n i s t r a t i o n tends
t o be more o r i e n t e d
toward
the needs o f the economic system than t o the needs o f
s o c i a l l y weak u n e m p l o y e d .
s i m p l - i s t - i c a l l y - w h a t one
ting
This i s - formulated a b i t
sees.} i f one
observes
the media-
f u n c t i o n s of the placement agents i n a l o c a l
office.
This statement
the
labour
h o l d s t r u e f o r r o u t i n e t a s l s such as
g r a n t i n g u n e m p l o y m e n t b e n e f i t , p l a c i n g and c o u n s e l l i n g .
Despite
t h i s , t h e l a b o u r a d m i n i s t r a t i o n i m p l e m e n t s programmes
-
w h i c h aim
-
101
a t i m p r o v i n g t h e q u a l i f i c a t i o n s and
chances of the
unemployed or pays s u b s i d i e s
thus the
f o r the
i n t e g r a t i o n o f d i s a d v a n t a g e d p e r s o n s . These t a s k s ,
we
call
i n the
'active labour
next
market p o l i c y ' , w i l l
be
job
rewhich
described
chapter.
4. ' H a n d l i n g A c t i v e L a b o u r M a r k e t P o l i c y
The
AFG
was
amended t o t r y t o s h i f t t h e
tion's
focus from the
labour
market o r i e n t e d
s p e l t out
i n t h e AFG;
of the
and
goals.
The
term''active'
'pr-osp'e<^-4v-e^----'-pi?e'Veafe4ve are
a p p l i e d t o t h e p o l i c y . The
clients
i n the
1
termed
the
goal-
>
' r e a c t i v e . Granting
b e n e f i t s , p l a c i n g , and
i n i t i a t e d by
i s nowhere
l
'rational'
be
t o more
i n p u b l i c a t i o n s which deal with
a d m i n i s t r a t i v e s t a f f as d e s c r i b e d
c h a p t e r can
administra-
p r i n c i p l e s of s o c i a l insurance
amendment, t e r m s l i k e
oriented'
labour
counselling clients
tasks
previous
unemployment
are r o u t i n e
i n need o f f i n a n c i a l a i d or
tasks,
advice.
'Active' p o l i c y i m p l i e s the development of i n i t i a t i v e s
implementing.policy
t r y not
but
only
p r o g r a m m e s . The
t o remedy a c r i s i s w h i c h has
a l s o t o p r e v e n t f u r t h e r c r i s e s from
In i t s annual r e p o r t , the
BA
grammes u n d e r t h a t l a b e l o f
' I n d i v i d u a l promotion of
granting
already
should
occured,
occurring.
presents the
following
'active labour
pro-
market p o l i c y ' :
f u r t h e r t r a i n i n g and r e t r a i n i n g ;
o f s h o r t - t i m e , money; j o b c r e a t i o n m e a s u r e s ;
m o t i o n of work p l a c e s
want t o i n c l u d e t h e
s p e c i a l programmes
and
the
s e c o n d as
construction
l a t t e r two
are
prevent further
can
i n our
(the f i r s t
do
of
not
they
f o r Germans f r o m P o l a n d ,
question
a c t i n times of high
dismissals.
s e c t o r . We
analysis, since
a means o f p r e v e n t i n g
are mainly i n t e r e s t e d i n the
administration
pro-
t h r o u g h wage s u b s i d i e s ; p r o m o t i o n
y e a r - r o u n d employment i n t h e
We
administration
in
s e a s o n a l employment).
o f how
the
unemployment
labour
to
- 102 -
I n C h a p t e r 3, m e d i a t i n g
f u n c t i o n s were d i s c u s s e d .
l a b o u r market p o l i c y has t h e p r i m a r y
c r e a t i n g w o r k p l a c e s and i m p r o v i n g
people,
The
An ' a c t i v e '
g o a l o f m a i n t a i n i n g and
employment c h a n c e s f o r
f o r whom t h e r i s k o f l o s i n g a j o b i s h i g h .
programmes t o b e a n a l y s e d
planning
activities.
problems, labour
In order
i n t h i s chapter
necessitate
t o prevent labour
market
a d m i n i s t r a t i o n has t o develop a f u t u r e -
oriented policy. Planning
p r e s u p p o s e s t h a t i n f o r m a t i o n on
f u t u r e developments i s a v a i l a b l e .
4.1.
Gettin2_Informatign_for_the_Implementation_of_^Active
•k§52ïïï_Merket_P^liçy_
One
of our reasons for choosing
standing
crisis
the K i e l area
i n the shipbuilding industry there.
1 97 6', t h e n e w s p a p e r s a l l r e p o r t e d
to reduce t h e i r
i s the long-
labour
In early
t h a t t h e dockyards had had
f o r c e e n o r m o u s l y . O u r i n t e r e s t was i n
l e a r n i n g how t h e l a b o u r
a d m i n i s t r a t i o n would handle t h e
i m p e n d i n g p r o b l e m s . We w e r e s u r e
w h i c h programmes s h o u l d
t h a t they, would
be i m p l e m e n t e d i n o r d e r
a l l e v i a t e the plight of the dismissed
discuss
t o best
workers.
G e t t i n g i n f o r m a t i o n on t h e employment s i t u a t i o n o f t h e s h i p b u i l d i n g i n d u s t r y from t h e labour
cult.
a d m i n i s t r a t i o n was
diffi-
The a d m i n i s t r a t i o n e i t h e r h a d no i n f o r m a t i o n o r d i d
n o t w a n t t o make i t p u b l i c . P l a c e m e n t a g e n t s e x p r e s s e d t h e
o p i n i o n t h a t t h e number o f p e r s o n s d i s m i s s e d
had
not increased
considerably.
fluctuation i s usual
They e x p l a i n e d
high
look
including figures f o r shipbuilding
v e h i c l e c o n s t r u c t i o n , however, r e v e a l e d
d u c t i o n . When t h e s e
that
f o r the s h i p b u i l d i n g industry. A
a t employment s t a t i s t i c s
and
by t h e dockyards
a great r e -
f i g u r e s were quoted, t h e e x p l a n a t i o n
g i v e n was t h a t t h e e m p l o y m e n t r e d u c t i o n was p r o b a b l y
result of dismissals i n vehicle construction.
a
According
t o an i n s t r u c t i o n i s s u e d by t h e N a t i o n a l L a b o u r B o a r d , t h e
l o c a l a g e n c y was n o t a l l o w e d
t o make p u b l i c
-
103
-
t h e f i g u r e s on t h e d e c r e a s i n g number o f e m p l o y e e s i n t h e
shipbuilding industries.
Exact
f i g u r e s were n o t
because o f a s e c r e t i v e p o l i c y i n t h e f i e l d
in
firms.
t h a t 650
A t t h e same t i m e ,
employees had
available
o f manpower p l a n n i n g
a newspaper a n a l y s i s s t a t e d
b e e n d i s m i s s e d some w e e k s
before
our i n t e r v i e w s took p l a c e i n the l o c a l o f f i c e s .
a r e d u c t i o n o f employees i n the dockyards
Our
by
T h i s meant
ten
percent.
assumption t h a t the labour a d m i n i s t r a t i o n develops
f o r the maintenance of workplaces:
know t h a t t h e r e w i l l
be
proved
t o be w r o n g .
a g r e a t employment c r i s i s
cannot i n t e r v e n e i f the
e r s do n o t a s k us
l o c a l agency had
The
t o g e t more- p r e c i s e — i - n f o r m a r t e i e n - on t h e r e a l
tion:
'We
have t o w a i t u n t i l the unemployed
This statement
illustrates
labour market p o l i c y '
The
of the labour a d m i n i s t r a t i o n :
F o r many y e a r s , t h e
statistics
vacancies
inability
t h e changes i n the
figures.
ment t o t h e s o c i a l s e c u r i t y .
social security statistics
For
policy.
out
employment
On
administration,
are not
the other
very
hand,
every
recruit-
t h e p a s t few y e a r s ,
The
This
results
are
the
statistics
labour
s i n c e t h e f i g u r e s a r e r e c e i v e d more
Paragraph
t h e y do n o t d e a l w i t h
9, AFG,
in
i n f o r m a t i o n i s , however,
i n p l a n n i n g f u n c t i o n s of the
a y e a r a f t e r t h e n o t i c e s , and
firm separately.
their
i n c r e a s e s of employed persons
d i f f e r e n t economic branches.
o f no g r e a t v a l u e
get
have been e v a l u a t e d w i t h i n the
labour market r e g i o n s .
showing the decreases.and
'active
on r e g i s t e r e d v a c a n c i e s ,
e m p l o y e r s m u s t a n n o u n c e e v e r y d i s m i s s a l and
ment by
to
l a b o u r a d m i n i s t r a t i o n worked
i n these
1
a major dilemma
l a b o u r a d m i n i s t r a t i o n , so t h e y
well represented
various
register.
Employers are not o b l i g e d t o announce
to the
tried
employment—s-1
to p l a n n i n g labour market
but neglected to analyse
structure.
their
on t h e u n e m p l o y e d , and
employ-
found.
situation-above described illustrates
information important
never
t h a t i n d i c a t i o n s o f an
a r e n o t t o be
"We
i n the
s h i p b u i l d i n g i n d u s t r y b u t we
so.'
plans
than
each
provides f o r the
employers of a l l i n t r a f i r m personnel
changes,
announce
such
-
as
dismissals
and
vacancies.
additional regulations
it
t h e y do
law'.
not
-
This
measure s t i l l
As
representatives
interested i n seeing
not
have the
of the
before
BA
told
i t become o f f i c i a l ,
this
In F r a n c e , f o r example, such l e g a l r e g u l a t i o n s
e v e r y v a c a n c y and
t a l e s du
d i s m i s s a l to the
T r a v a i l e t de
administration
Directions
l a M a i n d'Oeuvre
where a l l d i s m i s s a l s must a l r e a d y
be
entive
at the
of every year.
p l a n n e d mass d i s m i s s a l s
a l l
' A f t e r r e c e i v i n g the
comment f r o m t h e
information
labour
vacancies.
future.
dismissals
requires
announced t o the
from the
shop s t e w a r d , the
a
a premature, warning
(1)
P a r a 8 AFG
s h o u l d be
Sweden,
d i s t r i c t s with
n e c e s s a r y f o r p l a n n e d mass
beginning
In
country i n the
R e g i s t r a t i o n , w h i c h s h o u l d s e r v e as
system, i s only
Départemen-
r e g i s t e r e d , the
system designed to ensure r e g i s t r a t i o n of
apply to the
have
announce
(DDTMO).
i s experimenting i n three
system w i l l
to
us
'as
s t a f f to ensure compliance w i t h
been implemented; e v e r y employer i s o b l i g e d
This
requires
from the M i n i s t r y of Labour
becomes o f f i c i a l .
they are
104
that
LAA.
employer
along w i t h a
Länder o f f i c e and
the
local office initiate
the
necessary measures.
This
includes
informing
and
employees concerned about
services
and
the
plant
a i d s r e n d e r e d by
the
Bundesanstalt, job
i n t r o d u c t i o n o f p l a c e m e n t m e a s u r e s and
case of production
counselling,
particularly
t r a n s f e r ) measures of
(in
professional
(2)
t r a i n i n g and
f i n a n c i a l promotion.'
of the
LAA
of the
notice,
tionarily'
l i s e d ' ..
missals
t o l d us,
;
Representatives
t h a t , normally, nothing happens a f t e r r e c e i p t
'as many o f t h e s e r e p o r t s
at the
b e g i n n i n g o f a y e a r and
Even a f t e r the
the
labour
a r e made
are
'precau-
never
rea-
a n n o u n c e m e n t o f e f f e c t e d mass
i n accordance with
t e c t i o n Act'
x
p a r a 17 o f
administration
the
dis-
'Employment P r o -
does not
necessarily
a c t i v e l y i n i t i a t e the 'necessary measures'._
(1)
Mass d i s m i s s a l s i n v o l v e a t l e a s t s i x e m p l o y e e s i n
f i r m s v / i t h up t o f o r t y - n i n e e m p l o y e e s t o t a l .
For firms
w i t h more t h a n f i f t y e m p l o y e e s , d i s m i s s a l o f a t l e a s t
t e n p e r c e n t c o m p r i s e s a 'mass d i s m i s s a l '
(2)
M a i b a u m / B e i e / R a d e m a c h e r , p.
138.
-
Many e x a m p l e s show t h a t t h e
apply
the necessary
missals.
One
sent a l i s t
-
105
l a b o u r a d m i n i s t r a t i o n does
measures a f t e r n o t i c e o f f u t u r e
plant personnel
m a n a g e r t o l d us
o f a l l w o r k e r s t o be
dis-
t h a t he
new
jobs.
A f t e r more t h a n
sent a set of jobseeking cards
filled
i n by
Nothing
happened u n t i l
labour o f f i c e
One
t h e f i r m and
two
weeks, the
to the
s e t back t o the
labour
office.
the
labour a d m i n i s t r a t i o n implementation
p r o g n o s e s on
of
pos-
even^~wheire—such i n f o r m a t i o n
i t i s d o u b t f u l w h e t h e r i t c a n be
t i a t e programmes i n o r d e r
As we
office
the d i s m i s s e d w o r k e r s went t o
„s i & l e - — f 4 i t u r - e — d e v e l o p m e n t s - . — B u t .
occur.
labour
look
t o c l a i m unemployment b e n e f i t s .
c o n s t r a i n t on
available,
to
f i r m , w h i c h were
p l a n n i n g i s t h e l a c k o f i n f o r m a t i o n and
is
had
dismissed w i t h i n a period
o f f o u r weeks, so t h a t p l a c e m e n t a g e n t s c o u l d b e g i n
for
not
to prevent
used t o
crises before
have s t a t e d i n the b e g i n n i n g ,
they
the
labour
a d m i n i s t r a t i o n i s c o n s i d e r a b l y o r i e n t e d towards
crisis
management. T h i s i s p a r t l y due. t o t h e
p a r t l y ~tlue t o t h e
ini-
lack of information .
f a c t t h a t t h e y do n o t u s e
the
available
i n f o r m a t i o n f o r p l a n n i n g an a c t i v e l a b o u r m a r k e t
policy.
By
g i v i n g a d e s c r i p t i o n o f d i f f e r e n t programmes, i t w i l l
be
shown t h a t i n f o r m a t i o n g a t h e r i n g i s an
requisite
f o r the
implementation
important
of labour market
pre-
policy
instruments.
4.2.
G r a n t i n g JTemporary_E^
geld)
The
third
chapter
o f t h e AFG
unemployment i n s u r a n c e
workplaces.'
Paras
6 3 - 7 3 , AFG,
f o r t h o s e who
w e l l - t r a i n e d workers.'
for
at least
s t a f f m u s t be
subsidy
b u t as o f l a s t y e a r ,
creation of
i f doing
so h e l p s
to
to
a t l e a s t one
reduced
t h i r d of
G e t t i n g a temporary
conserve
maintain
H e r e , w o r k h o u r s m u s t be
is isually restricted
the
r e g u l a t e payments f o r s h o r t -
a r e e m p l o y e d , and
f o u r w e e k s , and
affected.
'Benefits of
f o r t h e m a i n t e n a n c e and
term work, w h i c h are g r a n t e d
workplaces
i s entitled:
the
employment
t o a p e r i o d o f s i x months,
the M i n i s t r y o f Labour can
prolong
4
- 106 -
payment f o r s e c t o r s
subsidized
a n d r e g i o n s , up t o two y e a r s .
t e m p o r a r y e m p l o y m e n t was w i d e l y
i s s u e d a s an
instrument t o prevent oaying o f f workers:
of
773,000 w o r k e r s w e r e o n s h o r t - t i m e
I n 1975,
a monthly
work.
average
I n 1976, t h e
number o f s u b s i d i z e d w o r k e r s d e c r e a s e d t o 2 7 7 , 0 0 0 i n t h e
monthly average.
Short-term subsidies
a r e s a i d t o have
(1)
r e d u c e d t h e number o f u n e m p l o y e d t o 50,000 d u r i n g
197 6
The f i g u r e s f o r t h e s h o r t - t i m e - w o r k e r s i n t h e two
selected
labour
market regions
a r e n o t c o m p a r a b l e , as one
.
office
r e g i s t e r s t h e a p p l i c a t i o n s o f employers p e r month, whereas
the
other
o f f i c e has t h e s t a t i s t i c
i n short-time-work.
Figures
o f t h e number o f w o r k e r s
on t h e b a s i s o f one-man-year
c a l c u l a t i o n s comparable t o t h e f i g u r e s on t h e n a t i o n a l
l e v e l c o u l d n o t be f o u n d .
I n one o f t h e l o c a l o f f i c e s
t h e number o f s h o r t - t i m e - w o r k e r s a c c a s i o n a b l y
as h i g h
was
a s t h e number o f r e g i s t e r e d u n e m p l o y e d .
have t o n o t i f y t h e l o c a l o f f i c e o f s h o r t - t e r m
almost
The
plants
work and t h e
o f f i c e t h e n c o n t r o l s t h e company's c o n d i t i o n s .
The p a y m e n t
lists
the
are filled
o u t b y t h e f i r m s , so t h a t o n l y
labour
o f f i c e c o n t r o l s a n d d i s t r i b u t e s money.
Although short-term
insurance
money means t r a n s f e r r i n g money f r o m ^l.e
fund, t h e l o c a l o f f i c e can decide-whether f i n a n -
c i n g i s t o be g r a n t e d o r n o t .
quences f o r t h e l a b o u r
short-term
market.
money h a s t o be p a i d
This
has p o l i t i c a l
P a r a 64 AFG s t a t e s
i f reduction
consethat
of working
hours o c c u r s f o r 'economic r e a s o n s i n c l u d i n g s t r u c t u r a l
changes w i t h i n t h e f i r m s ' o r i f i t i s based on an u n a v o i d able
event
duction
... s h o r t - t e r m
financing i s not granted i f r e -
o f hours i s a usual
occurrence i n the industry or
plant concerned, o r i f i t i s seasonal
plant organisation'.
could
o r b a s e d on
None o f t h e e x p e r t s
we
intra-
interviewed
e x p l a i n e x a c t l y what t h e d i f f e r e n t f o r m u l a t i o f n s
r e a l l y mean.
(1) A u t o r e n g e m e i n s c h a f t I A B , p. 48.
-
Nevertheless,
the
t i o n of firms.
agent of
l o c a l o f f i c e s are
responsible
This
ment l e a d e r
said:
"We.
with
the
are not
f i r m owner.
experts
cannot read balance sheets.
t r u s t what the
f i r m managers t e l l
;
t.erm a i d i s o f t e n used t o delay
t h o s e e m p l o y e e s who
us.
We
'As
e c o n o m i s t s and.
f o r the
f i n a n c i n g are
are
c l e v e r , we
judge i f the
experts
fulfilled
short-term
very
of the
generous i n
local
reduction
or not.
agencies
conditions'
They have t o t r u s t
f i r m ' s economic s i t u a t i o n .
convince the
short-
short-term
cannot judge whether the
of the
can
the
to
labour
a f t e r completing
e m p l o y e r s whose s t a f f s w o r k e d
are not
explanation
have
i n many c a s e s ,
stated that the^abo^r--aHMrni-stration_is
our
We
h a v e r e c e i v e d money f r o m t h e
t h e money:
depart-
know t h a t
dismissals.
a d m i n i s t r a t i o n were d i s m i s s e d
Several
One
in industrial '
management ; we
or
inspection;
inspection process i s usually i n
form of conversations
granting
the
an
f i r m s , the head of the placement department
checks c o n d i t i o n s .
work.
f o r the inspec-
In f i r m s ..with." l e s s t h a n t w e n t y e m p l o y e e s ,
the payment d e p a r t m e n t c a r r i e s o u t
in bigger
the
-
107
'experts'.
If
Nobody
i n working hours i s only
we
can
temporary
not.
Short-term a i d i s o n l y u s e f u l f o r
department, comprising
one
industrial
t h i r d of the
must work p a r t - t i m e
to f i l l
the
In the
sector,
short-term
construction
firms.
total
One
employees,
administration's
conditions.
w o r k seems t o
impossible,
as no customer.- w o u l d a g r e e t o a d e l a y e d
t i o n date.
Nevertheless,
self-governing
construction
for nine
body o f t h e
period.
labour
administration
c l e r k s work
1
be
comple-
e m p l o y e r , a member o f
firm, let his office
the
owning
a
short-time
months.
Many e m p l o y e r s whom we
dismiss
one
entire
interviewed
a d m i t t e d t h e y had
t h e i r personnel to a large extent
A t e m p o r a r y employment s u b s i d y
m e t h o d o f p o s t p o n i n g d i s m i s s a l s t h a n as
overcome s h o r t
cyclical
crises.
a f t e r the
to
sex-month
i s u s e d more a s
a
a method o f 'helping
-
Some p l a c e m e n t
-
108
a g e n t s p l e a d f o r a more r e s t r i c t i v e us
of
t h i s m e t h o d , b u t a t t h e same t i m e t h e y c o m p l a i n t h a t
they
are
con-
n o t a b l e t o r e s o r t t o more d r a s t i c m e a s u r e s .
crete directions
f r o m t h e BA
agents s t r e s s the
a)
employees
unemployed,
exists
No
i n t h i s matter.
p o s i t i v e e f f e c t o f temporary employment s u b s i d i e s :
working p a r t - t i m e are not r e g i s t e r e d
2)
Some
as
these subsidies are l e s s expensive than
unemployment c o m p e n s a t i o n ,
3)
s h o r t - t e r m workers
t i m e t o l o o k f o r a n o t h e r j o b , and
'many e m p l o y e e s
happy t o work o n l y t h r e e o r f o u r days
have
are
a week, e v e n
i f their
earnings are c o r r e s p o n d i n g l y lower'.
S h o r t - t e r m s u b s i d i s a t i o n seems t o be an i n s t r u m e n t w i t h
no
long range e f f e c t s .
Labour
can d e c i d e p e r s o n a l l y whether
granted or not.
Checks
administration
officials
s h o r t - t e r m money s h o u l d be
o f t h e f i r m s r e q u i r e a knowledge
of
i n d u s t r i a l management w h i c h -many o f f i c i a l s do^ hot'have, • and t h e r e f o r e , t h i s instrument^-cannot:be:implemented
t h o s e who
a r g u e f o r more d i s c r e t i o n
better criteria.
Even
i n i t s u s e do n o t
offer
......
w i t h r e s p e c t t o t h e j o b - o f f e r s , we
them.'
selectively.
t r y t o be g e n e r o u s
with
H e r e , i t becomes o b v i o u s t h a t t h e a g e n t s '
g e n e r o s i t y i s e x p l a i n e d by t h e f a c t t h a t t o o many l a b o u r
market
f u n c t i o n s m u s t be c a r r i e d o u t by t h e
department.
On
placement
t h e one h a n d t h e y a r e a s k e d t o g r a n t s h o r t -
t e r m money • ' u n b u r e a u c r a t i c a l l y ' ,
i . e . i n o r d e r t o prevent unem-
p l o y m e n t , w h i c h w o u l d be more e x p e n s i v e , but.on'the o t h e r hand
the
agents have t h e i m p r e s s i o n t h a t unemployed p r o f i t
much b y t h e g e n e r o u s
regulations.
G r a n t i n g s h o r t - t i m e money
c a n be c h a r a c t e r i z e d as a c o n f l i c t b e t w e e n two
Often the employer
i s i n a stronger position
threaten dismissals.
i n c l i n e d to say:
his
of
are
One
agent e x p l a i n e d :
L e t ' s see
client-groups.
b e c a u s e ' he
can
"Sometimes I
am
i f he r e a l l y h a s t o d i s m i s s
w o r k e r s , but i f i t were t r u e ,
we w o u l d be
accused
n o t h a v i n g done o u r b e s t t o p r e v e n t u n e m p l o y m e n t ' .
o v e r b u r d e n e d by h a v i n g t o s o l v e t h e p r o b l e m t o t h e
f a c t i o n of both employers
and
too
employees!"
We
satis-
-
-
109
?
4.3.
J22_Ç.E®§Èi2D_^§aSuï§a_!5§iiË:Ë_L 2E!sL
P a r a g r a p h s 91-9 6, AFG,
describe
job
g r a n t s wage s u b s i d i e s
creation'.
The
BA
which i s of p u b l i c i n t e r e s t ,
out
to•the
subsidies
same e x t e n t
of
the
measures are
1)
the
and
nor
' g e n e r a l measures
which could
at the
'labour
not
be
carried
same t i m e w i t h o u t
labour administration.'
as
for
for
The
the
goals of
the
follows:
to f u r t h e r the
employment o f the
jobless
in
long-
term p o s i t i o n s ;
2)
t o s u p p o r t measures i m p r o v i n g i n f r a s t r u c t u r e ,
3)
to create
and
w o r k - p l a c e s f o r l o n g - t e r m unemployed
workers.
I n a d d i t i o n t o t h e s e g e n e r a l m e a s u r e s , a s p e c i a l programme
f o r m u l a t e d i n p a r a s . 97-99 AFG,
o l d e r w o r k e r s who
industry.
can
Generally
6 0 . p e r c e n t and
supporter.
The
be
subsidised
the
120
job
création f o r
when w o r k i n g i n
labour -administration
per
cent of the
region,
programme, and
the
the
salary
to
the
of
unemployed
the
measures.
