Rpportens tittel Eventuell Evlution undertittel of EURES Norwy 2007-2010 Rpport 2010 - xx Rpport 2010-04
Prob-report nu. 04-2010, Project nu 933. ISSN: 1891-8093 KAL/AUG, 24. september 2010 Report 2010-04 Evlution of EURES Norwy 2007-2010 Commissioned by NAV EURES Norwy Prob reserch AS Øvre Vollgte 6, N-0158 Oslo, Norwy. http://www.prob.smfunnsnlyse.no
Prefce This is n evlution of the ctivities nd results chieved in the implementtion of EURES Norwy during the period 2007-2010. The evlution hs minly been crried out My-August 2010. Knut Arild Lrsen t Prob hs been responsible for the evlution. Lrs-Erik Becken Prob Reserch
Tble of Contents: PREFACE... 3 TABLE OF CONTENTS:... 4 SUMMARY... 5 1 INTRODUCTION... 7 1.1 Purpose... 7 1.2 Method... 8 2 POLICY OBJECTIVES IN THE FIELD OF EMPLOYMENT... 10 2.1 The common Europen lbour mrket... 10 2.1.1 Min objective... 10 2.1.2 Influx of lbour to Norwy... 10 2.1.3 The contribution of EURES... 14 2.1.4 Conclusions... 17 2.2 Trnsitionl mesures... 18 3 EURES GUIDELINES 2007-2010... 20 3.1 Introduction... 20 3.2 Presenttion of the guidelines... 20 3.3 Activity Pln 2007-2010... 21 3.3.1 Introduction... 21 3.3.2 Administrtive informtion... 22 3.3.3 Priority 1: Contribute to politicl objectives... 23 3.3.4 Priority 2: Step up the minstreming of EURES in PES... 24 3.3.5 Priority 3: Improve the profiling of EURES... 26 3.3.6 Priority 4: Enhnce the visibility of services... 29 3.3.7 Priority 5: Improve the collection of strtegic dt... 31 3.3.8 Priority 6: Estblish contcts with specific groups of stkeholders... 33 3.3.9 Priority 7: Improve trnsprency... 36 3.3.10 Priority 8: Improve the qulity of informtion... 37 3.3.11 Priority 9: Identify lbour shortges... 38 3.3.12 Priority 10: Develop cross-border ctivities... 41 3.3.13 Humn nd finncil resources needed... 44 3.3.14 Conclusions... 45 4 CUSTOMER-RELATED SERVICES OF EURES... 46 4.1 Introduction... 46 4.2 Qulity of services to employers... 47 4.3 Qulity of services to jobseekers... 48 4.4 The service delivery structure... 48 4.5 Common ctions... 49 4.6 Resources... 49 5 EURES COMMUNICATION MEASURES ON NATIONAL LEVEL... 50 5.1 Introduction... 50 5.2 Implementtion of the strtegy... 51 5.3 Visibility nd relevnce... 52 5.4 Efficiency... 54 REFERENCES... 55
Summry Abstrct EURES (EURopen Employment Services) is coopertion between EU/EEA countries, Switzerlnd nd the Europen Commission. The coopertion is designed to promote the free movement of workers within the EU/EEA. In Norwy, EURES is n integrted service within the Norwegin Lbour nd Welfre Administrtion (NAV). This study is n evlution of the ctivities nd results of EURES Norwy in the period 1 April 2007 31 Mrch 2010. The impct of EURES hs prtly been to fcilitte lbour immigrtion through better informtion nd ssistnce in serching for lbour brod nd jobs in Norwy. In ddition EURES hs probbly directed the immigrtion more to the needs of Norwegin employers, nd the needs cross broder spn of different occuptions nd sectors in the economy. Bckground EURES (EURopen Employment Services) is coopertion between EU/EEA countries, Switzerlnd nd the Europen Commission. The coopertion is designed to promote the free movement of workers within the EU/EEA. In Norwy, EURES is n integrted service within the Norwegin Lbour nd Welfre Administrtion (NAV). EURES dvisers nd other NAV employees working prtly or entirely on EURES mtters, re distributed cross ll regions of Norwy, nd re locted with NAV offices in municiplities nd urbn res. The EURES Guidelines instruct the EURES Members to estblish ctivity plns for 2007-2010, nd to evlute the implementtion of the pln. Problem This study is n evlution of the ctivities nd results of EURES Norwy in the period 1 April 2007 31 Mrch 2010. Conclusions In 2007-2009 Norwy hd substntil influx of lbour from brod, especilly from the new EU member sttes from Centrl nd Estern Europe nd from some other Scndinvin countries. The immigrnts mde substntil contribution to the Norwegin economy, both s n dded input in production nd by preventing bottleneck problems in the lbour mrket in remrkble period of economic