Of
generally
occur through a d d i t i o n a l promotion i n the
l o a n s and
g r a n t s of the Lander M i n i s t r y of
I n any case, the providers
t i o n of ten percent.
costs
or personal
T h i s can
be
form
Labour.
a contribution in
material
expenses.
providers
f o r such measures
p u b l i c a l l y c o m m i s s i o n e d b o d i e s s u c h as
or a s s o c i a t i o n s ,
salary
(Träger) must ..prove, a f i n a n c i a l c o n t r i b u -
A c c o r d i n g t o p a r a 92 AFG,
be
cent of the
the
Subsidies
of
more t h a n s i x t y p e r
number o f
duration
private
pays between
amount o f s u b s i d i s a t i o n d e p e n d s on
unemployment r a t e of t h e
persons i n the
deals with
and
local
authorities
i n some s p e c i a l c a s e s , p r i v a t e
firms
( i f the measure 'helps t o improve the
labour market
economic or s o c i o p o l i t i c a l way').
to the p r e s e n t ,
t y - f i v e per
only
cent of the
f i v e per
providers
cent p r i v a t e
firms.
Up
should
were p u b l i c b o d i e s ,
in
an
nineand
-110-
Job
c r e a t i o n measures, c a l l e d
back to the
1920's.
'emergency m e a s u r e s ,
During the
fifties,
more t h a n
p e r s o n s were engaged i n r e l i e f work each y e a r .
economic s i t u a t i o n improved, t h i s
lete;
during
the
labour
o f f i c e s d i d not
measures should
not
years,
be
job c r e a t i o n measures.
i s the question
whether
the
e x p a n d e d t o s u b s i d i z e more p r i v a t e
In
j o b - c r e a t i o n programmes w e r e m o s t l y u s e d i n
The
provider
example) chose a c o n s t r u c t i o n
then executed the
t h e s e m e a s u r e s be
firm provides
f i r m as
contractor,
assigned
to the
programme by
construction of a
some w o r k e r s who
a r e p a i d by
w o u l d o t h e r w i s e be
affected
the
labour
school-house
a j o b - c r e a t i o n programme, t h e
are paid'by j o b - c r e a t i o n s u b s i d i e s .
who
for
which
of persons
t h e m a j o r i t y "of t h e w o r k e r s come f r o m t h e
a firm
the
(a m u n i c i p a l i t y ,
t h a t the m a j o r i t y
a d m i n i s t r a t i o n , i . e . i f the
s u b s i d i s e d by
recent
order.
A directive prescribes
is
the
t o c r e a t e more j o b s more r a p i d l y .
area of c o n s t r u c t i o n .
by
As
i n s t r u m e n t became o b s e -
i m p l e m e n t any
discussed
i n order
100,000
s i x t i e s more t h a n h a l f o f a l l l o c a l
Presently being
firms
date
construction
the
firm
labour
but
office
and
Permanent workers
dismissed
can
of
a l s o be
sub-
' shows t h a t
only
(1)
sidised.
A s u r v e y c o n d u c t e d by
seventy-five
sures are
per
unemployed p e r s o n s a s s i g n e d
twenty-five
of the p r o v i d e r s .
are p r o v i d e r s
and
coast
fortification,
same
are
time.
labour
vitally
i n 19 7 4 s t a t e s :
reclamation
northern
u n e m p l o y m e n t has
c r e a t i o n measures are
BA
a t the
bodies
market
t h e s e measures t r a d i t i o n a l l y .
c u l t i v a t i o n of moorland i n the
the
placement
they
;
heard that there
d i s t r i c t s w h i c h c a r r y on
In these areas,
the
cent are permanent workers
t h e i r own
contractors
I n many i n t e r v i e w s we
are
per
by
I n t h e m e a n w h i l e , many p u b l i c
c a r r y t h r o u g h r e l i e f - w o r k on
by
IAB
c e n t o f a l l w o r k e r s i n j o b c r e a t i o n mea-
department;
projects
the
of
regions
land,
of
always been very
necessary.
A book
high;
These are u n p u b l i s h e d r e s u l t s of a survey c a r r i e d
t h r o u g h i n 19 77 by t h e I A B .
(2)
Heberer/Wagner
115.
job
published
( 2 )
p.
and
Germany.
(1)
(19 74)
The
-111-
"The c r e a t i o n o f w o r k i s n o t a n i m m e d i a t e t a s k o f t h e
labour administration.
The a d m i n i s t r a t i o n m u s t a s s i s t
i n p l a n n i n g these measures.
Stimulation o f the programmes i s done b y t h e s e l f - g o v e r n i n g b o d i e s o f t h e
l o c a l o f f i c e s a n d t h e Länder o f f i c e s .
1
Clearly,
j o b c r e a t i o n measures were c o n s i d e r e d
(1)
drawer programmes' f o r r e a l c r i s e s .
an
amendment p r o v i d i n g
I n 19 75,
t o be 'bottom
t h e BA made
t h a t j o b c r e a t i o n measures be
m e n t e d more i n t e n s i v e l y .
imple-
Those o f f i c e s n o t h a v i n g any
e x p e r i e n c e i n i m p l e m e n t i n g j o b - c r e a t i o n programmes h a d
difficulties
the
BA h a d
4.3.1.
i n stepping
up t h e p r o g r a m m e s a s q u i c k l y a s
intended.
D i f f i5.Hi£i§§_i2_£S§_SlS§t§2§_2£-.IS}Ei§S®Stä£i2S
I f we c o m p a r e t h e s t a t i s t i c s o f t h e t w o l o c a l o f f i c e s , t h e
following figures result:
i n 1975 F r e i b u r g
did not carry
through j o b c r e a t i o n measures, whereas i n K i e l ,
t h e monthly
a v e r a g e o f p e r s o n s i n j o b c r e a t i o n m e a s u r e s -came up t o
fifteen.
139,
The
I n 1976, t h e m o n t h l y a v e r a g e i n K i e l
and i n F r e i b u r g
t o 586 p e r s o n s .
f o l l o w i n g reasons were g i v e n
F r e i b u r g was u n a b l e t o c r e a t e
in
was
1975,
increased t o
to explain the fact
t h e s e programmes
when t h e s e l f - g o v e r n i n g
earlier:
body o f t h e l o c a l
asked t o prepare these measures, employers'
t i v e s as w e l l as employees' r e p r e s e n t a t i v e s
selves
t o be a g a i n s t
representa-
declared
subsidies.
c o n s e n s u s was r e a c h e d , t h e p r o b l e m was d e l e g a t e d
commission which d e a l t w i t h b u d g e t i n g q u e s t i o n s .
m o n t h s , t h e y c o n s e n t e d to- t h e
measures i n t h e F r e i b u r g
self-governing
agency
them-
t h e i m p l e m e n t a t i o n , as they d i d n o t
want t o s u p p o r t t h e p u b l i c b o d i e s w i t h
the
that
Since
no
t o a sub-
A f t e r some
i m p l e m e n t a t i o n o f job-creatiön
region.
This
b o d i e s on t h e l o c a l
e x a m p l e shows
that
l e v e l do n o t n e c e s s a -
(1) One a r g u m e n t w h i c h was n e v e r m e n t i o n e d i n t h e d i s c u s s i o n s
s h o u l d be c l a r i f i e d :
The i m p a c t o f j o b c r e a t i o n m e a s u r e s
means, o n t h e o n e h a n d , t h e r e d u c t i o n o f t h e u n e m p l o y m e n t
r a t e and t h e r e s t r a i n i n g o f p s y c h o l o g i c a l and s o c i a l l o n g term e f f e c t s f o r t h e l o n g - t e r m unemployed b u t on t h e o t h e r
hand, j o b c r e a t i o n measures impede t h e m o b i l i t y o f t h e
unemployed.
Many u n e m p l o y e d p r e f e r w o r k i n g i n j o b c r e a t i o n
m e a s u r e s i n s t e a d o f a c c e p t i n g p e r m a n e n t p o s i t i o n s away from,
home.
-112-
rily
h a v e t o f o l l o w BA r e c o m m e n d a t i o n s .
block
t h e BA
I t i s possible to '
policies.
Although u n t i l very
recently, the labour
Länder l e v e l made d e c i s i o n s
concerning j o b c r e a t i o n measures,
today the l o c a l o f f i c e s a r e r e s p o n s i b l e
f o r amounts up t o DM
a g e n c i e s on t h e
500,000.
f o r the a l l o c a t i o n
Some o f t h e p r o v i d e r s
t h a t t h e a d m i n i s t r a t i v e p r o c e d u r e was
said
a c c o m p l i s h e d more
s m o o t h l y when t h e Länder o f f i c e s w e r e s t i l l
i n charge;
the
Länder o f f i c e a c c e p t e d a p p l i c a t i o n s more r e a d i l y , t h e c a n vassing
erning
the
o f a p p l i c a t i o n s w e n t more q u i c k l y a n d t h e s e l f - g o v bodies r e g u l a r l y acquiesced to the proposals.
i m p l e m e n t a t i o n has been t a k e n t o t h e l o c a l
m u s t be c a r r i e d o u t by a g e n t s who
but
Since
level, i t
are not q u a l i f i e d
enough;
t h e m a i n c o n s t r a i n t s a r e s e e n t o come f r o m t h e s e l f -
governing bodies,
i c a l debate.
where
'each a p p l i c a t i o n p r o v o k e s a
The i n f l u e n c e o f p o t e n t i a l p r o v i d e r s
power o f t h e i r
'lobby'
i n the self-governing
polit-
and t h e
bodies a f f e c t
j o b c r e a t i o n m e a s u r e s more t h a n c o n s i d e r a t i o n s
of
labour
*
market p o l i c y ' .
I n one l o c a l labour market region, w i t h .only two job c r e a t i o n m e a s u r e s ,
we r e a l i z e d t h a t t h e s e w e r e a l l o c a t e d t o one e m p l o y e r who
was a member o f t h e s e l f - g o v e r n i n g
and
t o a n o t h e r who
was a r e p r e s e n t a t i v e
i n g b o d y o f t h e Länder o f f i c e .
Still,
as r e p r e s e n t a t i v e s
to information,
body on t h e l o c a l
of the
T h i s may
self-govern-
be m e r e
coincidence.
o f t h e s e b o d i e s have b e t t e r
they can p r o f i t
c r e a t i o n measures a r e o f t e n
and
many p r o j e c t s h a v e t o be p l a n n e d w i t h o u t e v e r
installed
Sometimes, t h e p r o v i d e r s
on s h o r t
notice,
being
c a n n o t come up
the
t e n p e r c e n t c o n t r i b u t i o n , sometimes unemployed
the
d e s i r e d q u a l i f i c a t i o n s a r e n o t a v a i l a b l e when t h e
project should
beginning
by t h e BA.
begin.
-Funds m u s t be c l a i m e d
of the year,
with
with
at the
a f t e r w h i c h t h e y c a n n o t be r e a l l o c a t e d
Local agencies are often
t i n g t h e i r n e e d s a n d means.
w e r e f o r much h i g h e r
access
from the i n c e n t i v e s .
Job
implemented.
level,
incapable
of pre-calcula-
When, i n 1976 t h e a p p l i c a t i o n s
amounts t h a n t h e b u d g e t c o u l d
make
-
available,
113
-
t h e Länder o f f i c e s t r i e d
distributing
t h e money.
i s unknown t o t h e
Länder o f f i c e s .
This
key,
t o work out
a key
the r a t i o n a l e of
which
l o c a l o f f i c e s , v a r i e s i n the d i f f e r e n t
Some l o c a l o f f i c e s g o t
only
scarce
funds
i n comparison w i t h the resources, they a p p l i e d f o r ,
other
The
providers
fund.
labour
o f f i c e of F r e i b u r g
could not
f o r j o b c r e a t i o n m e a s u r e s f o r i t s DM
I n b o t h o f t h e o f f i c e s we
s t u d i e d , the
pressed
their dissatisfaction with
funds.
On
t h e one
hand, t h e y had
forecasts of prospective
these needs h a r d l y
distribution.
the
r e q u i r e m e n t s and,
seemed t o be
Discontent
a g e n t s h a v e no
use
to determine i t s a l l o c a t i o n p o l i c y .
able
AFG
tions.
not
s t a t e s t h a t the
million
agents
ex^
on
of
complicated
the
other,
by
the
fact that
offices
Representatives
l o c a l o f f i c e s of
not
budgets.
l o c a l o f f i c e s r e c e i v e the
applica-
U n l i k e unemployment b e n e f i t a p p l i c a t i o n s , t h e s e
come i n a u t o m a t i c a l l y .
labour
with
to plan t h e i r
1.5
enough
s t a n d a r d s t h e Länder
o f t h e Länder o f f i c e s a c c u s e t h e
being
find
taken i n t o account i n fund
i s increased
idea of the
could
distribution
t o work out
the
The
and
l o c a l o f f i c e s r e c e i v e d more money t h a n t h e y
spend.
for
One
of the main t a s k s of
do
the
administration i s providing their potential providers
information.
difficulties
The
enacting
b u r e a u c r a c y seems t o h a v e h a d
enormous
adequate m a r k e t i n g s t r a t e g i e s .
The
l o c a l o f f i c e s w e r e i n s t r u c t e d t o t r y t o awaken i n t e r e s t
i n the
programme among l o c a l a u t h o r i t i e s , p u b l i c a s s o c i a -
t i o n s and
similar organisations.
In F r e i b u r g , the
depart-
ment h e a d o f p l a c e m e n t w e n t t o s e e
t h e mayors o f a l l n i n e t y
communities w i t h i n h i s r e g i o n , but
t h e c a m p a i g n was
unsuc-
c e s s f u l because most o f the
l o c a l a u t h o r i t i e s could
a f f o r d the. r e q u i r e d t e n p e r
cent f i n a n c i a l c o n t r i b u t i o n .
O t h e r p u b l i c a u t h o r i t i e s c o m p l a i n e d .of n o t
informed.
of Freiburg
the
The
personnel
manager o f t h e
s a i d , f o r e x a m p l e , t h a t he
existence
of
o f t h e M i n i s t r y f o r L a b o u r and
f o r j o b - c r e a t i o n m e a s u r e s has
been
university clinic
had
job c r e a t i o n measures.
l a r g e s t employer i n the r e g i o n .
having
not
'In K i e l ,
never heard
The
the
Social Affairs
clinic
is
of
the
department
responsible
i n i t i a t e d ä campaign t o inform
-
114-
p o t e n t i a l p r o v i d e r s , a f t e r the
local
labour
office
manage t o i n t e r e s t t h e p u b l i c a u t h o r i t i e s i n t h e
One
explanation
f o r the
passive
a t t i t u d e of the
could
programme.
labour
istration
i n e n a c t i n g m a r k e t i n g s t r a t e g i e s c o u l d be
financial
arrangement they have t o d e a l w i t h .
g o v e r n m e n t and
these measures, labour
a d m i n i s t r a t i o n leaves
w o r k t o t h e Länder g o v e r n m e n t s , and
much i n v o l v e d when i t f i n a l l y
Job
As
the Lander governments share the
not
admin-
the
the
federal
costs
of
a l l preparatory
consequently i s not
comes t o
very '
implementation.
c r e a t i o n w o u l d w o r k b e t t e r i f t h e Länder w e r e
involved-
(1 )
i n implementing the proposed measures.
serve
the
as
an
example:
strongest
plans
and
The
Bremen'
'Senate f o r Labour' i s not
p r o v i d e r o f job c r e a t i o n measures but
s u b s i d i z e s these measures.
The
r e p r e s e n t a t i v e s of the
f o r Economy and
S e n a t e f o r L a b o u r and
Finances.
p l a c e where e x p e r i e n c e s
I f the
and
is
the
t h o s e programmes.
are
Senate
also
exchanged w i t h r e g a r d
local
to
f o r m s o f an
implementation,
level
are
the
responsible
for
These b o d i e s cannot t r a n s f e r
a supra-regional
institutionalised
of the
different countries
charged w i t h the
s e l f - g o v e r n i n g b o d i e s on
i n f o r m a t i o n on
includes
implementation of j o b - c r e a t i o n measures.
local level
initiating
also
Meetings of the M i n i s t r y of
Labour r e p r e s e n t a t i v e s of the
the planning
only
Senate e s t a b l i s h e d
a w o r k i n g group f o r job c r e a t i o n measures which
take
might
l e v e l , as t h e r e
information
are
exchange.
no
In
conversations w i t h r e p r e s e n t a t i v e s o f the s e l f - g o v e r n i n g bodies, i t
became c l e a r t h a t t h e
representatives
a c t i v i t i e s of the
h a v e no
information
on
the
respective bodies i n other
regions.
(1)
The e m p i r i c a l r e s u l t s a r e b a s e d on i n t e r v i e w s
which
t h e a u t h o r p e r f o r m e d t o g e t h e r w i t h K e n n e t h Hanf i n
Bremen. T h e s e i n t e r v i e w s t o o k p l a c e i n c o n n e c t i o n
- w i t h a n o t h e r p r o j e c t done i n t h e I I M .
For the p r o j e c t
p r o p o s a l see:
K. H a n f / B . H j e r n / D . P o r t e r :
Networks
o f I m p l e m e n t a t i o n and A d m i n i s t r a t i o n f o r Manpower
P o l i c i e s at the L o c a l L e v e l i n the F e d e r a l R e p u b l i c
o f Germany and Sweden, I I M D i s c u s s i o n P a p e r s 77-16.
-115-
I n summary:
i n the
planning
measures, r e l e v a n t
play
an
actors
stages of
outside
important r o l e .
The
different administrative
job
labour
between
bodies e x i s t s i n c i t y
S e n a t e i s a t the
same t i m e t h e
u t i o n and
the
job
provider
of
a r e a - w i d e s t a t e , s u c h as
procedures,
administration
best co-operation
where the
o f L a b o u r c a n n o t be
creation
planning
instit-
c r e a t i o n measures.
Schleswig-Holstein,
engaged i n e x t e n s i v e
because i t d o e s n o t
states,
In
the
Ministry
concrete
know e n o u g h a b o u t
an
planning
local
conditions.
At
t h e moment, t h e BA
criteria
ment.
and
the m i n i s t r y are
f o r more s e l e c t i v e i m p l e m e n t a t i o n o f t h i s
F r o m w h a t we
discrepancies
could
i n the
learn in
handling
of
i s t r a t i o n on
i n the
t h e Länder l e v e l .
job c r e a t i o n
tries
t o work out
representative
a list
k i n d o f work s u b s i d i e s
o f f i c e has
no
s h o u l d be
the
stated that
Great differences
respect
to the
and
providers
new
the
according
The
i t was
first
The
to
to
which
labour
which
ministry
representative
difficult
Labour
to
of
one
convince
Länder l e v e l d o e s n o t
f o r job
the
labour
have
administration.
local
agencies
number o f p e r s o n s
c r e a t i o n measures.
i n ' the
field.
the
Referees
l o c a l o f f i c e s to
'Job
v e r y d i f f i c u l t programmes t o h a n d l e .
e n a c t s new
regulations.
as
No
of
de-
develop
c r e a t i o n measures
T h a t i s why
with
involved,
o f f i c e s e x p l a i n these d i f f e r e n c e s
the w i l l i n g n e s s of
activities
constantly
Kiel
come,
according
e x i s t between v a r i o u s
conditions,
t h e Länder l a b o u r
p e n d i n g on
a "first
allocated.
necessary a u t h o r i t y over the
the
admin-
o f f i c e s t o a p p l y more s e l e c t i v e i m p l e m e n t a t i o n
b e c a u s e t h e m i n i s t r y on
the
labour
implemented, whereas the
to develop p o l i c y goals.
labour
the
measures
i n the M i n i s t r y of
substantial criteria
Länder m i n i s t r y
instru-
l o c a l agency i n
of p r i o r i t i e s
job c r e a t i o n measures are
tries
The
p a s t g r a n t e d t h e money o n
served" b a s i s , the
develop
Schleswig-Holstein,
e x i s t b e t w e e n t h e M i n i s t r y o f L a b o u r and
has
t r y i n g to
the
are
BA
o t h e r m e a s u r e demands
- 116 -
*
so many f u r t h e r t r a i n i n g c o u r s e s
many l o c a l
these
agencies
tasks.
f o r our personnel.
are over-burdened, they
Because
t r y to avoid
1 ( 1 )
Interviews w i t h those
in the l o c a l o f f i c e s
r e s p o n s i b l e f o r j o b c r e a t i o n measures
elicited
cerning the d i f f i c u l t y
the following opinions
i n implementing these
con-
programmes:
- A l o n g p e r i o d o f time passes between p l a n n i n g
and
r e a l i s a t i o n ; we do n o t know, t h e r e f o r e , i f t h e r e
will
be e n o u g h u n e m p l o y e d t o w o r k i n t h e programmes when
they
start.
- F i n d i n g s u i t a b l e unemployed persons c o n s t i t u t e s a
g r e a t d e a l o f work f o r t h e p l a c e m e n t agents:
months
ago, we w e r e l o o k i n g f o r t w e l v e
workers f o r a road b u i l d i n g p r o j e c t .
were a s k e d t o p r e s e n t
H a l f o f them r e f u s e d
ally disabled.
•health office
We
'A f e w
unskilled
Forty
applicants
themselves i n the labour
t h e w o r k , c l a i m i n g . t o be
had t o o r d e r
f o r each.
payment o f u n e m p l o y m e n t
office.
physic-
an i n q u i r y by o u r
F i n a l l y , we h a d t o s t o p
compensation i n fourteen
cases.
A l o t o f a d m i n i s t r a t i v e work i s i n v o l v e d i n r e d u c i n g
t h e number o f u n e m p l o y e d by t w e l v e
months.
persons f o rs i x
1
- Job c r e a t i o n measures i n r u r a l areas a r e v e r y
to implement.
The w o r k - p l a c e s a r e o f t e n s o f a r away
t h a t n o b o d y c a n be e x p e c t e d t o
- Since
difficult
commute s u c h d i s t a n c e s .
j o b c r e a t i o n measures a r e extended t o t h e employee
s e c t o r , t h e w o r k - l o a d o f p l a c e m e n t agents has
Compared
t o c o n s t r u c t i o n work, i n w h i c h a h i g h
o f u n e m p l o y e d c a n be p l a c e d , b u r e a u c r a c i e s
increased.
number
can o n l y
(1) A p o t e n t i a l s u p p o r t e r t r i e d t o g a t h e r i n f o r m a t i o n o n
job c r e a t i o n measures d u r i n g a telephone
conversation
w i t h an a g e n t .
The l a b o u r o f f i c e e m p l o y e e ' s a n s w e r
was:
'I w o u l d s u g g e s t y o u abandon t h e p l a n , as a l o t
of paperwork i s i n v o l v e d . '
-
employ a few p e o p l e .
m u s t be w o r k e d o u t .
117 -
F o r each p e r s o n an a p p l i c a t i o n
The l a b o u r
administration
prefers
f i n d i n g w o r k f o r l a r g e numbers o f u n e m p l o y e d i n o r d e r
t o d e c r e a s e t h e u n e m p l o y m e n t r a t e more d r a m a t i c a l l y .
4.3.2.
The
ï5fELêïïëS!Ëi22_i22SzÇEêâÈi2S_îiSâËli£§§_âË_â_§§£2âii2iS2
Process
critical
remarks mentioned above a l l d e a l w i t h
inner-
o r g a n i s a t i o n a l c o n s t r a i n t s o r r e s t r i c t i o n r e s u l t i n g from
the
labour
market s i t u a t i o n .
A f u r t h e r p r o b l e m seems t o
be
t h e f a c t t h a t t h e a d m i n i s t r a t i v e s t a f f d o n o t know how
to
'attract'
potential providers.
I n a d d i t i o n t o t h e mar-
keting s t r a t e g i e s designed t o guarantee that p o t e n t i a l
v i d e r s a r e i n f o r m e d o f t h e programmes, t h e b a r g a i n i n g
the
labour
a d m i n i s t r a t i o n and t h e p r o v i d e r s
r o l e . A very
between
an i m p o r t a n t
d i f f e r e n t i a t e d i n c e n t i v e system e x i s t s t o o f f e r
them a t t r a c t i v e p o s s i b i l i t i e s .
s h a l l be d i s c u s s e d :
so-called
play
pro-
Some o f t h e p o s s i b i l i t i e s
1) T h e l a b o u r
administration can o f f e r
' r e g i e w o r k ' , w h i c h means t h a t t h e p r o v i d e r c a n
c a r r y o u t j o b c r e a t i o n m e a s u r e s w i t h h i s own p e r s o n n e l , i f
(1 )
there
i s no p r i v a t e f i r m i n t e r e s t e d i n t h e w o r k
instrument can thus'be implemented t o m a i n t a i n
w h i c h would o t h e r w i s e be abandoned.
possibility
e x i s t s i n p l a y i n g on t h e f i n a n c i a l
to the provider.
cent o f t h e cost.
finances.
2) A n o t h e r
'.
The
workplaces
bargaining
advantage
N o r m a l l y , t h e p r o v i d e r must pay t e n p e r
Here, t h e labour
administration can help
3) A s s i g n e d w o r k e r s c a n e v e n b e e x c h a n g e d
the
provider's
permanent s t a f f ,
i f the assigned
not
have t h e n e c e s s a r y q u a l i f i c a t i o n s .
for
w o r k e r does
These examples
show t h a t t h e a g e n t ' s d i s c r e t i o n a r y p o w e r i s c o n s i d e r a b l e .
(1)
I n t h i s c a s e t h e c h a m b e r s o f commerce a n d t r a d e m u s t
give a statement that only t h e provider himself i s
t o c a r r y o u t t h e work.
-118-
I f the labour
administration
the- v a g u e l y d e f i n e d
very
measure w e l l ,
i m p o r t a n t and a l s o a t t r a c t i v e
providers.
tation,
the labour
requires
enough t o e n a c t
j o b c r e a t i o n c a n be a
instrument f o r the
Depending on t h e t y p e o f b u r e a u c r a t i c
offices
programmes i n v a r i o u s
As
i s flexible
can implement j o b c r e a t i o n
ways.