growth in the country. In the evlution period, Norwy hs experienced lower unemployment thn other Europen countries, nd the number of vcncies hs remined on very high level. The min tsk of EURES Norwy therefore hs been to ssist in the recruitment of lbour to Norwy from other EU/EEA-countries. Due to low unemployment nd plenty of vcncies, the interest of Norwegins for working brod hs been low during the evlution period. EURES Norwy hs plyed role s provider of informtion bout recruiting from brod nd getting job in Norwy nd by ssisting employers in recruiting from brod. However, few employers cknowledge hving received ssistnce from EURES in their recruitment. Becuse EURES role my not be fully pperent to the employers, we think these observtions understtes EURES role. EURES reports substntil contct with jobseekers nd employers. EURES hndled more thn 50 000 contcts with jobseekers nd lmost 28 000 contcts with employers in 2008. EURES services lso led to job plcements in Norwy in the order of 2 000 persons per yer. The impct of EURES on the immigrtion to Norwy 2007-2009 is difficult to mesure. Lbour migrtion between the Nordic countries hs long trdition. As erly s 1954 the Nordic countries entered forml greement on free lbour mobility, followed by movements cross 5
the borders in ccordnce with the development in differences between the countries in unemployment nd the number of vcncies. Sesonlly short term immigrtion of Poles is not new phenomenon either. The study does not mesure the impct of EURES on the immigrtion figures. The impct of EURES hs prtly been to fcilitte immigrtion through better informtion nd ssistnce in serching for lbour brod nd nd jobs i Norwy. In ddition EURES hs probbly directed the immigrtion more to the needs of Norwegin employers, nd the needs cross broder spn of different occuptions nd sectors in the economy. The EURES Guidelines for 2007-2010 specifies 37 expected ctions nd results to meet 10 priorities. Of these 37 ctions nd results, EURES Norwy hs implemented 32. One of the five remining expected ctions/results re not relevnt becuse Norwy is not member of EU. Another remining ction/result is consequence of decision of EURES coordintion office to limit EURES services to EU/EEA countries. EURES hs implemented long list of ctivities in order to meet the EURES Guidelines. In the nnul budgets this list hs been chnged somewht, djusted to the development in the lbour mrkets in the EU/EEA countries nd to budgetry restrictions. Nevertheless, these ctivities ll together hve given n impressive contribution to fcilitting lbour mobility between Norwy nd other EU/EEA countries in the evlution period. 6
1 Introduction 1.1 Purpose EURES (EURopen Employment Services) is coopertion between EU/EEA countries, Switzerlnd nd the Europen Commission. The coopertion is designed to promote the free movement of workers within the EU/EEA. In Norwy, EURES is n integrted service within the Norwegin Lbour nd Welfre Administrtion (NAV). The centrl mngement of EURES Norwy is locted t the Directorte of Lbour nd Welfre, which is the top level of NAV. EURES dvisers nd other NAV employees working prtly or entirely on EURES mtters, re distributed cross ll regions of Norwy, nd re locted with NAV offices in municiplities nd urbn res. This study is n evlution of the ctivities nd results of EURES Norwy in the period 1 April 2007 31 Mrch 2010. Activities nd results re ssessed ginst policy objectives in the field of employment nd the objectives nd priorities set in the EURES guidelines 2007-2010. The terms of reference of the evlution: 1 Assess the contribution of EURES to the policy objectives in the field of employment. Identify nd ssess the dded vlue of EURES to exercising the right for free movement of lbour nd to the cretion of common Europen lbour mrket; Assess if nd how the trnsitionl mesures on free movement imposed by some EU Member Sttes hve impcted EURES; Identify nd ssess the contribution of EURES to the objectives of the Europen Employment Strtegy nd to the flexicurity pproch in prticulr with regrd to the mngement of trnsitions. 