Successful
a certain entrepreneural
previous
orien-
implementation
ability.
m e n t i o n e d , t h e S e n a t e i n Bremen h a s t a k e n
the
function of bargaining
with
The
department head o f t h e l a b o u r
over
the potential providers.
administration
i s asked
t o make a s t a t e m e n t o n t h e a v a i l a b i l i t y o f t h e w o r k e r s .
demanded.
The l a b o u r
administration
much a d m i n i s t r a t i v e w o r k .
implemented very
i s thus r e l i e v e d o f
J o b c r e a t i o n measures a r e
s u c c e s s f u l l y i n Bremen.
p e r c e n t o f t h e unemployed were p l a c e d
1976.
per
Plans
More t h a n
five
i n r e l i e f work i n
were t o r e d u c e t h e unemployment r a t e by t e n
c e n t i n 1977.
H o w e v e r , t h e f a c t t h a t t h e S e n a t e i s v e r y much
brings
a b o u t ' c o n f l i c t s among t h e a c t o r s .
of the labour
o f f i c e described
p e o p l e who t r y t o e x e r c i s e
labour
office'.
In order
involved
The d i r e c t o r
t h e problem:
"There a r e
t o o much i n f l u e n c e o v e r t h e
t o 'demonstrate h i s d y n a s t i c
p o w e r ' , he s o m e t i m e s v e t o s t h e S e n a t e p l a n s .
r e a l l y u s e h i s power f u l l y ,
He c a n n o t
because t h e s e l f - g o v e r n i n g
b o d i e s d e c i d e o n a c t u a l a l l o c a t i o n o f j o b c r e a t i o n measures.
In t h i s connection,
self-governing
subscribe
body n o t e d ,
o n e o f t h e members o f t h e
' i f t h e d i r e c t o r does n o t
t o our proposals,
we go t o Nürnberg'.
The
e x a m p l e shows t h a t t h e s t e e r i n g c a p a c i t y o f t h e s t a f f
in the labour
planning
administration
the
i f the
administration
the labour
administration.
The
is.somewhat o f an o u t s i d e r , as
Senate i s s t r o n g l y supported by t h e s e l f - g o v e r n i n g
body.
up
limited,
and t h e a l l o c a t i o n c a p a c i t y o f j o b c r e a t i o n
measures l i e o u t s i d e
labour
i s rather
On t h e one h a n d , t h e l a b o u r
p a r t o f i t s power t o o t h e r
hand, i t c o m p l a i n s o f b e i n g
administration
gives
a u t h o r i t i e s , on t h e o t h e r
o u t o f t h e game.
- 119 -
To summarize, i m p l e m e n t a t i o n p r o b l e m s o f j o b c r e a t i o n
m e a s u r e s c a n be d e s c r i b e d
as f o l l o w s :
c a n n o t be r e g a r d e d a s c r i s i s - m a n a g e m e n t
as
they r e q u i r e r a t h e r
conditions
Job
instruments,
long-term planning.
of successful
between t h e l a b o u r
These measures
One o f t h e
implementation i s close
contact
a d m i n i s t r a t i o n and p o t e n t i a l c l i e n t s .
c r e a t i o n measures c o m p r i s e an i n s t r u m e n t ,
t h e implemen-
t a t i o n o f w h i c h i s l a r g e l y dependent on a c t i v i t i e s
the
labour
ing
the labour
providers.
administration.
One o f t h e d i f f i c u l t i e s
administration lies
i n motivating
potential
administration i s accus-
tomed t o working. • P u b l i c b o d i e s r e c r u i t t h e i r s t a f f
market independent o f p u b l i c labour
a d m i n i s t r a t i o n must c o n t a c t
to f i n d s u i t a b l e
The
from a
a d m i n i s t r a t i o n , so the
a 'new' c l i e n t
group
providers.
incorporation of the self-governing bodies often
t h e d e c i s i o n p r o c e d u r e more c o m p l i c a t e d
into p o l i t i c a l
Important
issues.
i s not only
t h e number o f p e r s o n s p l a c e d
i s o f t e n a . m a t t e r o f controversy
and between t h e l a b o u r
governing board.
administration
(For example, should
ing
on t h e i n f l u e n c e , o f t h e d i f f e r e n t
and
the p o l i t i c a l
Job
This
and t h e s e l f -
t h e BA s u b s i d i s e t h e
interest
Depend-
groups,
climate w i t h i n the l o c a l network, the l a -
bour a d m i n i s t r a t i o n i s exposed t o pressures
i n a local
through
within the self-governing
c o n s t r u c t i o n o f an a i r p o r t f o r p r i v a t e a e r o p l a n e s ? )
actors
makes
a n d t u r n programms
t h e s e measures, b u t a l s o t h e k i n d o f work i n v o l v e d .
bodies,
confront-
P u b l i c b o d i e s do n o t b e l o n g t o t h e t r a d i t i o n a l
c l i e n t group, w i t h which the labour
labour
outside
labour
by t h e d i f f e r e n t
market.
c r e a t i o n m e a s u r e s become more a n d more i m p o r t a n t as. t h e
number o f l o n g - t e r m u n e m p l o y e d i n c r e a s e s .
Many o f t h e '
a g e n t s i n t h e l o c a l o f f i c e s c o m p l a i n t h a t t o o much much' i s
- 120 -
demanded o f them.
sively
They a r e a s k e d t o be a b l e t o a c t d e c i -
i n a basically unstructed
situation.
Agents a r e
p r i m a r i l y t r a i n e d i n r e g u l a t o r y t a s k s and m e d i a t i n g
t i o n s and thus have d i f f i c u l t y
i n negotiating with
funcpro-
viders.
4.4.
Ths_Individual_Promotign_of_Further_Trainin2_and
5§È£âiSi22 ( I n d i v i d u e l l e . Förderung von F o r t b i l d u n g und Umschulung)
The
fourth sub-section
(paras
33-52 AFG d e a l i n g w i t h
employ-
ment a n d l a b o u r m a r k e t p o l i c y ) h a s t o do w i t h a s s i s t a n c e
in vocational training,
further training,
shall
i . e . , basic vocational training,
and r e t r a i n i n g .
I n t h i s chapter,
we
f o c u s o n p a r a g r a p h s 41-47 AFG c o n c e r n i n g i n d i v i d u a l
(1)
p r o m o t i o n o f f u r t h e r t r a i n i n g and r e t r a i n i n g
.
Partici-
p a n t s i n t h o s e programmes r e c e i v e f e e s f o r t h e c o u r s e s
as a s u b s i s t e n c e a l l o w a n c e
No o t h e r i n s t r u m e n t
One o f t h e m o s t d r a s t i c c h a n g e s was b r o u g h t
(Haushaltsstrukturgesetz) i n late
from threee
to s i x years.
i s made b e t w e e n
into
t o reduce the p u b l i c
1975. T h i s
law r a i s e d t h e n o r m a l p e r i o d o f employment b e f o r e
measures.
legal
as t h e i n d i v i d u a l promotion o f
e f f e c t by a budgetary law designed
spending
of training.
o f t h e AFG h a s u n d e r g o n e a s many
changes i n r e c e n t y e a r s
training.
d u r i n g the time
as w e l l
promotion
Here, a d i s t i n c t i o n
'necessary'
'and ' e x p e d i e n t '
T r a i n i n g i s 'necessary'
training
when t h e a p p l i c a n t i s
w i t h o u t work, immediately
threatened
by unemployment, o r
has
employed..
I n these
no p r o s p e c t s
of being
cases,
p e r c e n t o f t h e a p p l i c a n t s ' l a s t n e t wage i s p a i d
the t r a i n i n g p e r i o d .
I f these
eighty
during
c o n d i t i o n s a r e n o t met,
payment i s f i f t y - e i g h t p e r c e n t o f t h e a p p l i c a n t s ' l a s t
(D
Further training involves the extension of a p a r t i c i p a n t ' s knowledge o f and q u a l i f i c a t i o n s f o r t h e v o c a t i o n
i n w h i c h he was t r a i n e d o r t h e w o r k he p r e v i o u s l y _ p e r formed.
R e t r a i n i n g , h o w e v e r , means t h a t t h e p a r t i c i p a n t
i s t r a i n e d i n a c o m p l e t e l y new v o c a t i o n .
- 121 -
n e t wage.
I f a n a p p l i c a n t was e m p l o y e d a s un u n s k i l l e d
worker before
of h i s l a s t
t h e t r a i n i n g , he a l s o g e t s e i g h t y p e r c e n t
salary.
The amendments t o t h e l a w a i m a t
p l a c i n g more u n e m p l o y e d a n d u n q u a l i f i e d w o r k e r s i n t r a i n i n g
measures.
the
Finally,
t h e amendment h a d t h e e f f e c t o f
reducing
t o t a l number o f p a r t i c i p a n t s b y more t h a n f o r t y p e r
cent.
The
f o l l o w i n g e m p i r i c a l r e s u l t s a r e p a r t l y b a s e d on o b s e r v a -
t i o n s o f t h e sub-department f o r j o b c o u n s e l l i n g and p a r t l y
on
and
interviews with
those responsible
f o r further training
r e t r a i n i n g i n the placement department.
views were a l s o performed w i t h
Focused
representatives
of
inter-
institu-
t i o n s o f f e r i n g courses f o r f u r t h e r t r a i n i n g and r e t r a i n i n g .
The
in
'the
main c h a r a c t e r i s t i c o f v o c a t i o n a l t r a i n i n g f o r a d u l t s
t h e FRG i s t h a t t h e r e
courses.
sponsible
i s no c e n t r a l b o d y t o c a r r y
D i f f e r e n t p u b l i c and p r i v a t e s c h o o l s
f o r adults'
through
arer e -
training.
4.4.1.
Counselling_for_Further_Traini
Clients
i n t e r e s t e d i n v o c a t i o n a l q u a l i f i c a t i o n s a r e coun-
s e l l e d by a s p e c i a l s t a f f o f t h e placement department.
Normally, a conversation
with
a placement agent
place
with
the job counsellor.
before
the contact
takes
c o u n s e l l o r has t o d e c i d e whether p r o m o t i o n s h o u l d
g r a n t e d on t h e b a s i s o f t h e l a b o u r
the
client's personal
qualities.
appropriate'.
I t i s very
F o r many y e a r s ,
t o o p e r a t i o n a l i s e t h i s vague l e g a l term.
for
d i f f i c u l t to
market
t h e BA
They
meeting current
s o c i e t a l needs
H o w e v e r , t h i s d e c i s i o n was d i f f i c u l t
tried
tried,
example, t o s p e c i f y t h a t t h e d e s i r e d v o c a t i o n
occupation
be
market s i t u a t i o n and
determine whether a t r a i n i n g course i s 'labour
politically
The
be a n
(Mangelberuf).
t o make o n t h e b a s i s
o f t h e l a b o u r market s i t u a t i o n as t h e need f o r p a r t i c u l a r
vocations
c a n n o t be f o r e c a s t .
I f a c l i e n t chooses a
r e t r a i n i n g c o u r s e o f two y e a r s d u r a t i o n ,
o f t e n pass between t h e a p p l i c a n t ' s
choice
three
of a
years
vocation
-
and
his termination
forced
of a course.
to d e c i d e under g r e a t
scarcely give accurate
Decisions
are
as
b a s e d on
difficult
consideration.
personal
H e r e , we
counsellors
1
the
1
training .
The
If
the
results
, i n g he
the
no
the
age
too
psychological
of f o r t y ,
are
the
to f i n d out
t o be
i n f l u e n c e d by
consideration.
on t h e
training
their
The
based
During
either
i s an
short-term
labour
age
the
I t seems as
chance
are
of
as
f a c t t h a t many
continue
do
to
suggest
not
seem
nor
always,be taken
i f advice
supply
limit
market c o n s i d e r a t i o n s ,
inclinations
on
several
they
courses such
counsellors' proposals
facilities
the
asked f o r
c l i e n t s h a v e no
Regardless of
c l i e n t s ' personal
to
the
graduates:
is primarily
of work, c o u n s e l l o r s
The
train-
intellectual qualities
sufficient:
Often only
t y p i n g are o f f e r e d .
these courses.
accept
i t became o b v i o u s t h a t t h e
f o r a d m i s s i o n , so t h a t o l d e r
are out
complete
years o l d .
booked t h r e e y e a r s i n advance, o r t h e r e
typists
comments
judgement.
o f the young
F i n a l l y , advice
courses i s not
participating.
The
sometimes
courses c u r r e n t l y o f f e r e d i n the region.
of t r a i n i n g
con-
vocation
unsteady to
often twenty-five
job-counselling sessions,
the
Normally,
procedure i s s i m i l a r
thus t r y to evaluate
applicants.
retraining
include negative
c o u n s e l l o r has
This
a p p l i c a n t s , even a t the
of the
market
between
f o r the
counsellors
vocational counselling situation
grades from s c h o o l ,
can
clients
i d e a o f what t y p e o f v o c a t i o n a l
inclinations.
counsellors
of the
c o u n s e l l o r , however.
t h e b a s i s o f t h e i r own
wants t o pursue, the
client's
that they
not.
of these
seems t o be
Nevertheless,
c l i e n t has
thus
examination to
is qualified
f o r the
applicant
t h e a p p l i c a n t on
do
a psychological
binding
are
those concerning labour
psychological certificates often
s u c h as
so
characteristics
t h o s e who
applicant
he w a n t s t o p u r s u e .
are not
uncertainty,
have t o d i f f e r e n t i a t e
f o r and
order
t r o l whether the
tests
counsellors
know e x a c t l y w h i c h v o c a t i o n a l
t h e y want t o a p p l y
the
The
advice.
t o make as
t h o s e c l i e n t s who
-
122
i s often
in a particular
can
into
dependent
labour
market
-
region.
-
B e c a u s e many a p p l i c a n t s
a n o t h e r town, the
counsellors
t r a i n i n g o f f e r s i n the
Meanwhile, the
beginning
yet
123
u n w i l l i n g t o move t o
have r e c o u r s e
only
chapter.
Counsellors
Before
are
1976,
confronted
h i g h l y m o t i v a t e d and
w h a t s o r t s o f c o u r s e s and
requires
hot
employed.
The
different counselling.
in vocational training,
wise.
Most o f the
c a r r y out
i f placement i s not
these functions:
motivating
are not
the
(except
As
f o r one
to other
requires
chances
the
BA
region.
labour
administra
the
retraining
d o e s n o t manage i t s own
The
establishment
c e n t r a l i s e d , but
A f t e r t h e AFG
was
schools
rather
of these
l e f t to the
labour
semi-private
c o n d u c t f u r t h e r t r a i n i n g and
administration i s confronted
local
a
administra-
institutions
with a
Today
fragmented
I n some
t o c o p e w i t h more t h a n one
different organizations.
institu-
retraining.
system c o n s i s t i n g of d i f f e r e n t p r o v i d e r s .
a d m i n i s t r a t i o n has
task
s p e c i f i c needs o f
amended, t h e
f o u n d many p r i v a t e and
w h i c h now
countries
i n Dortmund), i t must a l l o c a t e t h i s
authorities.
i s not
European
f o r f u r t h e r t r a i n i n g and
o f f i c e s whose j o b i t i s t o m e e t t h e
the
the
training.
s i t u a t i o n i n most o t h e r
responsible
i n Germany.
labour
to
recent
p r o b l e m g r o u p members t o i m p r o v e t h e i r
to the
t i o n are
tion
prepared
Today, j o b c o u n s e l l i n g
c e n t r a l autonomous b o d i e s o u t s i d e
tions
other
Managin2_the_Training_Infrastructure
Contrary
no
possible
formalities for
o f e m p l o y m e n t by means o f v o c a t i o n a l
4.4.2.
staff
t o participât
job counselling i n
y e a r s p r i m a r i l y meant p r e p a r i n g
that
administrative
applicants
job c o u n s e l l o r s
payment d e p a r t m e n t .
T h e y knew e x a c t l y
new-target group
The
m u s t make e f f o r t s t o m o t i v a t e t h e
of
already
t r a i n i n g t h e y w a n t e d , so
necessary.
th
with
the m a j o r i t y
p e r s o n s i n t r a i n i n g o r r e t r a i n i n g c o u r s e s were
c o u n s e l l i n g was
the
h a v e c h a n g e d , as m e n t i o n e d a t
a different clientele.
skilled,
to
region.
conditions
of the
are
regions
hundred
Promotion of f u r t h e r t r a i n i n g
-
and
retraining
tion
-
presupposes t h a t the
recognise
Providers
124
the
c o u r s e s as
s u b m i t an
local
a p p l i c a t i o n f o r approval
as t h e p r e s c r i b e d number o f
fees.
lessons
labour
who
have claimed
for
further training
a d m i n i s t r a t i o n pays the
the
and
providers
apply
f o r approval
they a d v e r t i s e f o r t h e i r
'recognized
by
most p r o v i d e r s w a i t
individual
if
one
criteria,
until
promotion.
the
local
rate
office,
counselling
Thus, standard
proce-
Normally,
the
establishing a
training
courses,
In B e r l i n ,
t h e y f i n d an
f u n d e d by
course.
i t i s often
f o r example,
a p p l i c a n t who
Here courses are o n l y
o r more t r a i n e e s a r e
such
the determined
ways.
before
t h e AFG).
local
fees of those p a r t i c i p a n t s
retraining.
implemented i n d i f f e r e n t
marked
and
to the
funds i n the department of
dures are
If
formal
I f a c o u r s e i s a c k n o w l e d g e d by
the
administra-
'worthy o f r e c o g n i t i o n ' .
o f f i c e , w h e r e a c h e c k i s made o f t h e
of
labour
the
seeks
acknowledged,
labour
administra-
tion.
In the
for
local offices,
d e c i d i n g on w h i c h b a s i s t h e
I n one
to the o f f i c i a l
office,
i n the
responsible
t o be
function i s
Z-department;
created.
i n the
for
fürther t r a i n i n g
t i o n s are not
Z - d e p a r t m e n t and
and
one
retraining
prescribed.
The
delegated
in a third
a w o r k i n g g r o u p composed o f t h e
referee
local
department heads,
o r two
counsellors
are r e s p o n s i b l e .
labour
office
the o r g a n i s a t i o n a l s t r u c t u r e to each
i s free
Functo
situation.
acknowledgement of c o u r s e s i s a t a s k which used t o
h a n d l e d b y t h e Länder o f f i c e s ,
the
are
courses are
i n another, t h i s
the
tailor
officials
o f f i c e , t h e h e a d o f t h e p l a c e m e n t d e p a r t m e n t makes
these decisions;
The
different
local offices.
offices
were not
and
i s now
I n most c a s e s t h e
increased,
T h e y had
t o f i n d a way
existing
staff.
despite
of completing
delegated
s t a f f of the
this
the
be
to
local
a d d i t i o n a l workload.
task with
the
-
It
i s important t h a t the
sible
-
125
r i g h t p e r s o n o r p e r s o n s be
f o r i m p l e m e n t a t i o n . P o s i t i o n a l r o l e s and
orientation influence decisions
D i f f e r e n t people apply
the
of
officials
lessons
fees
are h i s c r i t e r i a .
to recognize
them a l l . '
use
the
we
regarding
and
the
are
several
retraining.
agents.
i f the r e g i o n a l labour
who
market
Norm-
receive
homogeneous, a d m i n i s t r a t i v e
Labour market c o n s i d e r a t i o n s
role for bureaucratically oriented
formal
explain
criteria:
'The
itself.
a market which r e g u l a t e s
It is like
by
itself.
If
a c o u r s e does not
a t t r a c t enough t r a i n e e s , i t i s n o t
again.
t r y to f i n d
c a t i o n a r e n e e d e d by
s u i t a b l e courses.
the
The
of a greater
i n t e r v e n t i o n by
I n one
labour
are not
the
does not
the
f u r t h e r t r a i n i n g and
he
'The
offer
labour
employthat
i n accordance .
the
necessity
office.
studied
p r o v i d e r s , whereas the
the
employers'
trade
unions
engaged i n a d u l t s ' v o c a t i o n a l t r a i n i n g s u b s i d i z e d
labour
administration.
courses the
teachers
' I n any
see
believes
r e t r a i n i n g , the
When we
the placement department f o r the
The
As
m a r k e t r e g i o n w h e r e we
strong
qualifi-
n e e d s o f t r a i n e e s a s w e l l as
system of a d u l t s ' t r a i n i n g f u n c t i o n s
a s s o c i a t i o n s are
offered
i n d u s t r y , so t h a t t h e y c a n
w i t h m a r k e t r e g u l a t i o n s , he
by
out which v o c a t i o n a l
taken i n t o consideration.'
system of
train-
seem t o
of v o c a t i o n a l t r a i n i n g functions
local
first.'
behaviour
system of p r o v i d e r s
the
cannot
a particular qualification.
d e c i s i o n s o f t e n a r e b a s e d on
ers are
have
official
A s t a t e m e n t f r o m a d e p a r t m e n t h e a d may
Providers
number
same c o n d i t i o n s , we
one
of
providers
acknowledgement o f c o u r s e s f o r f u r t h e r
play a subordinated
why
determined
p r o m o t e t h o s e whose a p p l i c a t i o n s we
no
extent.
one
to subsidize several providers
same c o u r s e s ,
There i s o b v i o u s l y
ing
the
In another o f f i c e ,
many a p p l i c a n t s w i t h
ally,
and
'If there
same c o u r s e , u n d e r t h e
offer
large
different decision criteria:
s t a t e d t h a t the
'It i s useless
professional
to a r e l a t i v e l y
o f f e r i n g the
said:
respon-
trade
are not
r e a s o n s , he
unioned o f f e r are
qualified
case, I object
asked the head
to the
enough!'
too
of
stated:
expensive.
T h e n he
reasoned:
s u b s i d i z i n g of trade
unions;
-
they t r y t o p o l i t i c i z e
them.
1
126
-
the p a r t i c i p a n t s , instead of t r a i n i n g
T h i s may be an i n d i v i d u a l s t a t e m e n t o f one d e p a r t m e n t
head, b u t i t does i n d i c a t e t h a t t h e l o c a l o f f i c e s can i n f l u ence t h e system o f v o c a t i o n a l r e t r a i n i n g and f u r t h e r
training.
I n f l u e n c i n g the t r a i n i n g system i n accordance w i t h
partici-
p a n t s ' needs and l a b o u r
that
enough i n f o r m a t i o n
m a r k e t demands p r e s u p p o s e s
i s available.
Forecasting
needs o f t h e employers always i n v o l v e s
Lack o f i n f o r m a t i o n
The
the r i s k of errors.
and l a c k o f p l a n n i n g
t o p a s s i v i t y on t h e p a r t o f t h e l a b o u r
above m e n t i o n e d r e s u l t s d e s c r i b e
the future
c a p a c i t y may
administration.
the system of
f u r t h e r t r a i n i n g a n d r e t r a i n i n g as i t was b e f o r e
system o f p r o v i d e r s
has r e n d e r e d i t s e l f
1975.
Until
the
were p a i d d i r e c t l y by
a d m i n i s t r a t i o n t o the course providers.
b e s i d e t h i s r e g u l a t i o n , a ''"commissioned c o u r s e
exists.
The l a b o u r
calculate the entire cost
and
earning,
rent
The a d m i n i s t r a t i o n h a s t o
f o r t h e c o u r s e rooms,
I t then looks
t o o f f e r the course.
c o u r s e s a r e no f i n a n c i a l r i s k ;
administration regardless
i n the course.
step
This
f o r an
institu-
For the provider,
o f t h e number o f p e o p l e
such
enrolled
' c o m m i s s i o n e d c o u r s e s y s t e m ' i s one
further i n the d i r e c t i o n of providing
does n o t w a i t
materials
a f i x e d sum i s p a i d b y t h e
i n g t o t h e needs o f t h e unemployed.
tion
system'
f o r such a course, i n c l u d i n g t h e
infrastructural costs.
tion willing
Today,
a d m i n i s t r a t i o n works o u t s p e c i a l
courses f o r problem groups.
teachers'
on t h e
Now the s i t u a t i o n has p a r t l y changed.
1975, t h e p a r t i c i p a n t ' s fees
labour
The
more a n d more
independent through the lack o f s t e e r i n g functions
p a r t o f the labour a d m i n i s t r a t i o n .
lead
training
The l a b o u r
accord-
administra-
f o r c l i e n t s who a r e i n t e r e s t e d i n
further t r a i n i n g or r e t r a i n i n g , but also o f f e r s courses
t o t h e l o n g - t e r m unemployed.
'Commissioned courses'
offer
more p o s s i b i l i t i e s o f i n f l u e n c i n g t h e b e h a v i o u r o f t h e
jobseekers.
A ' p o s i t i v e r e s u l t may be t h a t we a r e n o t
g u i d e d by t h e i n d i v i d u a l p r e f e r e n c e
o f t h o s e who
have
s p e c i f i c demands f o r f u r t h e r t r a i n i n g a n d r e t r a i n i n g ,
-
but
h a v e no
knowledge of the
H e r e , .the l a b o u r
-
127
labour
administration
market
i s required
entrepreneurs.
The'number o f c o m m i s s i o n e d
compared t o the
number o f
individually
v a r i e s from o f f i c e to o f f i c e .
f i f t e e n per
i s due
The
fact that planning
department head of the
combine the
g r o u p s and
Still,
cent of a l l courses are
to the
duce the
not
is
sufficiently
This
limited.
cannot
on v a c a n c i e s ,
problem
to
plan
Delegation
administrative o f f i c i a l s
c h a n c e o f e x e r t i n g i n f l u e n c e on
of t r a i n i n g
courses
more t h a n
placement sector
needs o f j o b s e e k e r s
as
courses
initiated
capacity
necessary information
to subordinate
to act
commissioned.
these commissioned courses h i m s e l f .
task
situation.'
of
often
the
this
re-
suppliers
courses.