2 Assess the implementtion of objectives nd priorities set in the EURES guidelines 2007-2010 in view of the business model of the EURES member nd the incresed focus on resultoriented ctivities. Assess to wht extent the objectives nd priorities for the period 2007-2010 (to the extent possible) hve been chieved nd identify the reson for possible shortcomings; Anlyse to which extent the minstreming of EURES services in the Public Employment Services (PES) throughout the EU/EEA territory hs been chieved. Prticulr ttention should be given to the following spects: mngement systems for EURES within PES, lloction of resources to EURES, EURES trget-setting, monitoring systems nd performnce indictors integrted in the PES system, if the vrious forms of mobility nd EURES services hve been stndrd issue rised during first contcts between PES nd jobseeker, frequency nd content of the in-house informtion nd communiction on EURES within PES vis-à-vis the employment dvisers, involvement of PES in the opertions nd mngement of the EURES crossborder prtnerships; Hs the shift to results-oriented ctivities been properly implemented by EURES members? Do the monitoring nd performnce mesurement systems of EURES members nd prtners llow for systemtic retrievl of strtegic dt of both quntittive nd qulittive nture? Describe the strtegic dt collected by the EURES member nd prtners nd quntify the number of EURES clients per yer, nd estimte in n pproprite scientific lible model the min quntittive nd qulittive results in terms of plcements, informtion provision nd dvice on ggregte level. 7
3 Assess the qulity of the customer-relted services of EURES. Assess the progress mde with the multi-chnnelling delivery of EURES services with prticulr focus on the ntionl level (kiosks, Websites including instlled dtbses/exchnge systems); To which extent hve the scope nd qulity of services given by the EURES network to employers been intensified, which type of services re minly offered nd how is the stisfction of employers with the services offered by the EURES members/prtners; Assess the qulity of the informtion products for jobseekers/job chngers nd the dvice given by EURES dvisers; determine the stisfction of EURES clients in the different EUMS with the services provided; Assess to which extent the current service delivery structure is dequte to fulfil the defined tsks; identify good prctices nd mke proposls for further improvement; Assess to which extent the EURES network co-opertes with other Commission informtion networks nd/or progrmmes nd identify possible res for further common ctions; Assess whether enough resources re devoted to customer-relted services both on ntionl, regionl, locl nd cross-border level. 4 Assess the qulity of the EURES communiction mesures on ntionl level. Assess to which extent the EURES informtion nd communictions strtegy hs been properly implemented on ntionl nd cross-border level; Assess the visibility of EURES for the min trget groups, ssess the relevnce of the messges nd communiction chnnels for the min trget groups; Assess the efficiency nd effectiveness of the communiction mesures on ntionl nd cross-border level. 1.2 Method The method hs been to survey the ctivities of EURES Norwy during the period 1 April 2007 31 Mrch 2010 nd mtching them to the objectives nd priorities set by EURES. collect dt on the results of the ctivities. interview persons who hve been prt of the mngement of EURES Norwy during the evlution period. interview 10 of the Norwegin EURES dvisers who hve been in their positions during the evlution period. The interviews with the EURES dvisers hve been conducted by phone. In ddition, ech dviser in retrospect hs completed sheet detiling time use in 2007, 2008 nd 2009 relted to EURES. We hve surveyed number of EURES ssistnts vilble in the re of responsibility, trining, full time or prt time, contcts with Norwegin employers, types of employers nd lbour, feed-bck from employers nd jobseekers, nd potentil for improvements. We present the results in the relevnt prts of the following evlution. The dviser s verge time use for 2007, 2008 nd 2009 is presented in Tble 1.1. The min sources for the ctivities nd results hve been: Annul reports for 2007 (01.04.07 31.03.08), 2008 (01.04.08 31.03.09), nd 2009 (01.04.09 31.05.10). Grnt Agreement VS/2007/0086, Grnt Agreement VS/2008/0030, Grnt Agreement VS/2009/0209, nd Addendum to Grnt Agreement VS/2010/0353. Finl report from EURES Norwy for 2007, 2008 nd 2009. The interviews with EURES Norwy mngement nd the EURES dvisers. 8
Monthly reports to EURES coordintion office (EURESco) on contcts nd plcements. Studies on employment of personnel from EU/EEC, by the nlysis compny Perduco. Sttistics Norwy. NAV Lbour Mrket Sttistics. Norwegin Directorte of Immigrtion. We hve not hd ccess to reports nd monthly surveys on the Europen Job Mobility Portl. However, some of the mteril hs been vilble on prints. The reporting on the ctivities of EURES Norwy could hve been more systemtic, with clerer clssifiction of ctivities nd better indictors on results. Tble 1.1 Estimted percentge shres of totl working hours 2007-2009. EURES dvisers GENERAL 26 Trining 6 Prticiption in trining/own trining 3 Trining of EURES ssistnts 3 Communiction 20 Medi contct 2 Writing rticles for EURES News nd other publictions 1 Lectures/presenttions 8 Inform bout EURES internl in NAV 6 Reporting upwrds in NAV 3 RECRUITMENT/PLACEMENT SERVICES 70 Influx of lbour, plcements in Norwy 45 Contcts with jobseekers from brod 14 Contcts with Norwegin employers 19 Job firs brod 12 Plcements brod 9 Contcts with Norwegin jobseekers 5 Contcts with employers brod 2 Job firs in Norwy 2 Contcts 16 Contcts with NAV collegues outside EURES 7 Contcts with EURES collegues brod 9 OTHER ACTIVITIES 5 Totl 101 Source: Prob interviews with 10 Norwegin EURES Advisers 9
2 Policy objectives in the field of employment 2.1 The common Europen lbour mrket 2.1.1 Min objective Free movement of persons is one of the fundmentl rights ensured in the Trety of Rome. However, the levels of intr-europen mobility of lbour hve remined low, e.g. compred to the US. The Lisbon Europen Council in 2000 recognised tht the right to freedom of movement is not enough to crete mobility. A more ctive pproch ws needed. The min objective ws therefore brodened to encompss fcilittion nd promotion of the ctive usge of the right of freedom of movement nd professionl mobility. In the revised Lisbon Strtegy (2005) occuptionl nd geogrphicl mobility is viewed s tool to chieve the politicl gol of knowledge-bsed economy cpble of sustinble economic growth with more nd better jobs nd greter socil cohesion. An obstcle to mobility hs been frgmenttion of informtion nd the lck of trnsprency of job opportunities cross Europe. In the so-clled Action pln for skills nd mobility (2002), one of the inititives ws to estblish one-stop mobility informtion site, nd modernise nd integrte the Europen mobility network (EURES) into the Member Sttes employment services. In 2003, the Europen Job Mobility portl ws lunched. In 2006 new version of the EURES Job Mobility portl ws relesed. Lter further developments hve been crried out. Other chllenges for EURES hve been to instill genuine mobility culture mong the lbour community in Europe nd to contribute to diminishing the disprities in lbour shortges nd unemployment between countries. Norwy is not member of the EU but included in the free lbour mrket nd the EURES network through membership in the Europen Economic Are (EEA). 2.1.2 Influx of lbour to Norwy In this chpter the im is to identify nd ssess the dded vlue of EURES Norwy to exercising the right for free movement of lbour nd to the cretion of common Europen lbour mrket. We will show how the mobility hs developed in the evlution period 2007-2009 between Norwy nd the rest of the EU/EEA countries nd try to illustrte the role of EURES. From 2004 to 2009 the level of the Norwegin resident employment incresed by lmost 10 per cent, see Figure 2.1. Without substntil influx of lbour from brod, tightening of the economic policy hd been necessry. In the period 2007-2009, non-residents (plnning to sty for less thn six months. Note tht only figures for 2007-2009 re vilble) from EU/EEA-countries, counted for more thn 100 000 extr wge erners ech yer, which is more thn 4 per cent of the totl employment ech yer. In 2008 the figure ws lmost 5 per cent. Most of them cme from the other Nordic countries nd from the EU countries in Estern Europe. In ddition mny immigrnts becme residents nd re included in the growth in resident employment. 10