Another p o s s i b i l i t y
'traditional'
ranging
beyond the
scope of
s y s t e m o f f u r t h e r t r a i n i n g and
i s that of courses given
by
private firms.
are
s u p p o s e d t o p r e v e n t u n e m p l o y m e n t and
and
structural political
e f f e c t s on
Trainees
f r o m o u t s i d e m u s t be
material
t a u g h t m u s t be
able
the
the
retraining •
These measures
have
political
labour
market.
t o t a k e p a r t and
u s e f u l to other
the.
f i r m s as w e l l .
These c o u r s e s a r e u s u a l l y c a r r i e d t h r o u g h as i n d i v i d u a l
measures.
all
Statistics
trainees take part
in private
show t h a t o n l y
f i v e per
cent
of
i n t h e s e i n d i v i d u a l measures
firms.
Implementing i n t r a f i r m v o c a t i o n a l t r a i n i n g presupposes
that
all
firms are
employers i n t e r v i e w e d
programmes c a n
As
informed about these p o s s i b i l i t i e s .
s c a r c e l y any
be
subsidzed
information
a d m i n i s t r a t i o n and
the
are very
by
the
r e a l i z e d that
labour
such
administration.
exchange e x i s t s between
employers, the
exploit this possibility.
staff
o n l y a few
Of
local office
Furthermore, the
the
cannot
administrative
careful in offering this•possibility.
-
As
t r a i n i n g programs c o u l d
regard
private i n s t i t u t i o n s or public schools.
t r a i n i n g within the firms
intrafirm
tions
ing
i n both labour
market r e g i o n s ,
Never-
we f o u n d
examples
f u r t h e r t r a i n i n g and r e t r a i n i n g .
Some v o c a -
( i . e . s h i p w e l d e r s ) a r e n o t c o v e r e d by s p e c i a l
facilities;
the labour
e m p l o y e r s pub p r e s s u r e
train-
a d m i n i s t r a t i o n had t o agree
on us.
'Sometimes,
Unfortunately,
cannot prove t h a t they t r y t o s h i f t t h e costs
essary
'would
force'.
to training, courses w i t h i n p r i v a t e firms.
the
offered
An a r g u m e n t
i s that this
a p o s s i b i l i t y o f g e t t i n g chep l a b o u r
theless,
for
be more e f f e c t i v e w i t h
t o t e c h n o l o g i c a l developments than those
against
be
-
f i r m s a r e e q u i p p e d w i t h modern machines and t o o l s ,
their
by
128
further t r a i n i n g of this
we
f o r nec-
s t a f f t o the labour
administration.'
The
p r o m o t i o n o f f u r t h e r t r a i n i n g and r e - t r a i n i n g i n p r i -
v a t e firms- c a n be r e g a r d e d as an ' a c t i v e ' . p o l i c y measure,
maintaining
w o r k p l a c e s , and q u a l i f y i n g workers a t t h e
same t i m e .
Still,
the labour
s h r i n k back from u s i n g
a d m i n i s t r a t i o n seems t o
these i n c e n t i v e s .
lack of strategies f o rcontact,
is
Besides the
the labour
administration
p r i m a r i l y programmed t o r e d u c e e x i s t i n g u n e m p l o y m e n t ,
rather than t o prevent future
Labour market a d m i n i s t r a t i o n
unemployment.
l a c k s t h e power t o e f f e c t i v e l y
control the establishment
of the infrastructure of further
t r a i n i n g and r e t r a i n i n g .
I t l a c k t h e power t o i n f l u e c n e
the
substantive
contents o f the courses,
a n d i t h a s no
means o f c o n t r o l l i n g t h e i r p e r f o r m a n c e .
One LAA r e p r e -
s e n t a t i v e t o l d me:
'on t r o d d e n
'The i n s t r u m e n t r u n s
p a t h s ' a f t e r s o many t r i a l
and e r r o r p r o c e d u r e s .
number o f r e g u l a t i o n s m u s t b e c o n s i d e r e d .
The v a s t
Standardization
o f t h e c o u r s e s m a k i n g s p e c i a l t r a i n i n g programmes c o m p u l s o r y
-
is
t h e o n l y way o u t .
1
-
129
As o f f i c i a l s
on t h e l o c a l
level are
i n c a p a b l e o f d e c i d i n g on t h e s u b s t a n t i v e and p a e d a g o g i c a l
contents
o f t h e c o u r s e s , a q u e s t i o n n a i r e was w o r k e d o u t b y
t h e B u n d e s i n s t i t u t für B e r u f s b i l d u n g s f o r s c h u n g
Board f o r Research
i n Vocational Training).
(=National
This
question-
naire includes detailed enquiries into the qualifications of
t h e itanagement
of the i n s t i t u t i o n ,
t r a i n i n g of the teachers.
This examination
o n l y u s e d f o r new a p p l i c a t i o n s ;
t h e many c o u r s e s
and t h e v o c a t i o n a l
i t i s not prescribed f o r
which have been r u n n i n g
f o ryears.
a n a l y s i s o f t h e questionnaire, h a s b e e n made.
r e f e r e e t o l d me:
under t h e r o o f .
No
One
'The BA a l w a y s r e a c t s when t h e f i r e i s
Then t h e y
e x a m i n e d , b u t no r e s u l t s
No s t a t i s t i c s
catalogue i s
say t h a t t h i s
are ever
o r t h a t s h o u l d be.
seen.'
e x i s t o n how many p a r t i c i p a n t s a r e t r a i n e d i n
the d i f f e r e n t i n s t i t u t i o n s
on t h e l o c a l
Länder o f f i c e a n d t h e c e n t r a l b o d i e s
level.
do n o t have
a t i o n on t h e i n f r a s t r u c t u r e o f t h e l o c a l
level,
c a n n o t l i m i t o r e n l a r g e t h e number o f c o u r s e s .
as t r a d e u n i o n s
or
A s -the
informthey
Some
institutions,
such
'Volkshochschulen'
(Institutions
f o r A d u l t T r a i n i n g , r u n by m u n i c i p a l i t i e s )
have a s s o c i a t i o n s on t h e n a t i o n a l l e v e l , w o r k i n g
together
w i t h t h e c e n t r a l body o f t h e l a b o u r a d m i n i s t r a t i o n .
w o r k g r o u p s s o m e t i m e s make r e c o m m e n d a t i o n s
t r a i n i n g courses, which are then
providers.
T r a i n i n g courses
These
regarding
c o n s i d e r e d by t h e l o c a l
w h i c h have been s u b j e c t t o
d i s c u s s i o n s o n t h e n a t i o n a l l e v e l a r e g e n e r a l l y acknowledged by t h e l o c a l o f f i c e s .
private
The t r a i n i n g
or semi-private i n s t i t u t i o n s
f a c i l i t i e s of
a r e o r g a n i s e d , s o as
t o e s c a p e t h e i n f l u e n t i a l power o f t h e c e n t r a l body and
t h e l a b o u r a d m i n i s t r a t i o n o n t h e Länder l e v e l .
the l o c a l
are
level,
unable
to
the courses.
those
responsible f o r the
evaluate
The l o c a l
education
market.
implementation
•• t h e s u b s t a n t i v e c o n t e n t s o f
offices
f u r t h e r t r a i n i n g and r e t r a i n i n g
the courses
Even on
do n o t h a v e e x p e r t s f o r
who c o u l d d e t e r m i n e
whether
a r e i n a c c o r d a n c e w i t h t h e demands o f a d u l t
a n d w h e t h e r t h e y meet t h e n e e d s o f t h e l a b o u r
- 130 -
4.4.3.
Eï£ther_Trainin2_and_Retra
In order t o understand
training
the implementation
of further
and r e t r a i n i n g , w e have t o l o o k a t t h e i n s t i t u t i o n s
providing f o rtraining.
I n t e r v i e w s were conducted
r e p r e s e n t a t i v e s o f t h e major t r a i n i n g
two
process
regions.
retraining
Although
with the
institutions
i nthe
t h e system o f f u r t h e r t r a i n i n g and
d i f f e r s v e r y much i n t h e v a r i o u s l a b o u r m a r k e t
a r e a s , t h e r e a r e some i n s t i t u t i o n s w i t h w h i c h t h e l a b o u r
administration
1)
r e g u l a r l y co-operates.
p u b l i c i n s t i t u t i o n s , such
as
These a r e :
'Volkshochschulen'
(adult education centres),
2)
p r i v a t e i n d u s t r i a l i n s t i t u t i o n s , such
as
employers'
associations,
By
3)
s o c i a l o r g a n i s a t i o n s , such
as t r a d e
4)
institutions
5)
p r i v a t e and p u b l i c s c h o o l s .
unions,
of the Catholic or Protestant
interviewing representatives of the different
tions,
church,
institu-
we t r i e d t o f i n d o u t t h e p r o v i d e r s ' i d e a s o n
further training
and r e t r a i n i n g ,
and t h e i r
perception of
co-operation with the labour a d m i n i s t r a t i o n .
The Various i n s t i t u t i o n s
tration
to different
a r e dependent on t h e l a b o u r
degrees.
quarters of the training
adminis-
Whereas i n one r e g i o n
courses
three
of the white-collar
union
'DAG' a r e p r o m o t e d b y t h e AFG, o n l y t e n p e r c e n t o f t h e
'Volkshochschule'
by the AFG:
( a d u l t education centres)'- courses a r e s u b s i d i s e d
these d i f f e r e n c e s depend on the v a r i o u s t r a i n i n g
Some a r e more s u i t e d t o g e n e r a l a d u l t e d u c a t i o n ,
to
advanced v o c a t i o n a l t r a i n i n g ,
employers'
etc.
vocational training,
education available
uage c o u r s e s ,
etc.).
and ' V o l k s h o c h s c h u l e n '
t o t h e masses
and some
Trade unions
a s s o c i a t i o n s t r a d i t i o n a l l y focuse
(drawing
facilities.
and
more o n
make
popular
courses,
lang-
In the past years, the Volkshochschule
-131-
in Kiel
they
has t r i e d
got l i t t l e
t o change o v e r t o o t h e r
support
school drop-outs.
these
courses
financial
per
The l a b o u r
cent of the course
courses
i n the
administration refused
t h a t more t h a n
i s of a general
to give
twenty-five
educational
a d m i n i s t r a t i o n o b v i o u s l y used t h i s
c u s e a s a way o f l e g i t i m i z i n g
tion
certificates
C u r r i c u l a were d e v e l o p e d t o combine
assistance, arguing
The l a b o u r
leading to
with basic apprenticeship
metal sector.
but
from the labour a d m i n i s t r a t i o n .
The c e n t r e h a s o f f e r e d c o u r s e s
for
programmes,
the refusal.
nature.
futile
The
ex-
administra-
s t a t e d t h a t t h e y n e i t h e r wanted t o pay f o r s c h o o l
drop-outs nor f o r p u b l i c a l l y
financed
'Volkshochschulen'.
The l a b o u r a d m i n i s t r a t i o n ' s o b j e c t i v e s seem t o be t o
support
courses
occupations.
result
designed
They n e g l e c t
of insufficient
ployment.
collar
at school
that the
i s unem-
i s under the a u t h o r i t y o f the
a d m i n i s t r a t i o n does n o t f e e l
e l i m i n a t i n g mistakes
The i n s t i t u t i o n
particular
to consider the fact
basic training
As e d u c a t i o n
Länder, t h e l a b o u r
for
t o meet t h e needs o f
of the educational
f o r further education
union) i n K i e l has p r o f i t e d
responsible
system.
o f t h e DAG
(white-
a great d e a l from t h e
p r o m o t i o n programmes.
This
for
t r a i n e d 300 p a r t i c i p a n t s p e r
twenty-nine years,
until
1970.
In the f o l l o w i n g years
r e a c h e d o v e r one t h o u s a n d .
courses
for
i n s t i t u t i o n , w h i c h has e x i s t e d
are p o l i t i c a l l y
t h e number o f t r a i n e e s
Only twenty per cent of a l l
oriented
(courses
f o r job stewards,
e x a m p l e , a r e f i n a n c e d b y t h e u n i o n ' s own
e i g h t per cent
before
acquired
funds),
so
a r e s u b s i d i z e d by t h e l a b o u r a d m i n i s t r a t i o n .
Most o f t h e courses
office
year
they
easily.
are discussed with the l o c a l
labour
a r e o f f e r e d , so acknowledgement i s
One o f t h e r e a s o n s f o r t h e y
operation with the labour
r e c e i v e d an i n s t i t u t i o n a l
smooth c o -
a d m i n i s t r a t i o n i s t h a t t h e DAG
( 1)
g r a n t some y e a r s ago
. The
(1) A c c o r d i n g t o p a r a 5 0 , AFG, t h e BA c a n g r a n t l o a n s a n d
s u b s i d i e s f o r the establishment or enlargement of
institutions for vocational training.
-
local
132
-
l a b o u r a d m i n i s t r a t i o n can h a r d l y r e f u s e the r e c o g n i -
t i o n of courses
i n i n s t i t u t i o n s w h i c h have been
granted
subsidies.
The
DAG
i s the only i n s t i t u t i o n
i n K i e l w h i c h was
i n c r e a s e t h e number o f p a r t i c i p a n t s e v e n a f t e r
ment o f t h e AFG
i n December, 1975.
Other
Kiel,
The
f o r management t r a i n i n g ,
n o t i c e d a strong decrease
(1)
'Technikerfachschule'
more t h a n
o n l y 200
400
students
students
v
and
up t h e i r
partial
The
an
Wirtschaftsakademie
i n t h e number o f t r a i n e e s .
, f o u n d e d i n 1972,
annually i n the past years.
Today,
participate in i t s technical
m u s t be
due
training
t o t h e amendment
t o t h e f a c t t h a t t h e German m a r k e t i s
The
s c h o o l now
plans to
organize
c l a s s e s , so t h a t t r a i n e e s do n o t h a v e t o
jobs.
T h i s change t o p a r t - t i m e c o u r s e s
Technikerfachschule
p r o f i t e d by
because of changing
s p e c i a l i z e d the
i s one
e x a m p l e o f how
t h e AFG
has
an
difficulty
f o r i t to adapt i t s e l f
t h e more d i f f i c u l t
to changing
labour'market
staff.
institu-
demands on t h e l a b o u r m a r k e t .
institution,
give
i s only
as t h e s c h o o l must m a i n t a i n i t s permanent
t i o r w h i c h has
(1)
and
trained
f l o o d e d by t e c h n i c i a n s .
more e v e n i n g
t h e amend-
has
programmes. . T h i s d e c r e a s e
o f t h e AFG
to
institutions,
a technical school, Technikerfachschule K i e l ,
institution
able
surviving
The
more
i t becomes
conditions.
The ' T e c h n i k e r f a c h s c h u l e ' , i n i t i a l l y f o u n d e d by t h e
B e r u f s f o r t b i l d u n g s w e r k (a t r a i n i n g i n s t i t u t i o n o f t h e
DGB), c o u l d n o t g e t s t a t e r e c o g n i t i o n . When an
a s s o c i a t i o n composed o f e m p l o y e r s and e m p l o y e e s t o o k
o v e r management, t h e s c h o o l became c e r t i f i e d .
This
s c h o o l was o f t e n m e n t i o n e d as a g o o d e x a m p l e o f how an
i n s t i t u t i o n f o r f u r t h e r t r a i n i n g and r e t r a i n i n g s h o u l d
be o r g a n i s e d i n o r d e r t o meet t h e i n t e r e s t s o f
e m p l o y e r s as w e l l as e m p l o y e e s .
-
The
133
-
' W i r t s c h a f t s a k a d e m i e ' , an i n s t i t u t i o n
organized
by
employers, i s t r y i n g t o overcome t h e s e d i f f i c u l t i e s
by
e n l a r g i n g a department w i t h i n t h e school.
Training of
i n d u s t r i a l m a n a g e r s - some y e a r s ago a v e r y
lucrative
b u s i n e s s - has d e c r e a s e d e n o r m o u s l y , so t h a t t h e W i r t s c h a f tsakademie has been f o r c e d
to diversity
its
courses.
I t now s p e i c a l i z e s more i n management t r a i n i n g f o r t h e
s t a f f o f p r i v a t e f i r m s , and has c r e a t e d
several
sioned
administration.
courses',
paid
f o r by t h e l a b o u r
'commis-
I n c r e a t i n g new c o u r s e s f o r f u r t h e r t r a i n i n g a n d r e t r a i n ing,
the
t h e ' W i r t s c h a f t s a k a d e m i e ' has c l o s e r e l a t i o n s w i t h
'Chamber o f Commerce', w h i c h f u n c t i o n s
body.
'At t h e b e g i n n i n g ,
the s t a f f expressed
They were used t o t e a c h i n g
sophisticated level,
ployed
resistance.
i n d u s t r i a l managers on a r a t h e r
a n d now h a v e t o r u n c o u r s e s f o r unem-
office clerks.
to adapt ourselves
as c o u n s e l l i n g
B u t t o c o v e r o u r e x p e n s e s , we h a d
t o changing labour
market
conditions.'
T h e s e e x a m p l e s make c l e a r t h a t t o a c e r t a i n e x t e n t t h e
t r a i n i n g system f u n c t i o n s
In the f i e l d
competition
l i k e a. m a r k e t r e g u l a t i n g
itself.
o f f u r t h e r t r a i n i n g and r e t r a i n i n g , s t r o n g
e x i s t s among t h e p r o v i d e r s .
t u t i o n s o f f e r t h e same c o u r s e s ,
As s e v e r a l
they have d i f f i c u l t i e s i n
f i n d i n g enough p a r t i c i p a n t s t o c o v e r t h e f i n a n c i a l
iture.
Most o f t h e p r o v i d e r s
attempt b e t t e r
expend-
co-ordination
a t t h e same t i m e s t i c k i n g t o t h e p r i n c i p l e o f f r e e
tion.
trade
Some a t t e m p t s a t b e t t e r c o - o r d i n a t i o n
union providers,
t h e DAG a n d t h e DGB.
arranged a minimal overlap
tution offers.
But since
i s based on c o m p e t i t i o n
is
the
a built-in
insti-
competi
a r e made by
They have
between t h e c o u r s e s . e a c h
insti-
f u r t h e r t r a i n i n g and r e t r a i n i n g
i n a f r e e economic system,
l i m i t t o t h e amount o f c o - o p e r a t i o n
there
among
different providers.
I n Baden-Württemberg,
training'
'work.groups f o r v o c a t i o n a l
have e x i s t e d f o r t h e p a s t t e n y e a r s .
further
These
work groups composed o f providers and organized on t h e county l e v e l
(Kreisebene),
have the g o a l o f i n i t i a t i n g broader v o c a t i o n a l educa-
tion, , c o - o r d i n a t i n g
t h e p a r t i c u l a r measures, and
informing
-
i n t e r e s t e d persons
training'.
Ten
possibilities
of
years
-
134
the p o s s i b i l i t i e s
ago,
f o r fürther
t h e m a i n i d e a was
for further training
to create
in rural
areas.
more
As
an
i n t e r v i e w w i t h the head of the work group i n F r e i b u r g
revealed, high expectations
e n t programmes s h o u l d
of c o - o r d i n a t i o n of the
n o t be
over-estimated:
groups, to which a l l i n s t i t u t i o n s
r e t r a i n i n g belong,
of the
local
meetings.
labour
The
to discuss
further training.
office
.'the
work
for further training
meet t w i c e a y e a r '
subjects dealing with
differ-
general
Representatives
also participate i n
these
g r o u p l e a d e r sees h i s m a i n f u n c t i o n i n
d i f f u s i o n of i n f o r m a t i o n , e i t h e r t h r o u g h newspaper
or c o u n s e l l i n g .
His
job i s i n the
i n the mayor's o f f i c e ,
i n s e p c t i o n b o a r d on
and
nor
r e p o r t s to the
the
labour
submits recommendations.
which h a r d l y e x i s t i n the
articles,
He
industrial
can
influence
administration.
Co-ordinative
labour
the
'department of c u l t u r e ' ,
t h e Länder l e v e l .
n e i t h e r the p r o v i d e r s
simply
he
and
He
functions,
a d m i n i s t r a t i o n , are
also
l a c k i n g i n t h e w o r k g r o u p s o f t h e d i f f e r e n t Länder.
The
m a j o r i t y of the p r o v i d e r s
i n t e r v i e w e d i n 1976
g e n e r a l l y w i l l i n g t o change t h e i r
o f new
t a r g e t groups.
However, t h e y
unemployed a t t e n d
courses
than because they
are
The
or
l e s s on
s e n t by
l e v e l of motivation
often absent
courses
courses
complained t h a t
cent during course.
labour
The
low.
i f they
Trainees
find a
when a p a r t i c i p a n t d r o p s o u t
a d m i n i s t r a t i o n stops
the
paying
job.
fifty
that
the
i t s s a n c t i o n i n g power
of a course.
the
are
to
providers c r i t i c i z e
a d m i n i s t r a t i o n does n o t use
the
initiative
S o m e t i m e s t h e number o f p a r t i c i p a n t s s h r i n k s up
per
needs
labour administration.
i s thus very
leave the
t o meet t h e
t h e i r own
the
were
As
the
labour
f e e s , the p r o v i d e r s
run
risk.
I n a d d i t i o n , t h e more f r e q u e n t
i n c l u s i o n of problem
t o w h i c h some i n s t i t u t i o n s
only adapt w i t h
can
the p r o v i d e r s argue t h a t commissioned courses
them d e p e n d e n t on
the
groups,
difficulty,
make
labour market a d m i n i s t r a t i o n .
d e c l i n e o f p a r t i c i p a n t s i n f u r t h e r t r a i n i n g and
The
retraining .
-
c o u r s e s has
not
f l e x i b l e and
affected
can
courses f o r the
As
we
135
-
a l l institutions.
quickly
and
inexpensively
unemployed have b e t t e r
l e a r n e d , the
i n t e r v e n e i n the
In the
tions
put
labour administration
for further
the
of
amendment o f
t r a i n i n g and
new
survival.
to
offering
I n t h i s manner,
u n d e s i r a b l e i n s t i t u t i o n s out
f i r s t years a f t e r the
are
sees a chance
' c o m p e t i t i v e p r o f i t s y s t e m ' by
expanded i n g r e a t numbers.
by
create
chances of
commissioned courses o n l y s e l e c t i v e l y .
t h e y can
T h o s e who
business.
the
AFG,
institu-
r e t r a i n i n g were c r e a t e d
They were as
labour administration's
well
and
strengthened
generous promotion
policy.
Some i n s t i t u t i o n s , h o w e v e r , w e r e a b l e t o
a t t a i n a monopoly
on
the
the
regional
s t a f f as w e l l a s
further
an
sides
use
tion,
of
The
the
t r a i n i n g and
t o be
viders
level.
providers that
do
the
i t t o h o l d up
not
there are
labour administration
its inability
t i c a l l y w i d e n e d by
At
f i n d a way
of
the
the
vocational
'privileged'
s o n s who
by
the
itself
for
seems
quo:
the
labour
Both
pro-
administra-
u s e s i t as
a
legiti-
e x t e n d c o n t r o l . . However,
i n shaping the
introduction
intervening
the
of
local offices
system of
i n the
f o r the
potential
the
for target
theore-
commissioned
trying
self-regulating
to
market.
groups
also
are
respon-
a g e n t s , who
participants.
training largely
providers
power i s
l o c a l o f f i c e s are
retraining
for counselling
adults'
status
Their influencing
demands a r e - o r i e n t a t i o n
sible
to
moment, t h e
F u r t h e r t r a i n i n g and
market
office
German s y s t e m .
e x a m p l e s w h i c h show t h a t
course o f f e r s .
courses.
the
a certain
have a c e r t a i n d i s c r e t i o n
the
of
w a n t more c o n t r o l
a few
the
labour
retraining is self-regulating
adequate d e s c r i p t i o n
m i z a t i o n of
and
arguments of
Until
served the
1975,
already
groups, i . e . those motivated, q u a l i f i e d per-
wanted t o advance i n t h e i r c a r e e r .
After
the
amendment was
f i n a n l i z e d , l e s s m o t i v a t e d p e o p l e had
to
be
as w e l l .
con-
integrated
v i n c e u n e m p l o y e d and
The
job
counsellors
u n s k i l l e d persons that
o f b e i n g p l a c e d i n c r e a s e when t h e y a r e
presupposes that
precisely
have to
their
qualified.
those t r a i n i n g
chances
This
facilities
-
are o f f e r e d f o r which there
136
i s a demand on
labour market.
Furthermore, the
ensure t h a t the
substantive
the needs of the
labour
the
d i f f e r e n t goals.
two
labour
At
seems t o be
i p a n t s , the
Compared t o t h e
the
realizing
function,
t o mediate between
d i f f e r e n t groups
the needs o f the
e m p l o y e r s and
the
A meaningful promotion of
partic-
i n t e r e s t of
the
providers.
and
r e t r a i n o n g must h a r m o n i z e t h e s e d i f f e r e n t needs.
times of high
unemployment t h i s
must
c o u r s e s meet
placement
i n t e r e s t s of three
demands o f t h e
regional
t h e moment,
f a r from
taken i n t o consideration:
the
administration
content of the
a d m i n i s t r a t i o n has
c l i e n t groups, the
m u s t be
labour
problem groups.
administration
where the
-
i s an
further training
extremely
In
difficult
task.
4.5.
5§strictions_on_the_Imglementat
A c t i v e L a b o u r M a r k e t P o l i c y , as
4, m u s t be
of the
interpreted i n connection
labour
increased
l a s t two
i t i s described
administration.
enormously u n t i l
years.
The
1975,
with
the
but
see
p a r t l y decreased.
t h a t t h e BA
s p e n t 2,681
m i l l i o n m a r k s i n 1975,
Many e x p e r t s
the
labour
and
does not
labour
I f we
but
administration
look
at the
only
3,611
3,073 m i l l i o n m a r k s i n
i s o v e r b u r d e n e d by
s t a f f of the
t h e bad
cannot determine the
true that granting
budget
job c r e a t i o n measures,
the
local
fact
routine
h a v e e n o u g h t i m e f o r i m p l e m e n t i n g an
The
few
market p o l i c y
t r y t o e x p l a i n t h i s phenomenon by
market p o l i c y .
We
last
m i l l i o n m a r k s i n 1974,
h o w e v e r , t r y t o e x p l a i n i t by
tion.
the
Whereas e x p e n d i t u r e s f o r unemployment
f o r r e t r a i n i n g , f u r t h e r t r a i n i n g and
we
tasks
have d e c r e a s e d i n
t h e money s p e n t f o r a c t i v e l a b o u r
programmes h a s
routine
e x p e n d i t u r e s o f t h e ' BA
r e c o m p e n s a t i o n have remained c o n s t a n d i n the
years,
i n chapter
1976.
that
tasks
active
offices,
labour
market
r e a l reasons.
I t may
situabe
u n e m p l o y m e n t b e n e f i t s t a k e s so much
time t h a t time f o r planning and implementing an a c t i v e labour market
p o l i c y i s i n short supply.
But,
generally
speaking, the implemen-
-
t a t i o n o f an
a c t i v e labour
restrictions
f a c t o r s may
market p o l i c y i s governed
which are d i f f i c u l t
e x p l a i n the
the
-
137
t o overcome.
insufficient
l a c k of information
on
by
Several
implementation:
labour market
develop-
ments ,
• -
the
l a c k of t a r g e t s , the
the
inadequate s t r u c t u r e of the
the b u r e a u c r a t i c
bility
outside
active labour
of information
on
decisions
the
latter
These f i g u r e s r e a c h the
local
t i o n i n advance
mass d i s m i s s a l s )
This
leads
labour
could
actions
labour
not
ning.
An
requires
instrument l i k e
a g e n c i e s months a f t e r
forced
b a s e d on
to react
get
i s not
informa-
prospective
Long-term prognoses
exist.
As m e n t i o n e d a b o v e , t h e
able
their
to give
precise
long-term personnel
plan-
retraining
covering
Because such i n -
administration, i t i s
uncertainty.
labour
a d m i n i s t r a t i o n can
among d i f f e r e n t i n s t r u m e n t s t o r e a c h t h e
unemployment.
on
Even i f employers
f u r t h e r t r a i n i n g and
a v a i l a b l e to the
Even
immediately.
or three years.
to a c t under great
reducing
them.
f o r e c a s t s o f f u t u r e demand f o r l a b o u r ,
n e x t two
informa-
system.
to p r e d i c t f u t u r e developments of
b e c a u s e t h e y h a v e no
a p e r i o d of the
formation
(except
insurance
p e r s o n n e l s t r u c t u r e , t h e y w o u l d n o t be
information
not
personnel
indirect
( t e n t a t i v e announcement o f
t o c r i s i s management.
forced
only
c a n n o t be
fail
ability
employers are
a d m i n i s t r a t i o n can
they often
the
dismissals
social
labour
m a r k e t d e v e l o p m e n t s do
be
and
receives
of the
i n c a s e s where the
As
administration of
concerning recruitment
fact; preventive
actors.
market presupposes the a v a i l a -
t i o n through s t a t i s t i c s
the
agencies
t h e m a r k e t s i t u a t i o n and
labour
mass d i s m i s s a l s ) , t h e
local
f a c t o r s and
to t r a n s l a t e problems i n t o a c t i o n s .
obliged to inform
evaluation,
o r i e n t a t i o n o f some a g e n t s ,
t h e d e p e n d e n c e on
I m p l e m e n t i n g an
lack of
Local
o v e r a l l goal
a g e n c i e s use
programmes f o r d i f f e r e n t r e a s o n s and
choose
the
to varying
of
available
degrees.
-
But
as
i t i s not
they
can
possible to evaluate
always-plead
market s i t u a t i o n .
the e x e c u t i v e
also avoid formulating s p e c i f i c
policies
t i o n m e a s u r e s and
as
capacity.
regulated goals
seen i n the examples of
Multidimensional
goal
formulation
The
money c a n
be
i s to prevent
regarded
term
'goal-
regarded
work.
dismissed
active
Short-term
as a ' m e a s u r e t o p r e v e n t
R e t r a i n i n g and
policies'.
g o a l o f an
unemployment.
w o r k e r s o f t e n m u s t be
of short-term
The
and
impedes
i s o f t e n used f o r ' a c t i v e labour market
manpower p o l i c y
although
job-crea-
the promotion of f u r t h e r t r a i n i n g
T h i s term, however, i s m i s l e a d i n g .
be
a r e u s u a l l y vague
e v a l u a t i o n o f t h e programmes.
oriented'
formulations,
defined.
multidimensional,
concrete
labour
c a n n o t e a s i l y be
to t h e i r l a c k of planning
retraining.
performance,
Without q u a n t i t a t i v e goal
L e g a l l y e s t a b l i s h e d and
and
their
t h e e x c u s e o f t h e bad
body's f a i l u r e s
Local agencies
due
-
138
dismissals,
a f t e r the
period
further training
as a programme t o p r e v e n t
can
u n e m p l o y m e n t , i n so
f a r as p a r t i c i p a n t s a r e t r a i n e d f o r j o b s , w h i c h w i l l
them b e t t e r c h a n c e s of.employment.
The
majority of
ments a r e measures t o d e a l w i t h e x i s t i n g
The
ment b u t
sures.
does use
The
term
for i t describes
does not
The
labour
c r i s i s management t o r e d u c e u n e m p l o y -
these
programmes as p r e v e n t a t i v e mea-
' a c t i v e labour market p o l i c y '
a power, w h i c h t h e
labour
is
deceptive,
administration
have.
l a b o u r a d m i n i s t r a t i o n s t a f f has
r o u t i n i s e d administrative tasks
to perform h i g h l y
( s u c h as g r a n t i n g
ment b e n e f i t s ) o n t o p o f t h e n o n - r o u t i n e ,
functions.
policy
instru-
unemployment.
l a b o u r a d m i n i s t r a t i o n tends t o implement a c t i v e
m a r k e t programmes as
give
openly
unemploy-
programmed
T r a d i t i o n a l b u r e a u c r a t i c f u n c t i o n s as w e l l
f u n c t i o n s are accumulated i n t o
s e c t o r of the
one
l a b o u r a d m i n i s t r a t i o n , namely i n the
ment d e p a r t m e n t .
In times
place-
o f h i g h unemployment, p l a c e -
ment a g e n t s a r e p r i m a r i l y e n g a g e d i n r o u t i n e t a s k s .
f o r the p l a n n i n g
as
Time
of a c t i v e labour market p o l i c y i s scarce.
-
-139
Traditional administrative executive
cratic orientation:
recedes
inflexibility
i n t o the background.
prevails,
bureau-
creativity
I f the department-heads
able to perform
i n n o v a t i v e and
tions,
a positive effect.
t h i s has
f u n c t i o n s breed
flexible
leadership
However,
are
func-
planning
' a c t i v e labour market p o l i c y '
presupposes t h a t problems
a r e p e r c e i v e d and
into
tion
transformed
strategies.
s c a r c e l y e x i s t s among t h e d i f f e r e n t s u b - u n i t s o f
placement department.
p l a n n i n g and
decision-making
fragmentation.
More
co-operative
c o u l d h e l p t o overcome
Attempts a t j o i n t decision-making
o n l y b e e n made i n a few
local
agencies.
t h e d e p a r t m e n t l e a d e r s must i n i t i a t e
ing
skill.
can
S u c c e s s i s t o some e x t e n t d e p e n d e n t on
In order to c a r r y through
get from placement agents.
exchange does not
mentation
in
an
problems occur.
p o l i c i e s p r e s c r i b e d by
'active policy',
If a
They a r e f o r c e d t o
superiors.
As
p l a n n i n g u n i t e x i s t s composed o f d i f f e r e n t
s p e c i a l sub-units, working
grammes f i t t e d
which
communication
Many a g e n t s a r e n o t
their
out
the
market-
take place w i t h i n the department,
the planning process.
of the
matters,
the h a n d l i n g of
t h e y n e e d i n f o r m a t i o n on t h e n e e d s o f t h e c l i e n t s ,
they
this
have
placement agents are overworked w i t h day-to-day
programmes.
the
E m p i r i c a l r e s u l t s h a v e shown a l a c k
o f c o - o r d i n a t i o n between departments.
As
Communica-
imple-
involved
implement
l o n g as
no
representatives
comprehensive
to the problems of the r e g i o n i s
pro-
extremely
difficult.
It
becomes o b v i o u s
p e n d e n t on
that the labour a d m i n i s t r a t i o n i s
environmental
o v e r w h i c h i t has
little
systems o u t s i d e the
control.
f u n c t i o n by means o f p a r t i c u l a r
a d m i n i s t r a t i o n has
a limited
A l l these
de-
bureaucracy
systems
i n h e r e n t laws ;
the
labour
c a p a c i t y t o i n f l u e n c e them.
-
The
-
140
a d m i n i s t r a t i o n must a i m a t c o n v i n c i n g
these systems t o
support a p o l i c y against unemployment, which i s n o t n e c e s s a r i l y t h e
p o l i c y o f employers.
ted with
and
The l a b o u r
administration i s confron-
a h i g h l y fragmented system w i t h
needs.
The l a b o u r
different interests
administration i s to a
l a r g e degree
dependent on i t s e n v i r o n m e n t , • w h i c h does n o t o n l y
two
clients
1
groups.
T h e r e a r e many o t h e r
i n f l u e n c i n g the labour market.
a c t o r s w i l l be t h e s u b j e c t
institutions
Its relations
o f the next
exist of
to relevant
chapter.
5•
L o c a l Labour A d m i n i s t r a t i o n , and i t s I n t e r - o r g a n i s a t i o n a l
RelatjLons
The
implementation process cannot f u l l y
without f a m i l i a r i t y with
its
environment.
t i o n i s very
be u n d e r s t o o d
the administration's
relations to
The e n v i r o n m e n t o f t h e l a b o u r
heterogenous and fragmented.
administra-
I t includes
t a r g e t g r o u p s , w h i c h have a c e r t a i n i n f l u e n c e on t h e scope
o f a c t i o n , as w e l l as many o t h e r
organisations
engaged i n p u r s u i n g
manpower p o l i c i e s .
a t i o n a l i s e t h e term
'relevant'
In order
e n v i r o n m e n t , we a s k e d
d i r e c t o r s and department heads f o r ' r e l e v a n t
(individuals or organisations
which the labour
contact.
relations with
and
providers
at the l o c a l
level)
with
important
the implementation of p o l i c y
l o c a l government, t r a d e
agency
actors'
a d m i n i s t r a t i o n has t h e most
In analysing
to oper-
unions,
tasks,
employers
f o r f u r t h e r t r a i n i n g and r e t r a i n i n g were
analysed.
In- c o n d u c t i n g i n t e r v i e w s w i t h
institutions
in
on t h e l o c a l
implementing labour
level,
asked questions
how t h e l a b o u r
'political
and s u p p o r t f r o m
administration
relevant
u n i o n s , a n d c h a m b e r s o f commerce.
concerning the expectations
vis-à-vis t h e l a b o u r
of relevant
o u r a i m was as f o l l o w s :
market p o l i c y , labour
i s d e p e n d e n t on i n f o r m a t i o n
a c t o r s , s u c h as t r a d e
representatives
administration.
administration
game' o n t h e l o c a l
actors
We w a n t e d t o e s t a b l i s h
i s integrated
level.
of these
We
into the
- 141" -
R e l a t i o n s between t h e bureaucracy
can
be d e s c r i b e d
or competition.
i n terms o f c o - o p e r a t i o n ,
local
conflict, control
F o r t h e l a b o u r a d m i n i s t r a t i o n i t seems t o
(1 )
be o f s p e c i a l i n t e r e s t t o a n a l y s e
the
and o t h e r r e l e v a n t a c t o r s
labour o f f i c e s
the responsiveness
t o t h e i r environment.
of
This
involves
knowing t h e problems and s t r a t e g i e s o f r e l e v a n t a c t o r s , i n
order
t o perceive implementation
a l s o means r e a c t i n g f l e x i b l y
will
t r a t i v e d e c i s i o n s . We c a n n o t p r e t e n d
offices.
environment.
of the labour administration's
t h e y become w i l l i n g
whole spectrum o f important
Responsiveness
t o a changing
O n l y when a c t o r s a r e c o n v i n c e d
responsiveness
problems.
t o support
adminis-
t o have covered t h e
relations f o rlocal
labour
We i n t e r v i e w e d r e p r e s e n t a t i v e s o f o r g a n i z a t i o n s
who a r e e i t h e r d e f i n e d a s c o o p e r a t i v e a g e n t s o r who w e r e
named a s p a r t n e r s b y t h e s t a f f o f t h e l o c a l
5.1.
The
offices.
R§lations_with_Organized_I
l a b o u r a d m i n i s t r a t i o n has always t r i e d
t o secure the
p a r t i c i p a t i o n o f i n t e r e s t g r o u p s by i n t e g r a t i n g them
self-governing bodies
on a l l t h r e e h i e r a r c h i c a l
into
levels.
As m e n t i o n e d i n C h a p t e r 2, t h e i r i n f l u e n t i a l p o w e r i s v e r y
different i n the various local
level,
The
a proper
co-determination
'information m u l t i p l i e r s ' ,
t h e labour market p o l i t i c a l
may h a v e an e f f e c t
as t h e y
programmes.
from t h e i n t e r v i e w s w i t h employers, those
sentatives i n the self-governing bodies
through
On t h e l o c a l
i s n o t f o r e s e e n b y t h e AFG.
members o f t h e s e l f - g o v e r n i n g b o d i e s
of being
on
labour o f f i c e s .
have a knowledge
A s we
learned
firms with
may p r o f i t
repre-
primarily
s u b s i d i e s from t h e labour a d m i n i s t r a t i o n .
(1) M e t c a l f e (1976) p. 328 d e f i n e s :
'Environmental
respons i v e n e s s i n v o l v e s m o d i f y i n g p o l i c i e s t o accomodate t h e
given external conditions.'
-
A good example
142-
o f i n f o r m a t i o n exchange
a d m i n i s t r a t i o n a n d t h e e m p l o y e r s was
Personnel
the
labour
found i n F r e i b u r g .
managers were a s t o n i s h i n g l y w e l l i n f o r m e d
l a b o u r m a r k e t p r o g r a m m e s . T h i s was
that a
between
' c i r c l e of personnel
placement department.
He
e x p l a i n e d by t h e
managers'
o f t h e r e g u l a r members o f t h e s e
about
fact
exists there.
One
groups i s t h e head o f t h e
uses these meetings t o i n f o r m the
members o f l a b o u r m a r k e t programms.
i n f o r m a l r e l a t i o n s h i p between
T h i s more o r
less
the labour administration
and e m p l o y e r s i s one e x a m p l e o f how
labour administration
c a n t r a n s f e r i n f o r m a t i o n t o t h e i r c l i e n t s on t h e demand
side.
I f we
look at formalized i n t e r o r g a n i s a t i o n a l
between
relations
t h e l o c a l l a b o u r o f f i c e s and t h e e m p l o y e r s ' o r g a n i -
z a t i o n s , t h e r e i s o n l y one e x a m p l e
of j o i n t action.
As
mentioned i n connection w i t h v o c a t i o n a l c o u n s e l l i n g , r e l a t i o n s w i t h t h e c h a m b e r o f commerce w e r e e s t a b l i s h e d b e c a u s e
of i t s c o n t r o l over v o c a t i o n a l t r a i n i n g .
The o n l y
formal
inter-organisational relation exists i n that f i e l d ;
repre-
sentatives of the labour a d m i n i s t r a t i o n are requested
participate
to
i n meetings o f the 'committees f o r v o c a t i o n a l
t r a i n i n g ' , when t o p i c s o f i n t e r e s t t o t h e l a b o u r
tion arise.
The
interest
the labour a d m i n i s t r a t i o n .
to
committee d e c i d e s ,
administra-
'which t o p i c s '
are of
In chapter
3.4.2.
t h e c o - o p e r a t i o n o f t h e c h a m b e r o f commerce and t h e
labour
a d m i n i s t r a t i o n was
described with respect to vocational
t r a i n i n g problems.
Areas of contacts a l s o e x i s t i n the
f i e l d o f f u r t h e r t r a i n i n g and r e t r a i n i n g
intensified.
The M i n i s t r y o f E d u c a t i o n
are supposed t o be
and S c i e n c e
to
i n c r e a s e i t s i n f l u e n c e on a d u l t s ' t r a i n i n g .
to
p a r a s 47 and 48 o f t h e V o c a t i o n a l T r a i n i n g A c t
bildungsgesetz)
but
adults' training.
made by t h e c o m m i t t e e s
Through
these
The
(Berufs-
for vocational training.
r e g u l a t i o n s , which are p a r t l y
is
legal
Planning
formulated,
not y e t implemented, the d i s c r e t i o n o f the
administration
According
t h e M i n i s t r y h a s t h e r i g h t t o amend
regulations concerning
is
tries
diminished.
Up t o now
labour
the
labour
'
-
administration could
d e c i d e on a d u l t s ' t r a i n i n g c o u r s e by
s u b s i d i z i n g t h e courses.
As we h a v e d i s c u s s e d ,
c i d e d more o r l e s s o n l a b o u r
The
-
143
market p o l i t i c a l
M i n i s t r y of. E d u c a t i o n a n d S c i e n c e t r i e s
guidelines
f o r adults' t r a i n i n g courses.
the
administration
labour
guidelines
i swilling
i snot yet clear.
that adults'
criteria.
t o work o u t
To w h a t d e g r e e
to follow
these
T h e c h a m b e r s o f commerce
as w e l l a s members o f t h e l a b o u r
the o p i n i o n
they de-
administration are of
t r a i n i n g may c a u s e a n i m p l e m e n -
t a t i o n p r o b l e m because t h e g u i d e l i n e s a r e worked o u t by
d i f f e r e n t bodies.
When we c a r r i e d t h r o u g h o u r e m p i r i c a l
s t u d y , i t was t o o e a r l y t o a n a l y s e t h i s p r o b l e m , b u t i t
w o u l d b e w o r t h w h i l e t o do more e m p i r i c a l i n v e s t i g a t i o n
in
this
The
able
field.
question
o f w h e t h e r t h e chamber o f commerce w o u l d b e
t o support the labour
administration i n reducing
u n e m p l o y m e n t was a n s w e r e d n e g a t i v e l y :
forced
firms t o increase
t h e i r labour
acting inconsistently with
system.
i f t h e chamber
the basis
f o r c e , i t w o u l d be
of a free
enterprise
The chamber's c o n t r i b u t i o n s t o w a r d s o l v i n g
unemployment p r o b l e m s l i e s
i n i t s efforts i n the f i e l d of
f u r t h e r t r a i n i n g and r e t r a i n i n g .
A l t h o u g h no i n s t i t u t i o n a l i s e d
labour
the
administration
a n d t h e chamber o f commerce
v o c a t i o n a l t r a i n i n g co-operation),
representatives
the
r e l a t i o n s e x i s t between t h e
opinion
offices'
a l l three
ofthe
o f t h e chamber w i t h whom we s p o k e
t h a t t h e y were s a t i s f i e d w i t h
labour
'pro-employer p o l i c y ' .
are. no i n s t i t u t i o n a l i s e d
representatives
labour
expressed
the local
A p a r t f r o m common m e m b e r s h i p i n t h e s e l f - g o v e r n i n g
there
(beside
r e l a t i o n s between t h e
o f t h e employers' a s s o c i a t i o n s
administration.
mentioned that i n K i e l ,
In this
bodies,
connection,
and t h e
i t should
be
t h e members o f t h e s e l f - g o v e r n i n g
-
b o d i e s come f r o m t h e
Freiburg,
the
employers' a s s o c i a t i o n , whereas
employers' s i d e i s represented
p r i v a t e e m p l o y e r s o r by
The
set-up of the
i m p a c t on
-
144
employers' a s s o c i a t i o n are
but
by
firms.
b o d y ' s s t r u c t u r e has
i t s multiplier-function;
information,
either
p e r s o n n e l managers of b i g
self-governing
in
representatives
an
of
interested in dispersing
p r i v a t e employers t r y to p r o f i t
from
the
and
the
information.
Communication between the
local
labour
offices
employers' a s s o c i a t i o n s
seldom takes p l a c e .
the metal i n d u s t r y s a i d :
of our
p r o b l e m s i s t h a t we
workers.
with
'We. do
the
This
has
labour
manager
been d i s c u s s e d
f a i l u r e do
not
twice
region:
high
or three
times
w i t h o u t any
l i e i n labour
rents
and
One
skilled
success.'
administration
to f i n d s u i t a b l e applicants, rather
problem of t h i s
of
h a v e much c o n t a c t .
c a n n o t f i n d enough
a d m i n i s t r a t i o n , but
Reasons f o r t h i s
unwillingness
not
The
the high
i t is a
cost
of
living.'
All
representatives
a d m i n i s t r a t i o n has
unemployment.
t h a t the
the
only
labour
limited possibilities
a d m i n i s t r a t i o n should
market p o l i c y ' .
administration
i s not
i n f l u e n c e the b e h a v i o u r of
the
need f o r c l o s e r r e l a t i o n s .
informal
office
and
and
the
supra-locally ;
an
adequate
the
doing
has
an
i n s t i t u t i o n which
I f there
labour
argument
In t h e i r
opinion,
There i s
i s contact,
Most of
office
can
no
i t is
b e t w e e n t h e Länder
i n medium towns a r e
local
the
1
employers' a s s o c i a t i o n .
employers' a s s o c i a t i o n s
reducing
i m p l e m e n t a more
employers.
mostly takes place
labour
of
'What t h e y a r e
t o do w i t h p o l i c y m a k i n g .
labour
f a c t t h a t the
They a l l s t r o n g l y c o n t r a d i c t e d
'active labour
nothing
a g r e e upon t h e
labour
the
organised
i s not
considered
partner.
I t holds true
the
employers'
and
the
f o r the
c h a m b e r s o f commerce as w e l l as
associations
t h a t no
strong
for
relations exist,
n e c e s s i t y of strengthening the' c o n t a c t s
has
never
-145
been c o n s i d e r e d .
istration
pressure
-
In t h e i r a p p r a i s a l , the labour
admin-
i s a s e r v i c e d e l i v e r y system which cannot put
on t h e e m p l o y e r s .
T h e r e i s no i n d i c a t i o n t h a t •
• t h e l a b o u r a d m i n i s t r a t i o n has any i n t e r e s t i n i n t e n s i f y i n g
contacts:
governing
'As t h e e m p l o y e r s a r e members o f t h e s e l f bodies,
t h e i n f o r m a t i o n exchange i s guaranteed.'
I n t h e v i e w o f t h e chambers, and t h e e m p l o y e r s ' a s s o c i a t i o n s ,
the labour a d m i n i s t r a t i o n i s not a r e l e v a n t p a r t n e r .
Beside
in
relations
on t h e e m p l o y e r s i d e , we w e r e i n t e r e s t e d
l e a r n i n g more a b o u t t h e c o n t a c t s b e t w e e n t h e l a b o u r
a d m i n i s t r a t i o n and t r a d e u n i o n s .
r e p r e s e n t a t i v e s o f those
We t h e r e f o r e
trade unions
t o t h e r e g i o n a l economic s t r u c t u r e .
opened w i t h t h e q u e s t i o n :
w h i c h were
those
'What a r e t h e m o s t
bodies,
between
in. the l o c a l
spontaneously
o f s k i l l e d w o r k e r s i s one o f t h e g r e a t e s t
problems o f t h e r e g i o n .
The s e c o n d g r o u p s answered:
a r e no p r o b l e m s i n t h e v i e w o f t h e t r a d e u n i o n s . '
wer
self-
o f unemployment
Two members, h o w e v e r , a n s w e r e d
that the shortage
i n the view
a n d t h o s e who do n o t t a k e p a r t i n t h e s e
groups have a d i f f e r e n t u n d e r s t a n d i n g
problems.
important
We h a v e t o d i f f e r e n t i a t e
i n t e r v i e w e e s who a r e r e p r e s e n t e d
governing
important
Our i n t e r v i e w s
problems i n the labour market r e g i o n o f K i e l ,
of the trade unions?'
interviewed
'There
The a n s -
t h a t u n e m p l o y m e n t i s no l a r g e p r o b l e m i s an a s t o n i s h i n g
p i e c e o f i n f o r m a t i o n , b u t c a n be e x p l a i n e d by t h e f o l l o w i n g
facts:
1) The t r a d e u n i o n s
. unemployment, and
a r e n o t always informed
2) members o f t r a d e u n i o n s
o f member
are less
(1 )
a f f e c t e d by d i s m i s s a l s .
i n t e r v i e w s took
I t must be m e n t i o n e d t h a t t h e
p l a c e i n 19 76, w h e r e t h e a w a r e n e s s o f unem-
p l o y m e n t p r o b l e m s was much l o w e r
unions'
than
today.