Figure 2.1 Employment 2004-2009. 1000 persons 1) 3000 Residents Non-residents from EU/EEA (2007-2009) 2500 2000 1500 1000 500 0 2004 2005 2006 2007 2008 2009 1) Residents: Wge erners ged 16-74, registered s resident in Norwy. Source: Lbour Force Survey, Sttistics Norwy. Non-residents from EU/EEA (2007-2009): Wge erners not registered s resident ged 15-74. Country of birth in EU/EEA-countries outside Norwy. Source: Employment nd unemployment mong short term immigrnts. Sttistics Norwy. Figure 2.2 Vcncies by the end of the month. Yerly verge 2004-2009. 1000 vcncies 1) 30 25 20 15 10 5 0 2004 2005 2006 2007 2008 2009 1) Comprises vcncies reported to the NAV offices loclly, registered t the internet service nv.no nd vcncies dvertised in the medi. Source: Norwegin Lbour nd Welfre Administrtion (NAV). 11
The growth in the number of jobs led to strong increse in vcncies, see Figure 2.2. The yerly verge of the monthly vcncy figures incresed from 11 000 in 2004 to 27 000 in 2008. In 2009 the number declined to 24 000, which is still high figure, lmost on pr with 2007. The number of vcncies in the first qurter of 2010 is up nd close to 27 000. The unemployment rte bsed on registered unemployment (NAV) fell to 1,5 per cent in My nd June 2008. The verge for 2008 ws 1,7 per cent, the lowest since 1987. The unemployment strted to increse in the lst qurter of 2008 nd through 2009 nd stood t 3.1 per cent in Mrch 2010. The LFS unemployment rte is somewht higher thn the NAV rte every month, but show roughly prllel development, see Figure 2.3. Figure 2.3 Unemployment 2004-2009. Per cent of the lbour force 5 4,5 LFS 4 3,5 3 NAV 2,5 2 1,5 1 0,5 0 2004 2005 2006 2007 2008 2009 2010 1) LFS: Persons ged 16-74, sesonlly djusted monthly figures, 3 months moving verge. Source: Lbour Force Survey, Sttistics Norwy. NAV: Registered unemployed persons t the locl NAV offices by the end of ech month, s per cent of the lbour force. Source: Norwegin Lbour nd Welfre Administrtion (NAV). In the evlution period, Norwy hs experienced lower unemployment thn other Europen countries, nd the number of vcncies hs remined on very high level. The min tsk of NAV EURES hs therefore been to ssist in the recruitment of lbour to Norwy from other EU/EEA-countries. Due to low unemployment nd plenty of vcncies, the interest of Norwegins for working brod hs been low during the evlution period. The interviews with the EURES dvisers (see Tble 1.1) show tht on verge, bout 45 per cent of their time ws used in recruitment/plcement ctivities of this kind; direct contct with Norwegin employers in need for lbour (19 per cent), direct contct with jobseekers from brod (14 per cent) nd prticipting in job firs brod (12 per cent). A survey mong 2000 Norwegin compnies show tht in the second qurter of 2006 more thn 25 per cent of them hd used lbour from EU/EEA-countries outside Norwy the lst 12 months. The compreble figures for 2007 nd 2008 were 31 nd 35 per cent. See Figure 2.4. For 2009 the survey lso includes public employers. Figure 2.5 shows tht lso public employers hve used foreign lbour from EU/EEA-countries, nd to greter extent thn privte employer. 12
Figure 2.4 Shre of Norwegin compnies hving used lbour from EU/EEA-countries outside Norwy the lst 12 months. 2006-2009 40 35 30 25 20 15 10 5 0 Q2 06 Q4 06 Q2 07 Q4 07 Q2 08 Q4 08 Q2 09 Q4 09 Source: Perduco. Figure 2.5 Shre of Norwegin employers hving used lbour from EU/EEA-countries outside Norwy the lst 12 months. Privte nd public sector. 2009 45 40 Q2 09 Q4 09 35 30 25 20 15 10 5 0 Privte Public Source: Perduco. 13