3) T r a d e
s t r a t e g i e s t o s o l v e t h e problems o f unemployment
a r e s e t i n t o a c t i o n b e f o r e unemployment o c c u r s .
The r e a l
i n f l u e n c e on t h e s t r u c t u r e o f employment t a k e s
place within
(1) T h e s e h y p o t h e s e s a r e e m p i r i c a l l y t e s t e d b y H. H e n t s c h e l /
M o l l e r / P i n t a r (1977). F o r t y - f o u r p e r c e n t o f a l l w o r k e r s
belong t o trade unions i n Nordrhein-Westfalen, but i n
t h e i r sample o f unemployed o n l y seventeen p e r cent were
organized.
-
the f i r m s .
-
146
As many e m p l o y e r s c o n f i r m e d
i n i n t e r v i e w s , shop
c o u n c i l s w h i c h have to agree d i s m i s s a l s beforehand
accept
d i s m i s s a l s of non-organised
p r o t e c t t h o s e who
workers,
but
tend
to
t r y to
a r e members o f t h e t r a d e u n i o n s . . T h e y
t h u s p u r s u e i n t r a p l a n t s t r a t e g i e s w h i c h h a v e enormous
implications
f o r the labour market.
Trade unions
d i s m i s s a l s as w e l l as r e c r u i t m e n t s i n f a v o u r o f
influence
their
members.
Thus t h e y h e l p t o d i v i d e t h e l a b o u r m a r k e t
a primary
and
a secondary
market.
This hypothesis
be u n d e r g o a more i n t e n s i v e e m p i r i c a l a n a l y s i s ,
c a n n o t be
c a r r i e d through
into
should
which
w i t h i n the frame of our
pro-
ject.
I t becomes o b v i o u s
not express
why
trade unions
on
a great i n t e r e s t i n the
the. l o c a l
level
did
labour administration.
Except
f o r c o - o p e r a t i o n i n the s e l f - g o v e r n i n g b o d i e s ,
there
a r e no
r e l a t i o n s b e t w e e n t h e two
time
to
organisations.
From
t i m e , c o n t a c t s o c c u r by phone when p l a c e m e n t a g e n t s
for
p r e c i s e i n f o r m a t i o n on wage r e g u l a t i o n s .
act
:• i n a c c o r d a n c e w i t h t a r i f f
e n q u i r i e s i n the
relations
local offices
laws, they
those problems.
r e p o r t on e x p e r i e n c e s
placement s e r v i c e .
Those o f f i c i a l s
'From t i m e
Other than
t h a t , we
do
We
important
the
with
not have
have our
the
any
members
have
were a t t a c h e d to t r a d e
on
the
local
i n the s e l f - g o v e r n i n g body s i g n i f i e s
step i n the d i r e c t i o n of a r e a l
m a i n t h i n g i s t h a t we
are accepted
e m p l o y e r s as a n e g o t i a t i n g p a r t y . '
by
union
level:
an
co-determin-
ation. '
'The
are
to information.'
membership i n the s e l f - g o v e r n i n g b o d i e s
role
labour
job-stewards
w h i c h t h e w o r k e r s have had
degrees of importance
'Our
who
to time,
i n t h e s e l f - g o v e r n i n g b o d i e s , so we
s u f f i c i e n t access
by
are considered
i n f o r m a t i o n on w h a t g o e s on.
represented
Further
representatives' unfamiliarity with
members o f t h e s e l f - g o v e r n i n g b o d i e s
e x p e r t s on
must
s o m e t i m e s make
of the t r a d e unions.
market p o l i t i c a l ' i n s t r u m e n t s .
Various
they
a r e n o n - e x i s t e n t , a ' f a c t w h i c h i s shown
the trade union's
concrete
As
ask
the
-
'It i s a matter
147
o f course
-
t h a t we h a v e t h e s e
functions
i n the labour a d m i n i s t r a t i o n , which i s a f t e r a l l a
social
insurance
institution.'
'.We s h o u l d n o t a c c e p t
As
this
kind of co-determination.
representatives of the p u b l i c service are also
members o f t h e s e l f - g o v e r n i n g b o d i e s ,
we c a n n o t
speak
of a r e a l p r o p o r t i o n a l co-determination.'
These statements
make i t c l e a r t h a t t h e r e i s no h o m o g e n e i t y
i n - t h e p e r c e p t i o n o f the r o l e trade unions
governing
bodies.
uncertainty.
play i n the s e l f -
This could indicate a certain
role
T h e s e d i f f e r e n t o p i n i o n s may show t h a t
there
i s no common s t r a t e g y o n how t o a c t i n t h e s e l f - g o v e r n i n g
bodies.
I f one o f t h e members p r o p o s e d t h a t t h e l a b o u r
:
a d m i n i s t r a t i o n should reduce
i t s functions i n granting
unemployment b e n e f i t s and i n p l a c e m e n t , t h i s w o u l d
indicate a certain p o l i t i c a l
target direction, but i t
w o u l d r e m a i n j u s t t h e o p i n i o n o f one i n d i v i d u a l
unionist.
indeed
trade
.In c o n s i d e r i n g s t r a t e g i e s t h e t r a d e u n i o n s
pursue v i a — a - v i s
t h e l a b o u r a d m i n i s t r a t i o n , i t was
o u t s e v e r a l times',
'the" t r a d e u n i o n s
on t h e l o c a l
pointed
l e v e l are
w a i t i n g f o r p r o p o s a l s t o come down f r o m t h e F e d e r a l
o f t h e DGB'
Clearly,
( F e d e r a t i o n o f t h e German T r a d e
the trade unions
on t h e l o c a l
o r d i d n o t h a v e any p o l i t i c a l
t o unemployment p r o b l e m s ,
could
level
Unions).
l e v e l do n o t h a v e ,
strategies, either with
or concerning
action w i t h i n the labour a d m i n i s t r a t i o n .
respect
t h e i r scope o f •
They f e e l
them-
s e l v e s more o r l e s s i n t e g r a t e d as ' S o z i a l p a r t n e r ' .
Trade unions
as w e l l
as e m p l o y e r s '
a s s o c i a t i o n s , chambers
o f commerce a n d c h a m b e r s o f t r a d e a r e g r o u p s w h i c h
represent special
treatment
interests
f o r t h e i r members.
s e e k i n g some
should
preferential
The l a b o u r a d m i n i s t r a t i o n , on
the o t h e r hand, c o n f r o n t e d w i t h g e n e r a l p o l i c y - t y p e d i r e c t i v e s f r o m t h e s u p e r i o r body s h o u l d have an i n t e r e s t i n
acquiring information i n order to plan i t s a c t i v i t i e s .
Problems, i n t e r e s t s
and g o a l s o f e m p l o y e r s o f t e n a r e n o t i n
-
harmony w i t h
-
148
those o f employees.
ought t o balance t h e d i f f e r i n g
The l a b o u r
i n t e r e s t s and should
both c l i e n t groups o f t h e a d m i n i s t r a t i o n ' s
In fact,
and
contacts.
great
The l a b o u r
officially
policy
a d m i n i s t r a t i o n d o e s n o t make a n y
contact.
involved
i n the process of labour
level.
t h a t t h e s e b o d i e s have o n l y
t h e y a r e bound t o t h e r e g u l a t i o n s
W i t h some e x c e p t i o n s ,
goal
r a r e l y occurs.
that
i f e m p l o y e r s and employees a r e l e g a l l y
• g o v e r n i n g b o d i e s on t h e l o c a l
general
The
actors believe
i m p l e m e n t a t i o n by t h e i r r e p r e s e n t a t i o n
explained
organized
level t r yto intensify the
e f f o r t a t e s t a b l i s h i n g more f r e q u e n t
i s sufficient
inter-
None o f t h e
a d m i n i s t r a t i o n as w e l l as t h e r e l e v a n t
the
administration
bodies o r t o case-by-case
i n t e r e s t g r o u p s on t h e l o c a l
as
goals.
the i n t e r e s t groups i s reduced e i t h e r t o t h e co-opera-
a c t i o n o f employers and j o b s e e k e r s .
and
convince
political
t h e r e l a t i o n s h i p between t h e l a b o u r
tion of self-governing
it
administration
market
i n the s e l f -
I n C h a p t e r 2 i t was
consultative
functions
s u b m i t t e d b y t h e BA.
t h e i n t e r e s t g r o u p s seem t o a g r e e
o f the labour
As one t r a d e
administration - 'conflict
union representative
the
kind of co-operation,
and
employees were a t v a r i a n c e
with
t h e ' t i m e i s p a s t when
described
employers
i d e o l o g i c a l l y ' . The
rela-
t i o n s h i p between t h e a d m i n i s t r a t i o n and t h e i n t e r e s t groups
was r e g a r d e d m o r e a s a c o m p l e m e n t a r y t h a n a s an a n t a g o n i s t i c
relationship.
A l t h o u g h a c e r t a i n d i s s i m i l a r t y between
b u r e a u c r a t s and i n d u s t r i a l managers i s o f t e n m e n t i o n e d by
the employers' r e p r e s e n t a t i v e s , there a r e no c r u c i a l i d e o l o g i c a d i f f e r ences.
and
Based o n the p o w e r s t r u c t u r e .between l o c a l labour o f f i c e
t h e e m p l o y e r s , w h i c h was m e n t i o n e d a b o v e , t h e l a b o u r
administration
v i s employers.
n o t made;
For
pursues a ' l a i s s e z - f a i r e '
b e h a v i o u r vis-à-
A t t e m p t s t o g e t more a n d b e t t e r j o b s a r e
c o n t r o l l i n g functions
representation
are not performed.
o f t h e unemployeds' i n t e r e s t s t h e t r a d e
u n i o n s a r e n o t an a d e q u a t e o r g a n i z a t i o n .
p r i m a r i l y t h o s e who h a v e a j o b .
potential conflicts with
regard
They
Although there
represent
a r e many
t o t h e t r e a t m e n t o f unem-
-
ployed
local
i n the l o c a l
labour
-
149
affices,
l e v e l do n o t r a i s e t h i s
the trade
issue.
u n i o n s on t h e
The l a c k o f c o n f l i c t s
between t h e i n t e r e s t groups and t h e l a b o u r
administration,
w h i c h we c o u l d o b s e r v e i n b o t h l o c a l
labour
a reason f o r implementation d e f i c i t s
o f the bureaucracy.
One c o u l d
m a r k e t s , may be
s u p p o s e t h a t c l e a r i n g up t h e c o n f l i c t w o u l d i n -
crease the c r e a t i v i t y
and performance o f t h e a d m i n i s t r a t i o n .
As
administration
long as t h e l a b o u r
agency', and t h e a d m i n i s t r a t i o n ' s
i s perceived
as a
'dole
task of balancing the
p o w e r s t r u c t u r e o f two c l i e n t g r o u p s i s n o t f u l f i l l e d , t h e
i n t e r e s t groups w i l l n o t give
a p o s i t i v e or negative
forcement of a d m i n i s t r a t i v e a c t i v i t i e s .
office
i s perceived
neither
a s enemy n o r a s a l l y ,
tion of the non-relationship.
interest'groups
stated
The l o c a l
Several
'that there
labour
an i n d i c a -
interviewees
o f both
i s no n e c e s s i t y
b e t t e r o r more i n t e n s i v e r e l a t i o n s w i t h
rein-
t o have
the local
labour
office'.
5.2.
5®iê£i22Ë_^ï£h_0r2anisations
Supp_ort_Services
-
According
t o t h e AFG, t h e l a b o u r
co-operate with
level,
Providing^Administrative
-
a d m i n i s t r a t i o n has t o
s e v e r a l a d m i n i s t r a t i v e b o d i e s on t h e l o c a l
s u c h as t h e f o r e i g n e r s ' p o l i c e a n d t h e s o c i a l
welfare
services.
I n t h e f o l l o w i n g s u b - c h a p t e r we
try
to describe
The
f o r e i g n e r s ' p o l i c e , which i s i n t e g r a t e d
these r e l a t i o n s .
für öffentliche O r d n u n g
regulatory
functions
regulations
•granting
(administration
i n the f i e l d s
permits
a d m i n i s t r a t i o n can only
cerning
performing
of residence,
to foreigners.
grant a labour
p e r m i t has been a c q u i r e d .
foreigners'
i n t o t h e Amt
trade
and v e h i c l e - r e g i s t r a t i o n ) i s r e s p o n s i b l e f o r
residence
residence
shall
police tries
residence
a permanent j o b .
The
labour
p e r m i t when a
In p r a c t i c e , the
t o make t h e f i n a l
decision
con-
p e r m i t s v/hen a p p l i c a n t s prove that-they have
This
shift of responsibility
has l e d t o
-
many c o n f l i c t s
police.
-
150
between t h e l a b o u r o f f i c e
and t h e f o r e i g n e r s '
As t h e d e p a r t m e n t head o f t h e f o r e i g n e r s ' p o l i c e
c o m p l a i n e d , most o f t h e c o n f l i c t s
c o u l d be m i n i m i s e d
by
m e e t i n g s b e t w e e n t h e a d m i n i s t r a t i o n s . I n i n t e r v i e w s w i t h those
responsible f o r matters
concerning, f o r e i g n e r s i n both
a d m i n i s t r a t i o n s v/e r e c e i v e d t h e i m p r e s s i o n
t h a t they a r e
i n c a p a b l e o f d e c i d i n g how t o c o p e w i t h t h e m u l t i t u d e ' o f
immigrants.
relief,
I f a non-EC-member h a s t o l i v e on p u b l i c
the f o r e i g n e r s ' p o l i c e can administer a d e p o r t a t i o n
warrant.
The p o l i c e c o n s i d e r i t t h e j o b o f l a b o u r
istration
to place foreigners.
c l a i m s t o have n o t h i n g
This
The l a b o u r a d m i n i s t r a t i o n
t o do w i t h d e p o r t a t i o n .
unclear r e s p o n s i b i l i t y
question influences other
potential points of contact.
a v o i d each o t h e r .
admin-
Both a d m i n i s t r a t i o n s t r y t o
Two e x a m p l e s may i l l u s t r a t e
this.
department head o f t h e f o r e i g n e r s ' p o l i c e s a i d :
e m p l o y e r s phone a s k i n g f o r f o r e i g n w o r k e r s .
The
'Often,
As.we.are n o t
r e s p o n s i b l e f o r p l a c e m e n t s e r v i c e s , I c o n t a c t one o f o u r
welfare workers,
who t r i e s
to find
a s u i t a b l e w o r k e r and
b r i n g s him together w i t h the employer.
Then t h e l a b o u r
a d m i n i s t r a t i o n o n l y have t o g i v e f o r m a l a p p r o v a l . '
foreigners ' police
i s convinced
t h a t w e l f a r e workers are b e t t e r
prepared t o d e l i v e r - t h o s e s e r v i c e s t h a n
where t h e s t a f f do n o t know t h e i r
do
n o t have enough t i m e
groups l i k e
foreigners.
The
the labour
office,
c l i e n t s w e l l enough, and
t o concern
themselves w i t h
problem
Sometimes t h e f o r e i g n e r s ' p o l i c e
h e a r s a b o u t f o r e i g n , w o r k e r s who a r e e m p l o y e d w i t h o u t
permits.
Although
t h e l a b o u r a d m i n i s t r a t i o n has t h e
f u n c t i o n o f s a n c t i o n i n g .these d i s c i p l i n a r y
administrative
foreigners'
(1)
fines
(according to para.
p o l i c e never informs
of such cases
.
labour
p e n a l i t i e s by
2 2 9 , 1 AFG) , t h e
the labour administration
The o p i n i o n o f " t h e d e p a r t m e n t h e a d o f
W i t h i n t h e payment d e p a r t m e n t t h e r e i s a s u b - u n i t
r e s p o n s i b l e f o r l e g a l q u e s t i o n s , an a p p e a l o f f i c e a n d
an o f f i c e
f o r f i n e r e g u l a t i o n s . The t a s k s o f t h e
l a t t e r s e c t i o n i s 'saving the labour a d m i n i s t r a t i o n from
i m p a i r m e n t s and a g g r a v a t i o n s i n t h e p e r f o r m a n c e o f i t s
duties'.
L e g a l and a d m i n i s t r a t i v e s a n c t i o n s a r e
r e g u l a t e d i n p a r a s 225-233 AFG. E v a s i o n o f d u e s ,
unauthorised p l a c i n g out of or i n t o a f o r e i g n country,
Continued
on t h e n e x t
page.
- 151t h e p o l i c e i s t h a t t h e s e p e n a l t i e s must be a n n o u n c e d t o
p u b l i c p r o s e c u t o r s , who
powers.
trative
have t h e p r o p e r
sanctioning
The f o r e i g n e r s ' p o l i c e d o e s n o t p r o v i d e
support
to the labour a d m i n i s t r a t i o n .
t r y t o b r e a k down t h e s e
an e x a m p l e o f s u c c e s s f u l c o - o p e r a t i o n
As unemployment
social welfare office
was
social welfare office
welfare
i n c r e a s e d a t t h e e n d o f 1974, t h e
r e a l i s e d that the labour administration'
o v e r b u r d e n e d w i t h unemployment
benefit tasks.
t h e r e f o r e c r e a t e d an o f f i c e
a p p l i c a t i o n s and h a n d l e
Money a d v a n c e d by t h i s
labour o f f i c e .
that
and e n e r g y .
between t h e l o c a l l a b o u r o f f i c e and t h e s o c i a l
office.
I t does n o t
co-operation-barriers either;
w o u l d i n v o l v e t o o much t i m e
Freiburg provides
adminis-
a loan fund
office
to
collect
(Vorschusskasse).
i s l a t e r r e c e i v e d from the
T h i s i s an example i n i t i a t i n g
a i m e d a t a more c l i e n t - o r i e n t e d
g r a n t i n g o f unemployment
The
implementation
support,
of the
benefits.
The s o c i a l w e l f a r e o f f i c e
i s actively
p l a c i n g unemployed persons.
engaged i n
Because they have t h e
i m p r e s s i o n t h a t t h e l a b o u r a d m i n i s t r a t i o n does n o t
c a r e enough about t h o s e
relief,
(1)
they t r y t o help
c l i e n t s who
receive public
i n p l a c e m e n t f u n c t i o n s . The
( C o n t ' d f r o m p a g e 150)
a s w e l l as t h e e m p l o y m e n t o f f o r e i g n w o r k e r s w i t h o u t
labour permits are punishable a c t s , which the labour
o f f i c e has t o announce t o t h e p u b l i c p r o s e c u t o r s .
Most o f t h e p u n i s h a b l e a c t s a r e d i s c i p l i n a r y p e n a l t i e s
w h i c h a r e p u n i s h e d by a d m i n i s t r a t i v e f i n e s .
Those can
a l s o be e m p l o y m e n t o f f o r e i g n w o r k e r s w i t h o u t l a b o u r
p e r m i t , u n a u t h o r i z e d h i r i n g o f w o r k e r s and f a i l u r e t o
• g i v e i n f o r m a t i o n t o t h e l a b o u r a d m i n i s t r a t i o n . The
f i n e s t o be p a i d n o r m a l l y r u n b e t w e e n f i v e a n d 1000 DM,
i n . s p e c i a l c a s e s t h e y c a n come up t o 50,000 DM.
With
a d m i n i s t r a t i v e f i n e s t h e l a b o u r a d m i n i s t r a t i o n can t r y
to enforce the omission of a p r o s p e c t i v e a c t i o n .
As
s e v e r a l e m p l o y e r s t o l d me, t h e l a b o u r o f f i c e h a s o f t e n
sent l e t t e r s warning of a d m i n i s t r a t i v e f i n e s .
The
e m p l o y e r s ' f e e l t h a t t h i s i s an u n a u t h o r i z e d i n t e r v e n t i o n o f t h e l a b o u r a d m i n i s t r a t i o n i n o r d e r t o demons t r a t e i t s s a n c t i o n a r y power.
In Freiburg, the s e l f g o v e r n i n g body- h a s e n a c t e d a r e s o l u t i o n t h a t t h e l a b o u r
a d m i n i s t r a t i o n should avoid these warning l e t t e r s .
In
F r e i b u r g , a p p r o x i m a t e l y 15000 d i s c i p l i n a r y
proceedings
are i n i t i a t e d per year.
Two t h i r d s o f t h e c a s e s a r e
offences against labour permit r e g u l a t i o n s , i . e . the
u n a u t h o r i z e d employment o f f o r e i g n w o r k e r s .
-
social welfare office
-
152
takes p r i d e
i n the
fact that
they
managed t o f i n d - j o b s - f o r t h i r t y u n e m p l o y e d t e a c h e r s " .
p u b l i c p l a c e m e n t a g e n c y was
not
able to place
The
these,
t e a c h e r s , as p u b l i c s e r v i c e j o b o p e n i n g s a r e n o t r e g i s t e r e d
w i t h them.
The
m i n i s t r y , and
head of the s o c i a l
office
contacted
the t e a c h e r s were p l a c e d w i t h i n a
the
matter.of
weeks.
In order
to b e t t e r apply
i s t r a t i o n to the
the
s e r v i c e s of the
labour
socially.disadvantaged, the social, welfare
office
suggested a s p e c i a l placement s e r v i c e i n a
colony
f o r the homeless.
o f f i c e has
part-time
jobs
and
social
way
to eight;
thus, the
and w o r k
long-term
i n t e g r a t e d i n t o the n o r m a l employment
welto
their
unemployed
process.
F u r t h e r , t h e welfare-office'-• t r i e s t o c r e a t e t r a i n i n g
for
drug-addicts
and
labour o f f i c e w i l l
obvious
i n our
alcoholics,
support
them f i n a n c i a l l y .
i n t e r v i e w s t h a t the
On
I t became
does n o t h a n d l e .
initiatives
Our
of working
market.
t o be
With regard
necessary
efforts
The
under the
a
'normal c o n d i t i o n s ' o f t h e
to long-term
labour
social
I t u n d e r s t a n d s i t s t a s k s as
t h a t the
t o "concern
t o be
labour
discussion
w i t h t h e p l a c e m e n t d e p a r t m e n t h e a d showed t h a t t h e
a d m i n i s t r a t i o n does not p e r c e i v e i t s e l f
is
social
i n v o l v e r e i n t e g r a t i o n of problem groups which the
welfare organization.
local
l o c a l labour o f f i c e
the o t h e r hand, these
administration normally
courses
i n t h e h o p e th-at t h e
g e n e r a l l y w i l l i n g to back the i n i t i a t i v e s of the
welfare office.
for
offered
f o r unemployed persons unaccustomed
They s t a r t w i t h t h r e e h o u r s a day,
c a n be
the
a l s o t r i e d t o c o n t a c t f i r m s who
work.
up
suburban
S i m i l a r s e r v i c e s are planned
o t h e r p r o b l e m g r o u p s , s u c h as g y p s i e s
fare
admin-
one
labour
u n e m p l o y m e n t , i t seems
l a b o u r a d m i n i s t r a t i o n make more
i t s e l f with s o c i a l l y disadvantaged
a b o v e m e n t i o n e d e x a m p l e c a n be
regarded
as t h e
first
s t e p t o w a r d a more s o c i o - p o l i t i c a l o r i e n t a t i o n . . I f t h e
a d m i n i s t r a t i o n i s not able t o
groups.
labour
extend i t s sphere of. a c t i o n t o prob-
lem croups, a narrow co-operation between the s o c i a l welfare o f f i c e s
and the placement o f f i c e s may
of placement f u n c t i o n s .
l e a d t o a more c l i e n t - c e n t e r e d performance
-
A third
the
-
15.3
example of a d m i n i s t r a t i v e
industrial
i s t r a t i o n was
i n s p e c t i o n boards.
not
perceived
as
f o r the
industrial
i n s p e c t i o n boards are
administration.
disabled.
following reason:
found
in
a c t o r , we
functions
with
regard
German i n d u s t r i a l
protective labour
s u b o r d i n a t e to the
to the
i n t o the
This
p a r a 17,
AFG,
p l a c e m e n t a g e n c y has
powers.
trolling
by
the
may
administration
As
t i o n boards,
violations
office
the
law
not
labour
lack of
administration
the
failures.
chamber o f
the
informed
We
commerce
are
industrial
through t h e i r
learn
inspec-
about
clients.
The
themselves i n these
with
matters.
information
the
exchange between
foreigners'
police is
industrial
administration.
The
the
the
inspection
labour
admin-
t r y to improve r e l a t i o n s because i t i s
u n w i l l i n g t o t a k e on
additional functions:
have the
functions
o r g a n i s a t i o n , o f a b a n k , and
took the
the
between the
labour
i s t r a t i o n does not
e m p l o y e r s , we
t h e protective
us.'
and
dearth of co-operation
b o a r d s and
of p o s s i b l e
involve
They w o u l d n e v e r i n f o r m
S i m i l a r to the
the
i s i n t e r e s t e d i n h a v i n g good r e l a t i o n s
f i r m s , s o t h e y do
to
to ensure that
placement agents o f t e n
against
directly
i n s p e c t i o n boads have c o n -
s e e n f r o m the- v i e w o f
'the
and
Social
suppose t h a t they were
however, t h a t o n l y
notified.
labour
industrial
f u n c t i o n s , we
labour
learned,
the
the
According
maintenance of w o r k p l a c e s i s i n accordance_ w i t h
As
have
body,
Länder M i n i s t r y o f L a b o u r and
some s a n c t i o n a r y
law.
and
regulations
administrative
a l s o has
labour
labour
employment o f
safety
Affairs,
the
France,
i n s p e c t i o n boards p r i m a r i l y
industrial
law.
conducted
Sweden and
integrated
in
admin-
They c o n t r o l w o r k i n g c o n d i t i o n s
c o n t r o l compliance with
the
be
Although t h i s
a relevant
interview's
supervisory
support can
controlling
'Vis-à-vis
of a s e r v i c e
delivery
of a p o l i c e system. I f
functions
s e r i o u s l y , we
the
we
would lose their
confidence.'
Summing up
the
empirical results
.concerning the
o r g a n i s a t i o n a l r e l a t i o n s between d i f f e r e n t
b o d i e s on
the
local
level -
and
inter-
administrative
keeping i n mind t h a t
this
-
i s not
two
the
complete
154
'scenario'
-
of a l l p o s s i b l e r e l a t i o n s -
t e n d e n c i e s become o b v i o u s :
those organizations
providing
attempt of a d m i n i s t r a t i o n s
overcome d e f i c i t s o f the
1)
l a c k of
s u p p o r t s e r v i c e s and
outside
labour
the
the
industrial
circumvention
following:
on
the
power.
is
the
the
labour
be
administration
Both administrations
u n w i l l i n g to l o s e the
employers'
between the t h r e e
i s minimal.
As
efficient
labour
The
first
foreigners'
poof
by
the
i s dependent
its
know t h a t t h e
co-operation
overburden the
the
o f f i c e to.
explained
employers, i t h e s i t a t e s to exert
an
2)
i n s p e c t i o n board, i s a matter
r e g u l a t i o n s , w h i c h can
As
labour
administration.
k i n d o f r e l a t i o n s h i p , d e m o n s t r a t e d by
l i c e and
i n t e g r a t i o n of
sanctionary
labour
favour.
office
Therefore,
controlling organizations
information
o f f i c e and
exchange would
would create l e g i t i m a t i o n
needs i n implementing t h e i r p e n a l t i e s , the o f f i c e
is
not
i n t e r e s t e d i n i n t e n s i f y i n g these r e l a t i o n s .
The
a c t i v i t i e s of the
described
social welfare
above a r e w o r t h m e n t i o n i n g ;
which w i l l
assume g r e a t e r
receiving public relief)
the
is
'who
number o f v a c a n c i e s
should
administration
objectives
to create
t a r g e t group
The
increase,
d i s t r i b u t i o n of
economic c r i s i s .
with
under the normal c o n d i t i o n s
have
are
of the
the
question
labour
sufficient
labour.
The
unaccustomed
difficult
labour
administration.
seen,
limited.
problem groups
s e r v i c e s e c t o r , e s p e c i a l l y the
labour
(persons
created
In c r e a t i n g a l t e r n a t i v e forms
e m p l o y m e n t f o r i n d i v i d u a l s who
support the
are
As
employment
t a r g e t groups are not
of coping
we
attempts of the
i n t e g r a t i o n o f w o r k e r s who
way
As
work-places i s
to s u b s t i t u t e disaggregated
a more e q u i t a b l e
t o w o r k i s one
public
the
does not
a job?'
for specific
progressive
by
get
t h e y a c t i n a manner
also increases.
p o s s i b i l i t y o f c r e a t i n g new
If
t h e y were
i m p o r t a n c e i n the. f u t u r e .
l o n g - t e r m unemployment i n c r e a s e s
the
a g e n c i e s as
to
of
place
market,
communities,
the
can
-
6.
The
Contribution
Labour Market
The
purpose of
to b r i e f l y
research
-
of t h i s E m p i r i c a l
Study of
the
German
Administration
this
final
r a i s e the
section of
question
finding's reported
summarise the
155
of
the
here.
the p r e s e n t paper i s
usefulness
The
of
objective
empirical r e s u l t s , but.rather
the
i s not
to
to
summarize
' .their "relevance.
Generally,
the
d e t e r m i n e d by
o u t c o m e o f an
empirical
investigation is
the methods u s e d t o r e p r e s e n t a p a r t i c u l a r
social reality.
This
p a p e r i s m e a n t as
a first
t o w a r d m a k i n g an
i n t e r n a t i o n a l c o m p a r i s o n and
primarily
presents empirical results without discussing
l y i n g t h e o r e t i c a l and
step
the
methodological approach.
s h o u l d keep i n mind t h a t
the
Within
The
goal
of which i s to
this methodological
frame-work,
the main i n t e n t i o n i s to i d e n t i f y v a r i a b l e s which
the
implementation process.
i d e n t i f i e d - we
relevant
do
not
The
v a r i a b l e s w h i c h we
be
g r o u p e d as
c h a r a c t e r i s t i c s of a l o c a l
2)
g o a l s and
3)
s t r u c t u r e of
administration
4)
b e h a v i o u r and
a t t i t u d e s of target
5)
actions
6)
configuration of relevant
of e m p i r i c a l
instruments of
o r i e n t a t i o n s of
investigation.
market
groups.
administrators
actors
t h e s e v a r i a b l e s c o v e r an
extensive
E a c h o f them w o u l d
project.
v a r i a b l e s has
t i o n c a n n o t be
be
the
The
strongest
answered.
a n s w e r e d by
question
Our
which of
i n f l u e n c e on
I t i s a question
area
fully
task
to i d e n t i f y those v a r i a b l e s which i n f l u e n c e
implementation process.
only
labour
policy
j u s t i f y a major e m p i r i c a l research
was
have
follows:
1)
Taken t o g e t h e r ,
influence
p r e t e n d .to h a v e i d e n t i f i e d a l l
v a r i a b l e s - may
and
reader
study i s a d e s c r i p t i v e ,
i n d u c t i v e , q u a l i t a t i v e case study, the
generate hypotheses.
under-
the
these
impelementawhich
could
a l a r g e - s c a l e m u l t i v a r i a t e approach.
On the b a s i s of our e m p i r i c a l m a t e r i a l , a 'weighting'
of
the
-
156
-
individual variables i s not possible.
on t h e u s e f u l n e s s o f t h i s
results
i.e.
f o r two l o c a l
A further
limitation
s t u d y m i g h t be t h a t e m p i r i c a l
labour o f f i c e s cannot
be g e n e r a l i z e d ,
t h e f i n d i n g s m i g h t n o t be r e p r e s e n t a t i v e o f a l l l o c a l
labour o f f i c e s
i n t h e F e d e r a l R e p u b l i c o f Germany.
On t h e
o t h e r hand, o u r d e s c r i p t i o n o f a d m i n i s t r a t i v e b e h a v i o u r i n
two
l o c a l o f f c i e s , w h i l e perhaps
not true i n d e t a i l f o r
a d m i n i s t r a t i v e b e h a v i o u r i n e v e r y l o c a l o f f i c e , may a t
l e a s t serve t o describe general patterns o f implementation
b e h a v i o u r a n d t h e r e b y p o i n t t o -problems
ful
implementation.
hindering success-
I n t h i s way, t h e n a m i n g o f s u c h o b -
s t a c l e s t o s u c c e s s f u l i m p l e m e n t a t i o n may e n c o u r a g e r e a d e r s ,
especially
t h o s e employed i n l o c a l o f f i c e s ,
t a s k s i n a new l i g h t .
We a r e c o n v i n c e d t h a t o u r r e s e a r c h
can have p o s i t i v e e f f e c t s ,
ing
out our f i e l d
the second
s u c h a s t h o s e we saw w h i l e
research.
local office
with.our results
t o see t h e i r
carry-
When we confronted the o f f i c i a l s o f
i n w h i c h we made o u r o b s e r v a t i o n s
from t h e f i r s t l o c a l o f f i c e ,
they
showed
c o n s i d e r a b l e i n t e r e s t i n l e a r n i n g more a b o u t t h e i m p l e m e n t a t i o n process i n o t h e r ' o f f i c e s .
Our statements
t h e m t o p r o b l e m a t i z e t h e i r own b e h a v i o u r .
procedure
came t o a p p r o x i m a t e
Thus o u r r e s e a r c h
to 'action research'.
n e e d f o r more k n o w l e d g e a b o u t t h e i m p l e m e n t a t i o n
at
the local
level
ing
field.
Furthermore,
f o r m u l a t e d as hypotheses,
by q u a n t i t a t i v e methods.
process
many o f o u r
require empirical
I t calls
I n a f i e l d which
test-
for great effort to
transform q u a l i t a t i v e data i n t o q u a n t i t a t i v e l y
theses.
The,
i s v e r y g r e a t , a s t h e r e no e m p i r i c a l
studies exist i n this
results,
helped
i s 'new t e r r i t o r y '
meaningful
for social
s c i e n t i s t s , we b e l i e v e we h a v e made a f i r s t s t e p i n d e s c r i b ing
and e x p l a i n i n g a p a r t i c u l a r
form o f s o c i a l
behaviour.
-
-
157
APPENDIX
S t r u c t u r e a n d E m p l o y m e n t i n Two R e g i o n a l
The
be
activities
of a labour
understood i n connection
situation.
Labour Markets
a d m i n i s t r a t i o n agency can o n l y
with
the e x i s t i n g
economic
L a b o u r a d m i n i s t r a t i o n must r e a c t t o a dynamic
environment.
E v e n when t h e e c o n o m i c s i t u a t i o n o f a r e g i o n
c h a n g e s more r a p i d l y t h a n i t d i d a f e w y e a r s
ago, s t r u c t u r a l
aspects
over a
a p p e a r , w h i c h c a n o n l y be i d e n t i f i e d
relatively
In order
long period of time.
to properly classify
the functions of labour
a d m i n i s t r a t i o n , t h e economic s t r u c t u r e o f t h e r e g i o n a l
l a b o u r m a r k e t m u s t , t h e n , be t a k e n
f o l l o w i n g chapter
will
economic s i t u a t i o n
on
The
a t t e m p t t o g i v e an o v e r v i e w o n t h e
i n order
the occupational
into consideration.
t o consolidate the information
s t r u c t u r e and t h e development o f
unemployment.
1.1.
The
Area_and_Pop_ulation_in_Kiel
employment o f f i c e a t K i e l
1 820,03 s q . km.
and
f u n c t i o n s f o r an a r e a o f
I t i s responsible f o r the c i t y
t h e c o u n t y o f Plön a s w e l l a s p a r t s o f
Eckernförde .
Bordering
this
area
of K i e l ,
Rendsburg/
on t h e w e s t and
n o r t h w e s t i s t h e employment o f f i c e o f F l e n s b u r g ,
on t h e
s o u t h - s o u t h w e s t Neumünster, a n d o n t h e e a s t t h e e m p l o y m e n t
o f f i c e a t Lübeck.• The B a l t i c
to the north.
main o f f i c e
Sea forms a n a t u r a l b o r d e r
O r g a n i s a t i o n a l l y , the area
i n Kiel
and t h e t h r e e b r a n c h employment
o f Eckernförde, Lütjenburg a n d Plön.
istration
consists of the
The l a b o u r
i s r e s p o n s i b l e f o r 135 m u n i c i p a l i t i e s .
offices
adminWith the
-
1 58
-
e x c e p t i o n of the main r e g i o n a l c i t y
the d i s t r i c t
is relatively
sparsely
In
the. l a b o u r o f f i c e
is
4 6 7 , 1 7 1 , 220,798 o f whom (47.9
234,373
(52.1
per
district
cent)
female.
of K i e l
handles
of the e n t i r e d i s t r i c t .
of the d i s t r i c t
Kiel
has
1.2.•
The
627
i s 257
The
and
its
suburbs,
populated.
of K i e l ,
per
the t o t a l
cent)
population
are male,
Three quarters
municipalities with populations
main o f f i c e
of K i e l
live
o f a t l e a s t 5,000.
75 p e r
cent
of the
and
in
The
residents
average p o p u l a t i o n d e n s i t y
persons per
p e r s o n s p e r s q . km.,
s q . km.
and
(the c i t y
of
Lütjenburg-only
55).
The_Deyelgpment_of_the_Re2ional_Economy
e c o n o m i c d e v e l o p m e n t o f an a r e a d o e s n o t
c o i n c i d e w i t h the developments of the
always
labour market.
In
s p i t e o f a d e c l i n e i n employment, i t i s p o s s i b l e t h a t
p r o d u c t i o n o f g o o d s and
to
income r i s e s .
shall
try
g i v e a s h o r t summary o f t h e e c o n o m i c d e v e l o p m e n t o f
labour market area of K i e l .
has
We
the
a gross
domestic production
of the n a t i o n a l average.
p r o d u c t i o n was
2,000 DM
The
area of
approximately
1 1 , 0 5 1 DM
p r o d u c t i o n of the r e s t of the area
d o m e s t i c p r o d u c t i o n was
Flensburg
of K i e l
and
are
Plön.
DM,
Income l e v e l s
The
gross
the
can
see
wage i n m a n u f a c t u r i n g
following trend.
was
over
compared
lowest
i n the
t h e a v e r a g e i n c o m e and
the
domestic
gross
i n the c o u n t i e s
employed i n the e n t i r e a r e a of
w h e r e we
domestic
i s minimal,
I n 19 70,
5,901
four-fifths
i n 19 70, a p p r o x i m a t e l y
labour
f a r below the n a t i o n a l average.
o n l y a v a i l a b l e on
those
the gross
above t h e n a t i o n a l a v e r a g e .
w i t h t h a t of the main c i t y .
Schleswig-^Holstein
amounting t o
In K i e l ,
the
of
district
Figures
wage l e v e l s
are
of
Schleswig-Holstein,
The
average
hourly
the n a t i o n a l average,
but
t h e m o n t h l y s a l a r i e s o f e m p l o y e e s i n i n d u s t r y , commerce,
c r e d i t and
i n s u r a n c e w e r e much l o w e r
wages o f e m p l o y e e s i n t h e r e s t o f t h e
than
the
corresponding .
nation.
A f u r t h e r m e a s u r e i s t h e number o f p e o p l e
employed i n
-
industry per
region.
is
75
1,000
In the
residents in.industrial
labour market d i s t r i c t
industrial
also find
t o 1,000
significant
residents.
s e c t i o n s of
of K i e l ,
In t h i s
regional differences.
m a i n m u n i c i p a l i t y t h e r e a r e 125
1,000
-
159
industrial
r e s i d e n t s , i n the township
in
labour force a c t i v i t y i n t h i s
area.
41 p e r c e n t o f t h e r e s i d e n t s w e r e
d e c l i n e was
with
In
due
t o 36.7
42.2
While
townships
this
parallel
c e n t and
As
c a n be
of people
f i g u r e s i n k s t o 30 p e r
figures
30.8
25.
This
structure,
retirement.
cent of the r e s i d e n t s are
employed, w h i l e i n the country
per
per
employed i n
earlier
gainfully
i s 57.9
i n the
approximately
p e r c e n t i n 1975.
per
we
been a d e c l i n e
a b o v e a l l t o c h a n g e s o f t h e age
the c i t y of K i e l ,
(The
While
(actively)
l o n g e r p e r i o d s o f e d u c a t i o n and
r a t e f o r men
regard
o f Plön t h e r e a r e o n l y
i n the e n t i r e F e d e r a l R e p u b l i c , t h e r e has
that rate f e l l
ratio
employees
As
1970,
the
a
c e n t and
and
surrounding
cent.
The
f o r women 28.2
activity
per
cent.
f o r t h e F e d e r a l R e p u b l i c a r e 74
per
per c e n t ) .
seen i n Table
1 ( f o l l o w i n g page),
i n t h e a r e a o f a g r i c u l t u r e and
than the n a t i o n a l average.
the
percentage
fishing
I t s h o u l d be
noted
i s higher
that
the
s t a t i s t i c a l f i g u r e s on the number o f employed i n the'primary s e c t o r
be
c o n s i d e r a b l y lower
business
taxes
in actuality;
are i n c l u d e d .
in' a g r i c u l t u r e ,
The
here,
number o f p e r s o n s
b a s e d on t h e g r o s s
domestic
t w i c e as h i g h as t h e f e d e r a l a v e r a g e .
e x p l a i n e d by
only those
T h i s can
I n 1972,
n a t i o n a l p r o d u c t i o n a m o u n t e d t o 20,600 DM
be
employed i n a g r i c u l t u r e
The
national production for a l l other
a v e r a g e d 11,800 DM.
i n com-
the
gross
f o r each
gainfully
gross
employed
production, i s
the f a c t t h a t farms are l a r g e r h e r e ,
parison with other federal regions.
paying
person
i n Schleswig-Holstein.
regions
In comparing the d e c l i n e of
those
e m p l o y e d i n a g r i c u l t u r e w i t h t h e d e c l i n e o f t h e same g r o u p
i n t h e F e d e r a l R e p u b l i c , we
19 6 7 t o 19 73,
find
no d i f f e r e n c e s .
6,69 7 i n d e p e n d e n t f a r m e r s
f a m i l y members w e r e c o u n s e l l e d by
the
From
and c o n t r i b u t i n g
labour
agency;
-
160
Table 1
-
-
Percentages of Persons Employed i n
I n d u s t r y by S e c t o r
labour
market r e g i o n
of K i e l
Federal
• Republic.
3.2
3.2
27.6
43.0
: 31.0.
11.0
16.0
13.0
20.0
12.0
12.0
8.0
21.0
56.0
8.9
8.4
62.6
45.4
27.0
32.0
8.0
8.0
8.0
7.0
s o c i a l s e c u r i t y and
local authorities
22.0
22.0
miscellaneous
35.0
31.0
sectors
I
Agriculture, Forestry,
F i s h i n g and M i n i n g
Manufacturing. Industries
•• ••
.. ..
consisting of:
vehicle construction
(including shipbuilding)
II
mechanical
engineering
electronics
industry
food
all
other
industries
construction
public
sector
trade
-
traffic,
banks,
communication
insurance
services
-
-
161
57 p e r c e n t o f them w e r e h e l p e d by
for further training
and
individual
promotion
retraining.
A d e f i n i t e d i f f e r e n c e among t h e number o f p e o p l e
employed
i n i n d u s t r i e s e x i s t s between the s t r u c t u r e o f the F e d e r a l
R e p u b l i c and
Here,
t h a t of the l a b o u r market d i s t r i c t
t h e 2 7.6
per cent i n the K i e l
the f e d e r a l average.
solely
The
cause
area l i e s
i n some s e c t o r s .
A decline
The
e m p l o y e d i n i n d u s t r y g r e w b e t w e e n 1961
In K i e l ,
by
per Cent.
1.8
textile
and
and
1973,
19 70 by
11.9
per
dropped
A l o n g w i t h ' a n employment d e c l i n e i n t h e
c l o t h i n g i n d u s t r y , the s h i p b u i l d i n g
i t s number o f e m p l o y e e s .
fell
from
13,383 t o 1 0 , 9 2 8 .
industry
Between
t h e number o f p e o p l e e m p l o y e d i n t h e
area of K i e l
12
per cent i n
d u r i n g t h e same p e r i o d , e m p l o y m e n t
a l s o g r e a t l y reduced
and
of
number o f t h o s e -
c e n t i n t h e Flensburg/Eckernförde, and by
Plön.
f a r beneath
f o r t h i s does n o t l i e
i n t h e s t r u c t u r a l l y weak a r e a s .
employment e x i s t s
in Kiel.
has
1961
shipbuilding
Of a l l p e r s o n s
employed i n m a n u f a c t u r i n g industries^, e v e r y t h i r d person i s
i n the s h i p b u i l d i n g i n d u s t r y .
in
shipbuilding,
For every person
employed
another i s employed i n d e l i v e r y .
T h i s c l a r i f i e s the dominant p o s i t i o n o f the K i e l
dockyards i n the r e g i o n a l l a b o u r market.
We s e e a s i m p l e
o v e r - r e p r e s e n t a t i o n i n t h e number o f t h o s e e m p l o y e d i n t h e
p u b l i c s e c t o r , compared
tourist industry
to. t h e f e d e r a l a v e r a g e .
is particularly
i n g a r e a s o f Plön and Lütjenburg.
important i n the
I n 1973,
The
surround-
Schleswig-
H o l s t e i n h o u s e d 215,309 t o u r i s t s ,
40 p e r c e n t o f a l l B a l t i c
Sea
few'years
resort.
-Although i n t h e l a s t
a 10 % i n c r e a s e
: i n e m p l o y m e n t o c c u r r e d , t h e h i g h number o f p e o p l e
i n t o u r i s m presents a problem
fluctuations.
Consequently,
employed
because of s t r o n g seasonal
l a r g e numbers o f u n e m p l o y e d
r e g i s t e r d u r i n g t h e w i n t e r , w h i l e i n t h e summer m o n t h s
job vacancies abound.
I n past years, supplementary labour forces
could be m o b i l i z e d from domestic r e s e r v e s , p a r t i c u l a r l y from the r u r a l
•areas.
The employment agency has o b t a i n e d s p e c i f i c o c c u p a t i o n a l -
-
criteria
f o r female personnel
S t u d e n t s and
months.
Baltic
162
f o r e i g n e r s are
In order
Sea
-
i n h o t e l s and
a l s o c a l l e d upon i n the
a n t i c i p a t e d t h a t a b o u t 2,000 new
centres.
The
s t r u c t u r e c a n n o t be
j o b s w i l l be
the
j u d g e d due
lack of
to the
Particularly
are
generated
actual
the
follows:
while
concerned with reducing
the
number o f f o r e i g n e m p l o y e e s , t h e e m p l o y m e n t a g e n c y i n
is,
as b e f o r e ,
During
1973,
• 1,596
P r e s e n t l y , the
f o r e i g n workers were employed i n
restaurants
f o r the
first
time.
r e s t r i c t i v e p o l i c y o f f o r e i g n employment,
w h i c h makes i t s e l f
felt
i n the work p e r m i t
c a u s e o f some d i f f i c u l t i e s .
not u s u a l l y work a l l y e a r
t h e y m u s t o b t a i n a new
was
Kiel
i n t e r e s t e d i n r e t a i n i n g f o r e i g n workers.
Schleswig-Holstein
seasonal
by
employment
i n tourism,
p r o b l e m o f f o r e i g n e m p l o y e e s a p p e a r s as
employment r e g i o n s
According
communities, i t i s
a c t u a l e f f e c t s on
employment s t a t i s t i c s .
the
found i t
to develop a group of v a c a t i o n c e n t r e s .
t o s t a t e m e n t s o f r e p r e s e n t a t i v e s and
other
summer
t o i m p r o v e t h e e c o n o m i c s i t u a t i o n on
c o a s t , t h e c e n t r a l g o v e r n m e n t has
profitable
these
restaurants.
permits
Since
the
the
f o r e i g n workers
round i n t h e i r r e s t a u r a n t
labour permit
are not
act, i s
each season.
jobs,
These
u s u a l l y i s s u e d anymore.
made a t r e p l a c i n g p a r t o f t h e w o r k e r s w i t h
do
An
attempt
students.
However, t h e ' s i t u a t i o n w o r s e n e d f o r t h e t o u r i s t t r a d e .
was
thought t h a t p a r t of the necessary
r e p l a c e d by women o f t h e
r e g i o n , but
workers could
H o l s t e i n has
(26.8
per
Germany.
The
a relatively
cent)
This
number
low
be
here the problem
m o b i l i s i n g women c r e a t e d a m a j o r o b s t a c l e .
It
of
Schleswig-
e m p l o y m e n t r a t e f o r women
compared t o the F e d e r a l R e p u b l i c
i s p r i m a r i l y due
to t h e i r
of
lack of m o b i l i t y .
o f people employed i n l o c a l a u t h o r i t i e s i s
especially high
i n the
labour market d i s t r i c t
of K i e l .
Kiel
as t h e m a i n town i n a c o u n t y and has countless a d m i n i s t r a t i v e
and
This
university positions.
c o n c e n t r a t i o n on
H e r e , we
a d m i n i s t r a t i v e d u t i e s has
i n t h e m e a n t i m e , t o b r i n g on
The
u n i v e r s i t y and
employment.
a l s o f i n d many
strong
soldiers.
been
found,
labour market problems.
p u b l i c a d m i n i s t r a t i o n put
Even vacant p o s i t i o n s are
left
a freeze
open.
on
-
-
163
Our
f i n d i n g s a r e c o m p r i s e d on t h e b a s i s
on
economic development, so they can only
trends.
i n d i c a t e main
The e c o n o m i c s t r u c t u r e o f t h e l a b o u r
d i s t r i c t of Kiel differs
Federal
the
of s t r u c t u r a l data
Republic.
labour
crises.
considerably
from t h a t o f t h e
T h e m a n u f a c t u r i n g m o n o s t r u c t u r e makes
market p a r t i c u l a r l y
Many c o n s t r u c t i o n
i n the service sectors
vulnerable
to cyclical
f i r m s as w e l l as w o r k i n g
of tourism
f l u c t u a t i o n s , with which labour
continually.
lead t o strong
places
seasonal
a d m i n i s t r a t i o n has t o deal
A n u n e x p e c t e d r e d u c t i o n ' i n t h e number o f
employed p e r s o n s i n p u b l i c s e r v i c e and t r a d e
compensated f o r .
must a l s o be
I f we t a k e i n t o c o n s i d e r a t i o n
large decrease i n working places
i s bound t o o c c u r ,
we s e e t h a t
p r o b l e m s seem t o i n c r e a s e
1.3.
market
that a
i n shipbuilding industries
labour
administration's
continually.
Th§_§£^2£H£§_2^_yS§SEi2Y^Il§2£
Since
the beginning
ranging
o f 1975,
t h e unemployment r a t e i n K i e l -
f r o m 5.0 t o 6.5 p e r c e n t - l i e s
unemployment r a t e o f t h e F e d e r a l
above t h e average
Republic.
Every
second
u n e m p l o y e d p e r s o n i s an u n s k i l l e d o r a s e m i - s k i l l e d
worker.