Figure 2.6 Employees in temporry work gencies with country bckground from brod. Registered or not registered s residents in Norwy. 1000 persons. 2004-2007 20 18 16 Residents Non residents 14 12 10 8 6 4 2 0 2004 2005 2006 2007 Source: Register dt from Sttistics Norwy nd Rpport 2009-083 on Bemnningsbrnsjen. Struktur, utvikling og rolle, Econ Pöyry. Temporry work gencies ccount for lrge prt of the immigrtion to Norwy during the period 2004-2009. Figure 2.6 shows tht n incresing number of both resident nd non resident persons with country bckground from brod re employed by such gencies from 2005 to 2007. This increse hs probbly continued into 2008, but updted figures re not vilble. These gencies re importnt customers for NAV EURES. 2.1.3 The contribution of EURES It is difficult to sy wht impct EURES hs hd on the recruitment of lbour to Norwy from other EU/EEA countries. Figure 2.7 nd Figure 2.8 shows which chnnels for recruiting lbour the employers hve used. Only employers hving used lbour from EU-countries the lst 12 months re sked this question. NAV EURES does not get high score in these figures. For privte compnies only the use of foreign temporry work gencies hs lower score. For public employers only buying services hs lower score. One reson for the low score my be tht when EURES Norwy ssists jobseekers from brod in pplying on job dvertisements from Norwegin employers, or jobseekers from brod pply on vcncies they find on NAV EURES internet sites, the employer will probbly often nswer tht n dvertisement ws the chnnel, not EURES. In Norwy the job dvertisements in medi to lrge extent is registered by NAV in the NAV vcncy dtbse. The employer will therefore often not know tht NAV EURES ws involved. Another reson is tht some of the EURES services re directed towrds the temporry work gencies, which re importnt customers for EURES. The employers will in such cses probbly nswer tht the gency is their chnnel. It is thus likely tht EURES hs lrger impct thn the two figures indicte. 14
Figure 2.7 Shre of privte compnies hving used different chnnels for recruiting from EU-countries. 2009. Bsis: Users of lbour from EU-countries lst 12 months 1) 90 80 Q2 09 Q4 09 70 60 50 40 30 20 10 0 Own network Norwegin TWA Advertisements Buying services Foreign TWA NAV EURES 1) Do you hve used the following chnnels for recruiting lbour from EU-countries? Plese nswer yes or no if your compny hs used ech of them. TWA=temporry work gency. Source: Perduco. Figure 2.8 Shre of public employers hving used different chnnels for recruiting from EU-countries. 2009. Bsis: Users of lbour from EU-countries lst 12 months 1) 90 80 Q2 09 Q4 09 70 60 50 40 30 20 10 0 Own network Norwegin TWA Advertisements Buying services Foreign TWA NAV EURES 1) Do you hve used the following chnnels for recruiting lbour from EU-countries? Plese nswer yes or no if your institution hs used ech of them. TWA=temporry work gency. Source: Perduco. 15
Another source of informtion is the number of contcts with jobseekers nd employers tht EURES Norwy hndles ech yer nd how mny plcements they register. A contct with singel employer or jobseeker is minly counted s one contct, regrdless the number of phone clls or meetings. A lecture or presenttion for group of employers or group of jobseekers is lso minly counted s only one contct. Minly becuse the method of mesurement seems not to be clerly stted or communicted internl in NAV EURES. Figure 2.9 shows the number of reported contcts. More thn 50 000 contcts with jobseekers were hndled by EURES Norwy in budget yer 2008. This ws minly jobseekers from brod. Almost 28 000 contcts with employers were hndled by EURES Norwy this budget yer. The development in the numbers shows the sme pttern s the number of vcncies (Figure 2.2) nd the number of vlid work permits (see Figure 2.11): strong increse from 2006 to 2008, nd then decline in 2009. Figure 2.9 EURES Norwy: Contcts with jobseekers nd employers. Budget yers (1 April 31 Mrch next yer). 