M o r e t h a n 50 p e r c e n t o f t h e u n e m p l o y e d a r e women,
although t h e i r p o r t i o n i n the e n t i r e labour
low.
The l a c k o f s e c r e t a r i a l v a c a n c i e s
Every f i f t h
time job.
working place
i s e s p e c i a l l y grave.
o c c u p i e d b y a woman i s a p a r t -
The m a n u f a c t u r i n g i n d u s t r y
does n o t o f f e r p a r t - t i m e
jobs
i n the region
any l o n g e r ,
h a l f o f t h e u n e m p l o y e d women a r e l o o k i n g
The
of Kiel
b u t more t h a n
f o r such a job.
p r o b l e m o f unemployed y o u t h i s j u s t as d i f f i c u l t t o
solve.
do
force i s very
71.6 p e r c e n t o f a l l t h e u n e m p l o y e d b e y o n d
twenty
n o t have any v o c a t i o n a l t r a i n i n g .
Of t h o s e who a t t e n d e d
p r i m a r y s c h o o l , h a l f were d i s c h a r g e d
without a c e r t i f i c a t e .
Apprenticeships
Foreign
The
are impossible
workers create
to find
f o r such
people.
no m a j o r u n e m p l o y m e n t p r o b l e m s
r a t e o f u n e m p l o y e d f o r e i g n w o r k e r s comes .to
only
here.
-
3.6
per cent,
Republic
1-64 -
whereas t h e average r a t e f o r t h e F e d e r a l
l i e s ' b e t w e e n 9 p e r c e n t a n d 10 p e r c e n t .
number o f f o r e i g n w o r k e r s i n K i e l w i l l
because f i v e - s i x t h s
the
in
of a l l foreigners
Common M a r k e t , a n d w i l l
o b t a i n i n g work
decrease
do n o t b e l o n g t o
h a v e more a n d more
difficulty
permits.
O l d e r w o r k e r s c a n n o t be c h a r a c t e r i s e d
in
probably
The
the area o f K i e l ;
as a p r o b l e m g r o u p
t h e y a r e n o t as d r a m a t i c a l l y h i t w i t h
unemployment as t h e y o u t h .
o l d e r persons i s longer
The d u r a t i o n
than f o r other
o f unemployment o f
age g r o u p s .
Every
t h i r d p e r s o n o v e r 55 who i s u n e m p l o y e d h a s b e e n o u t o f
w o r k f o r more t h a n one y e a r .
1.4.
Labour_Market_Problems_of_the_Shipbuilding_IndustrY
A b o u t 9,000 p e r s o n s a r e w o r k i n g i n l a r g e s h i p b u i l d i n g f i r m s ,
and
a r o u n d 3,000 w o r k e r s a r e e m p l o y e d i n d e l i v e r y , f i r m s , f o r
dockyards.
in
Gathering
information
the shipbuilding industry
i nKiel
most o f t h e p e o p l e we s p o k e w i t h
not want t o g i v e
ing
e i t h e r could
detailed information.
staff reduction
According
impossible
situation
difficult;
not or did
Statistics
describ-
market o f K i e l
t h e s h i p b u i l d i n g and v e h i c l e
i n d u s t r i e s , so i t i s v i r t u a l l y
construction
t o g e t an i d e a o f
figures for the shipbuilding industry.
t o a n i n s t r u c t i o n a l mono from the N a t i o n a l Labour Board,
the
l o c a l agency i s n o t a l l o w e d
the
decreasing
industries.
t o show t h e f i g u r e s f o r
number o f e m p l o y e e s i n t h e s h i p b u i l d i n g
.Exact f i g u r e s are thus u n a v a i l a b l e .
placement agent r e s p o n s i b l e
for the occupational
s h i p b u i l d i n g t o l d us t h a t t h e r e
the
i s rather
t h e employment s t r u c t u r e i n t h e l a b o u r
group together
the
on t h e employment
number o f d i s m i s s a l s
The
groups i n
i s no u s e i n m e n t i o n i n g
from t h e dockyards.
- 165
Orders f o r merchant
Ecuador
reach
t h r o u g h May
b u i l t one q u a r t e r
Republic.
shipping
200 m i l l i o n
from Greece, Turkey
19 78.
I n 19 7 5 ,
o f the e n t i r e tonnage
I n F e b r u a r y 1976,
be t h e b i g g e s t
-
i n Europe)
and
Howaldtswerke
of the
Federal
a g i g a n t i c d r y dock
was
built
at a cost
(said
to
of
DM.
Of 9,000 p e r s o n s e m p l o y e d
work i n t h e p r o d u c t i v e
i n the Howaldtswerke,
sector.
I n 19 75 t h e
only
2,500
Howaldtswerke
had t o d i s m i s s
650 e m p l o y e e s
hiring
In the s h i p b u i l d i n g i n d u s t r y , i t i s t r a d -
firms.
itional
and c a n c e l l e d c o n t r a c t s
t o h i r e groups of workers
specialise
i n the supply
from p r i v a t e f i r m s ,
of short-term
labour.
w o r k e r s -are t e c h n i c a l l y t h e e m p l o y e e s
The
who
These
of the h i r i n g
firms.
e m p l o y m e n t a g e n t a t K i e l h a d no i d e a o f t h e e x t e n t
which t h e h i r e d workers were d i s m i s s e d ,
register with
located.
the labour
L a t e r on we
experts
crisis
we
as w o r k e r s
to
must
a g e n c i e s where the h i r i n g
firm i s
happened t o l e a r n t h a t about
temporary w o r k e r s were
All
with
2,000
dismissed.
interviewed
claimed
that a large
employment
seems t o be i n e v i t a b l e . According t o a statement o f the
departmental c h i e f f o r s h i p b u i l d i n g i n the m i n i s t r y o f economy/
Schleswig-Holstein,
f i r m s , who
c a n n o t compete w i t h
contractors w i l l
casted
the c r i s i s
w i l l h i t s m a l l a n d medium
the b i g f i r m s .
a l s o be h i t by t h i s
crisis.
t h a t o f 22,000 p e r s o n s e m p l o y e d
4,500 w i l l be d i s m i s s e d .
h a l f of this
f o r c e i s employed
a d m i n i s t r a t i o n w i l l h a v e much t o do.
dockers are not w i l l i n g
labour
in Kiel,
As
I t i s foreAs
almost
the
labour
i t i s known
t o change t h e i r o c c u p a t i o n s ,
a d m i n i s t r a t i o n w i l l be c o n f r o n t e d
problems.
sub-
i n shipbuilding in
Schleswig-Holstein,
labour
Small
with
that
the
enormous
-
2.1.
Economic_Structure_and_E
Freiburg_Ärea
The•employment o f f i c e
city
at Freiburg i s responsible
f o r the
as w e l l as c o u n t y o f F r e i b u r g and t h e c o u n t i e s o f
Mühlheim, Emmendingen,
Waldkirch
Thus, t h e employment o f f i c e
few
-
166
area
and T i t i s e e - N e u s t a d t .
of Freiburg
c a s e s where t h e b o r d e r s comply w i t h
In the north, the area
i s one o f t h e
those of the counties.
i s b o r d e r e d by t h e employment
office
of O f f e n b u r g , i n t h e e a s t by t h e employment o f f i c e o f
Villingen-Schwenningen,
office
o f Lörrach.
France.
and i n t h e south
I n the west l i e s
by t h e employment
the n a t u r a l border of
O r g a n i s a t i o n a l l y , t h e area-consists
o f t h e main
i n F r e i b u r g and t h e b r a n c h employment o f f i c e s
Waldkirch,
N e u s t a d t a n d Mühlheim.
The a r e a
office
i n Emmendingen,
covers
2,253 -sq. km. a n d i s a d m i n i s t r a t i v e l y r e s p o n s i b l e
f o r 72
communities.
The l a b o u r
office district
total population
of Freiburg
i s comprised of a
o f 491,882 o f whom 257,549 a r e f e m a l e .
A l m o s t 60 p e r c e n t o f a l l ' i n h a b i t a n t s l i v e w i t h i n t h e a r e a
of t h e main o f f i c e .
per
s q . km.;
The p o p u l a t i o n
i n Freiburg i t s e l f ,
q u o t e i s 44.7 p e r c e n t ,
higher
density
311.
i s 220 p e r s o n s -
The e m p l o y m e n t
34.7 p e r c e n t f o r women, w h i c h i s
than the f e d e r a l average.
The u n e m p l o y m e n t q u o t a o f
f o r e i g n w o r k e r s i s 10.4 p e r c e n t .
employees i n t h e i n d i v i d u a l
The d i s t r i b u t i o n o f
i n d u s t r i a l sectors
can be seen
i n T a b l e 2 (see next page).
A c o m p a r i s o n o f t h e employment d a t a
office d i s t r i c t with
of the Freiburg
t h o s e o f t h e FRG shows an
labour
over-
r e p r e s e n t a t i o n o f employment i n . t h e t e r t i a r y s e c t o r , and an underrepresentation
i n the manufacturing i n d u s t r i e s .
g e n c e i s n o t as s t r i k i n g
tertiary
is
s e c t o r c a n be e x p l a i n e d
a university city,
employed i n h o s p i t a l s .
centres
as t h a t o f K i e l .
of tourism,
employees as w e l l .
The
The d i v e r considerable
by t h e f a c t t h a t
Freiburg
a n d h a s a g r e a t number o f p e r s o n s
Since
Freiburg
and e n v i r o n m e n t a r e
t h e h o t e l and c a t e r i n g t r a d e s
h a v e many
-
-
167
Table
2
Employed Persons i n Percentage
I n d u s t r i a l Sectors
Sectors
Labour Market Region
of F r e i b u r g
Agriculture, Forestry,
E n e r g y and M i n i n g
Manufacturing
- machine
of
1.9
industries
35.1
19.0
building
- electronics industry
29.0
- chemical
17.0
-
industry
food
19.0
- a l l other
17.0
industries
9.1
construction
public sector
-
53.9
total
30.0
trade
- traffic,
- banks,
communication
8.0
7.0
insurance
- corporate counties •
12.0
- other p u b l i c sectors
38.0
- non-profit organizations'
5.0
Source:
BA
Employment S t a t i s t i c s
dated
30 Sep
1975
-
168
-
A t t h e e n d o f 1 9 7 5 , i n t h e c a t e r i n g t r a d e i t i n c r e a s e d by
8 per cent
c o m p a r e d t o 19 74.
manufacturing
However, most b r a n c h e s o f t h e
i n d u s t r i e s tend
to shrink, particularly the
e l e c t r o n i c a l i n d u s t r y , w h e r e manpower was r e d u c e d b y 11.2
per
c e n t b e t w e e n t h e e n d o f . 1974 a n d 1 9 7 5 .
f a c t that the e l e c t r o n i c a l
In spite of the
industry i n the Freiburg area i s
a l m o s t as e x t e n s i v e as t h e s h i p b u i l d i n g i n d u s t r y i n K i e l ,
the economic t e r r i t o r y
monostructural.
One r e a s o n
of the products
homogeneous
o f F r e i b u r g i s n o t c h a r a c t e r i s e d as
may be t h a t t h e m a n i f o l d
of the e l e c t r o n i c a l
than
nature
i n d u s t r y makes i t l e s s
the s h i p b u i l d i n g industry.
Moreover, i n
F r e i b u r g t h e r e e x i s t s no s u c h l a r g e e n t e r p r i s e s a s t h e
Howaldtswerks.
enterprises;
Freiburg c o n s i s t s mostly
of medium-sized
o n l y a f e w h a v e a s t a f f o f more t h a n
one
thousand.
2.2.
1
2SY§¿2Eí?SS£_2Í_2S§S}E¿2YíI §S£_§i222_I22^
U n t i l t h e employment c r i s i s
i n 1974, t h e unemployment
of t h e l a b o u r o f f i c e were a p p r o x i m a t e l y
average.
equal
t o the. f e d e r a l
The r e c e s s i o n d i d n o t / h o w e v e r , b r i n g a s t r o n g
employment d e c r e a s e t o t h e F r e i b u r g l a b o u r m a r k e t .
in
quotas
While
1975 t h e u n e m p l o y m e n t q u o t a was b e t w e e n 3.3 a n d 4.4 p e r
cent,
t h e c o m p a r a b l e f e d e r a l q u o t a was 1.5 t o 2.0 p e r c e n t
higher.
The y e a r l y a v e r a g e q u o t a f o r 19 76 i n c r e a s e d
somewhat.
F r e i b u r g has a monthly average o f unemployed o f
3,347 p e r y e a r ,
Kiel.
i . e . , a l m o s t 1,000 p e r s o n s more t h a n i n
The c o m p a r i s o n o f t h e q u o t a s f o r t h i s
accession
shows
t h a t h i g h u n e m p l o y m e n t q u o t a s do n o t n e c e s s a r i l y i n d i c a t e a
high work-load
of the labour o f f i c e .
The v a r i o u s
i n d i c a t o r s w i l l be d i s c u s s e d - a g a i n i n t h e c o n t e x t
activities
of the labour
work-load
of the
office.
Considering the composition
o f u n e m p l o y m e n t , we c a n s e e
s i m i l a r i t i e s between t h e s i t u a t i o n s
i n Kiel
and F r e i b u r g .
-
The
r e s u l t s o f t h e s p e c i a l s u r v e y o f May 19 76
s e r v e as a c o m p a r i s o n .
registered.
unemployed persons
Among t h e u n e m p l o y e d
women w e r e o v e r - r e p r e s e n t e d :
was
employees,
53 per cent.
While
a l l unemployed, t h e group from
h i t most s e v e r e l y .
Almost
to this
20 t o 34 y e a r s o f age
50 p e r c e n t o f a l l
group.
However, i t must be
added t h a t t h i s
group has b e t t e r chances to.be
in labour
than o l d e r people.
Almost
unemployed were s o f o r h e a l t h r e a s o n s ,
professional education.
academics
reintegrated
a quarter of the
48 p e r c e n t h a d no
The p r o p o r t i o n o f unemployed
(10 p e r c e n t o f a l l u n e m p l o y e d ) i s c o n s i d e r a b l e .
number o f u n e m p l o y e d f o r e i g n w o r k e r s
t h e i r s h a r e i n t o t a l employment.
of
juveniles
20 y e a r s o f age) f o r m e d a s h a r e o f o n l y 8 p e r c e n t
unemployed b e l o n g e d
The
were
47 p e r c e n t o f a l l u n e m p l o y e d h a d b e e n i n
employees p o s i t i o n s .
(below
again
A t t h e e n d o f May 1 9 7 6 , 59 p e r c e n t
m a l e a n d 41 p e r c e n t f e m a l e
of
-
169
corresponds t o
While a t the beginning
t h e r e c e s s i o n t h i s group w a s ' e s p e c i a l l y s e v e r e l y
a f f e c t e d , t h e s e f i g u r e s h a v e n o r m a l i s e d , m a i n l y due t o
emmigration.
Special d i f f i c u l t i e s
i n j o b placement
arise
s e e k i n g women who a r e n o t r e g i o n a l l y
mobile.
c e n t o f a l l women a r e b o u n d t o f a m i l i e s .
are r e s t r i c t e d
hours.
of
i n their mobility
are very small.
a professional education.
time work.
before.
Almost
45.
Consequently,
Thus, t h e i r
chances
one t h i r d d e s i r e
part-
professionally
T h e f a c t t h a t 89 p e r c e n t r e c e i v e d u n e m p l o y m e n t
shows t h a t t h e i r
a f f i r m e d by t h e l a b o u r o f f i c e
availability i s
of Freiburg, i n spite of
exclusive desire for part-time jobs.
the case
they
54 p e r c e n t do n o t h a v e
13 p e r c e n t n e v e r h a d w o r k e d
benefits or aid clearly
their
86 p e r
as w e l l as i n w o r k i n g
23 p e r c e n t a r e o l d e r t h a n
j o b placement
for job-
i n other labour
offices.
This i s not
-
3.
Comparison
o f Two
The
two s e l e c t e d
l a b o u r market
in a city
Regions
r e g i o n s are comparable
Both r e g i o n s have a
p o p u l a t i o n o f j u s t under
live
-
Labour Market
t h e f o l l o w i n g ways : ^
majority
170
500,000.
agricultural region with small villages
l e s s than
10,000 i n h a b i t a n t s .
employed persons
office
clients
s u r r o u n d e d by
and t o w n s ,
i s t h e same i n b o t h r e g i o n s .
with
labour
Looking at
i n the d i f f e r e n t
industrial
from the F e d e r a l
R e p u b l i c ' s averages w i t h r e s p e c t t o d i s t r i b u t i o n .
r e g i o n s , the percentage o f employed persons
i s below
an
A l o o k a t t h e number o f
s e e t h a t both" r e g i o n s d i f f e r
ing industries
the
shows t h a t t h e number o f p o t e n t i a l
the f i g u r e s o f employed persons
s e c t o r s , we
total
In both regions,
o f medium s i z e ,
in
In both
i n manufactur-
t h e n a t i o n a l average, whereas
the
p o r t i o n o f t h o s e e m p l o y e d i n t h e p u b l i c s e c t o r i s much
higher than the n a t i o n a l average.
Kiel
c a n be r e g a r d e d
as
a m o n o s t r u c t u r e d r e g i o n , w h e r e more t h a n 30 p e r c e n t o f
all
those employed i n the secondary
shipbuilding industry.
The
sector belong to the
same h o l d s t r u e f o r F r e i b u r g ,
w h e r e 29 p e r c e n t a r e e m p l o y e d i n t h e e l e c t r o n i c s
The
difference
lies
i n the-fact that i n Kiel,
industry.
another ten
p e r c e n t i s d e p e n d e n t on s h i p b u i l d i n g i n t h a t t h e y w o r k i n
supplying industries.
With r e s p e c t t o a rough
employment
s t r u c t u r e t h e r e a r e no g r e a t d i f f e r e n c e s between the two regions.
The
unemployment f i g u r e s , however, d i f f e r w i d e l y .
Whereas
K i e l h a s r e g i s t e r e d an u n e m p l o y m e n t r a t e a b o v e t h e
a v e r a g e , i n F r e i b u r g t h e r a t e has
average.
T h u s we
a n a l y z e d one
w o r k l o a d and a n o t h e r w i t h a
(1)
remained below
federal
the
federal
labour o f f i c e with a high
'normal'
workload.
Sometimes, e m p i r i c a l r e s u l t s of the l a b o u r admini s t r a t i o n i n Bremen h a v e b e e n a d d e d .
These f i n d i n g s
a r e t h e r e s u l t o f a one-week s t a y i n B r e m e n , w h e r e I
a c c o m p a n i e d K e n n e t h H a n f , who, t o g e t h e r w i t h Benny
H j e r n and D a v i d P o r t e r , i s c o n d u c t i n g c o m p a r a t i v e
r e s e a r c h on l a b o u r m a r k e t p o l i c i e s o f Sweden and
Germany.
-
-171
Table 1
Information on the sample of terms f o r the Employers' Interviews
Secondary Sector Including Construction
Kind of .
Production
firm
Number of
persons
Structure of
employment
employed
1.
record players
radios
1,000
55% male workers
mostly s k i l l e d
45% u n s k i l l e d women
piecework
2.
bread and
bakers s goods
70
20% s k i l l e d workers
80% u n s k i l l e d
telephone
systems,
heating plants,
1,600
350 s k i l l e d workers
50% male,
50% female workers
1
3.
-
air conditioning
systems
4.
electronics
instruments
1,100
50% men
50% women mainly
q u a l i f i e d workers.
30% foreign workers
5.
shipbuilding
7,975
70% workers
30% employees
380 persons i n t r a i n i n g
transistors
1,700
80% women u n s k i l l e d
or semi s k i l l e d
60% foreign workers
piece work
- -
6.'
*>
7.
alcoholic
220
80 u n s k i l l e d workers
140 employees
beverages
8.
shipbuilding
480 •
65% workers
35% employees
?.
navigation
instruments f o r
m i l i t a r y use
680
50% u n s k i l l e d women,
15% technical engineers
10.
yarns and
textile
1,625
75% u n s k i l l e d women,
35% foreigners,
piecework
11.
chemical f i b r i n
2,700
75% u n s k i l l e d women
25% foreigners, s h i f t
work
12-15. Four d i f f e r e n t
construction
firms
underground
and surface
engineering
1,300
200
110
60
95% s k i l l e d workers
5% u n s k i l l e d workers
- 172 T e r t i a r y Sector
Name of the
. firm
Kind of
Production
Number of
Structure of employment
persons
employed
1.
department
store
514
75% s e l l i n g s t a f f
s k i l l e d employees
2. .
department
store
700
90% s k i l l e d employees
3.
department
store
950
66% s e l l i n g s t a f f
4.
chain of
food shops
2,500
5.
...
sale of•
. beverages
70
mostly semiskilled
staff
50% d r i v e r s
6.
hospital
5,000
1,400 nursing s t a f f
700 physicians
600 technical service
400 administration
staff
900 workers
7.
hospital
145
8.
hospital
3,100
1,000
580
670
850
1,850
900 o f f i c i a l s
800 employees
150 workers
12 physicians
60 nursing s t a f f
nursing s t a f f physicians
workers
employees
9.
•
university
10.
.
bank •
680
80% bank o f f i c i a l s
20% semi-skilled
employees
11. '
bank:
205
20% bank o f f i c i a l s
80% semi-skilled
employees
12. .••
department
store
1,100
700 s e l l i n g s t a f f
75% female s t a f f
13.
department
store
1,100
800 'selling s t a f f
85% female s t a f f
14.
insurance
company
350
90% clerks
50% male s t a f f .
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für A r b e i t : D i e S e l b s t v e r w a l t u n g d e r B u n d e s a n s t a l t für A r b e i t , B e i l a g e zum Geschäftsb e r i c h t 1 9 6 9 , Nürnberg 1969
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G a u g i e r , E.:
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Das
Internationale
Wie
alle
Institut
für M a n a g e m e n t und. V e r w a l t u n g
I n s t i t u t e des Wissenschaftszentrums.Berlin
das IIMV
betreibt
problemorientierte•sozialwissenschaftliche-Forschung
i n Themenbereichen,.
einzelnen
Landes
deren Bedeutung
hinausreicht..
über d i e G r e n z e n
eines
I n s b e s o n d e r e befaßt s i c h d a s
I n s t i t u t m i t der I n t e r a k t i o n von-Staat-und Wirtschaft-im
der
(IIMV)
Industriepolitik,
Bereich
indem.-es . g l e i c h z e i t i g - d i e B e d i n g u n g e n
und
Handlungsmöglichkeiten a u f d e r p r i v a t w i r t s c h a f t l i c h e n w i e a u f
der p o l i t i s c h - a d m i n i s t r a t i v e n • S e i t e - a n a l y s i e r t .
I n d i e s e m Rahmen u n t e r s u c h e n . , die.. d r e i " i n d u s t r i e p o l i t i s c h e n
Forschungsschwerpunkte Arbeitsmarktpolitik., r e g i o n a l e
politik
und s e k t o r a l e
Strukturpolitik;
Forschungsschwerpunkte
Die-drei
-
erarbeiten-die notwendigen
Struktur-
anderen
Erkenntnisse
z u E n t w i c k l u n g e n - . u n d - P r o b l e m e n , i n I n d u s t r i e - r und.-. D i e n s t l e i s t u n g s
Sektoren
(Industriestruktur) -zu-den- internen. Strukturen
f
und
E n t s c h e i d u n g s p r o z e s s e n . in. einzelnen'Unternehmen, und O r g a n i sationen
(Organisation
Bedingungen,
wird
Die
(Politik
u n t e r , denen. P o l i t i k - e n t w i c k e l t
und-durchgeführt
und'Verwaltung) .
vorliegende
Politik
u n d . M a n a g e m e n t ) - u n d zu. d e n s t r u k t u r e l l e n
A r b e i t i s t i m Rahmen'des F o r s c h u n g s s c h w e r p u n k t s
und V e r w a l t u n g .
The I n t e r n a t i o n a l
Like
I n s t i t u t e o f Management-(IIM)
a l l I n s t i t u t e s of the Wissenschaftszentrum B e r l i n , IIM i s
-
engaged i n s o c i a l s c i e n c e
research oriented
w h i c h a r e common t o h i g h l y
i n d u s t r i a l i z e d countries.
f o c u s s e s on t h e r e l a t i o n s between p u b l i c
management b y a n a l y z i n g
towards problems
and p r i v a t e
the s p e c i f i c conditions
f o r i n d u s t r i a l p o l i c y on e i t h e r
IIM '
sector
and-restrictions
side.
W i t h i n t h i s f r a m e w o r k , r e s e a r c h is., m a i n l y c o n c e r n e d , w i t h - p r o b l e m s
o f L a b o u r M a r k e t P o l i c y , R e g - i o n a i . and.. A g g l o m e r a t i o n s - P o l i c y a s
well
as S e c t o r a l . I n d u s t r i a l P o l i c y .
In. c o o p e r a t i o n w i t h
I n d u s t r i a l P o l i c y groups three.research-areas
of:
-
emphasize studies
-
The. d y n a m i c s and-- p e r f o r m a n e e: o f m a n u f a c t u r i n g a n d • s e r v i c e
sectors
(Industrial/Organization).; . the organizational
and. d e c i s i o n
processes^ within, i n d i v i d u a l firms
(Organization
(Government and P u b l i c
and.-organizations
-
f o r m u l a t e d . and.
implemented
Administration).
T h i s paper has been produced i n ' I I M ' s
Public
structure
and: M a n a g e m e n t ) ,- a n d - o f - t h e p o l i t i c o - a d m i n i s t r a t i v e
systems through which.-policies-are
and
these
Administration.
r e s e a r c h a r e a Government