60000 Jobseekers Employers 50000 40000 30000 20000 10000 0 2006 2007 2008 2009 Source: NAV EURES. Figure 2.10 shows the number of plcements registered by the Norwegin EURES dvisers. This registrtion is probbly fr from complete. It depends on whether the employers report if they hve hired jobseeker tht they know EURES hs ssisted in recruiting. The low figures resemble Figure 2.7 nd Figure 2.8, in tht the role of EURES is underestimted. Figure 2.10 lso shows the very low number of plcements brod. However, certin increse cn be noted. In the evlution period, Norwegin jobseekers hve hd very good home mrked. Few of them try to get job brod when job prospects nd wges re better t home. How mny would hve immigrted to Norwy without EURES? Probbly lot. Lbour migrtion between the Nordic countries hs long trdition. As erly s 1954 the Nordic countries entered forml greement on free lbour mobility, followed by movements cross the borders in ccordnce with the development in differences between the countries in unemployment nd the number of vcncies. Sesonlly short term immigrtion of Poles is not new phenomenon either. We hve not tried to mesure the impct of EURES on the migrtion flows. 16
Figure 2.10 Plcements. Budget yers (1 April 31 Mrch next yer) 2000 1800 In Norwy Abrod (EU/EEA) 1600 1400 1200 1000 800 600 400 200 0 2007 2008 2009 Source: NAV EURES. The impct of EURES hs prtly been to fcilitte immigrtion through better informtion nd ssistnce in serching for lbour nd jobs. In 2007-2009 this hs probbly incresed the immigrtion to Norwy. In ddition EURES hs probbly directed the lbour immigrtion more to the needs of Norwegin employers, nd the needs cross broder spn of different occuptions nd sectors in the economy. EURES hs lso directed ttention to new res for vilble lbour of interest for Norwegin employers. 2.1.4 Conclusions In 2007-2009 Norwy hd substntil influx of lbour from brod, especilly from the new EU member sttes from Centrl nd Estern Europe nd from some other Scndinvin countries. The immigrnts mde substntil contribution to the Norwegin economy, both s n dded input in production nd by preventing bottleneck problems in the lbour mrket in remrkble period of economic growth in the country. EURES Norwy hs plyed role s provider of informtion bout recruiting from brod nd getting job in Norwy nd by ssisting employers in recruiting from brod. However, few employers cknowledge hving received ssistnce from EURES in their recruitment. Becuse EURES role my not be fully pperent to the employers, we think these observtions understtes EURES role. EURES reports substntil contct with jobseekers nd employers. EURES hndled more thn 50 000 contcts with jobseekers nd lmost 28 000 contcts with employers in 2008. EURES lso mde job plcements in the order of 2 000 persons per yer. The impct of EURES hs prtly been to fcilitte immigrtion through better informtion nd ssistnce in serching for lbour nd jobs. In ddition EURES hs probbly directed the immigrtion more to the needs of Norwegin employers, nd the needs cross broder spn of different occuptions nd sectors in the economy. 17
2.2 Trnsitionl mesures The focus of this section is to ssess if nd how the trnsitionl mesures on free movement imposed by the Norwegin government hve impcted EURES Norwy. When countries from Centrl nd Estern Europe joined EU in My 2004, the new member sttes nd EU hd greed on the opportunity of trnsitionl restrictions for free movement of workers from these sttes. Norwy is not member of the EU but included in the free lbour mrket through membership in the Europen Economic Are (EEA). Without restrictions, the citizens of the new member countries fter 1 My 2004 could hve freely trvelled to Norwy to seek employment nd sty if they got job. The restrictions imposed by the sttes in the EU/EEA-re prior to the enlrgement, could lst up to seven yers from 1 My 2004. This period ws divided into three prts: A two yer period, from 1 My 2004 to 30 April 2006: The Norwegin government chose to impose trnsitionl restrictions in line with some other countries. The mesures were tht non-resident workers hd to obtin forml work permit. To get this, pplicnts hd to show proof of full-time pid work nd conditions of the work hd to mtch wht ws common in Norwy. A three yer period, from 1 My 2006 to 30 April 2009: The rules from the previous period were continued. Bulgri nd Romni were included in the Europen Economic Are (EEA) from 1 August 2007. These two countries were subject to the sme trnsition rules s other new EU-members. The trnsition restrictions for workers from Czech Republic, Lithuni, Polnd, Slovki, Slovene nd Hungry were bolished from 1 My 2009. A two yer period, from 1 My 2009 to 30 April 2011: No trnsition rules in this period, except for Bulgri nd Romni. Vlid work permits by the end of the yer, issued to persons with citizenship in EU-countries, incresed from 16 000 in 2004 to 64 000 in 2009, see Figure 2.11. This does not include persons from other Nordic countries, becuse they do not need work permits. Most of the increse is due to immigrtion from the new EU-member countries, fter the expnsion of EU in 2004. The trnsitionl restrictions do not seem to hve been serious obstcle to movements of lbour to Norwy from the new EU member sttes. Sweden ws one of three countries, long with the UK nd Irelnd, which chose to pply no restrictions to workers from the new EU member sttes. Yet, of the Nordic countries, Norwy hs hd the highest influx of workers from the new EU/EEA member sttes since My 2004. Lbour mrket conditions in Norwy reltive to Sweden hve been more importnt for the movement of lbour thn the differences in rules for entering. The bolishment of the trnsitionl restrictions for most of the new EU/EEA member sttes from 1 My 2009, is probbly the min reson for the fll in the number of vlid work permits i 2009, see Figure 2.11. From 1 Jnury 2010 the term residence permit replces residence nd work permits, so tht ll permits re clled residence permits. The min rule will then be tht residence permit will entitle the holder to work in Norwy. NAV EURES hs informed bout rules nd chnges in rules for entering the Norwegin lbour mrket for jobseekers from brod on internet nd in their brochures. Beyond tht the trnsitionl mesures do not seem to hve hd ny impct on the tsks or chllenges of NAV EURES. 18
Figure 2.11 Vlid work permits by end of yer, by citizenship in EU 15 (Old members) or EU 12 (New members in 2004 or 2007), 1000 permits, 2004-2009 1) 70 60 EU 15 EU 12 50 40 30 20 10 0 2004 2005 2006 2007 2008 2009 1) Citizens of nother Nordic country do not need work permit. Source: Norwegin Directorte of Immigrtion. 19
3 EURES Guidelines 2007-2010 3.1 Introduction In this chpter we ssess the implementtion of objectives nd priorities set in the EURES guidelines 2007-2010. In section 3.2 we present the guidelines nd the 10 key priorities for EURES covering the period from 1 April 2007 to 31 Mrch 2010, estblished in EURES Guidelines for 2007-2010. Following the Opinion of the High Level Strtegy Group of 26 June 2006 (HLSG 2006/39-EN). The EURES Guidelines instruct the EURES Members to estblish ctivity plns for 2007-2010. In section 3.3 we present the Activity Pln for EURES Norwy nd evlute the implementtion. 3.2 Presenttion of the guidelines The EURES Guidelines for 2007-2010 consist of three prts: Prt A Priorities nd Actions. I. Priorities. 10 priorities re specified, see Tble 3.1. II. Prt B Activity Plns. Expected ctions nd results. 37 ctions/results re specified. They re presented under ech priority in section 3.3. This prt instructs the EURES members to present ctivity plns for the three-yers period 1 April 2007 31 Mrch 2010. I. Administrtive informtion. II. III. IV. Specifiction of min ctivities plnned. They re presented under ech priority in this chpter. Informtion of n indictive nture on the humn nd finncil resources needed to fulfil the commitments regrding the clernce of vcncies nd pplictions for employment Description of the rrngements for evluting the results of the plnned ctivities nd for monitoring their opertion V. Assessment of the ctivities nd the results chieved in the implementtion of EURES during the previous period 2004-2007. This prt lso instructs the EURES members to submit n nnul report bout the implementtion of the ctivity pln. Prt C Conditions for finncil ssistnce. The EURES members re expected to provide the necessry humn nd finncil resources for the implementtion of the three-yer ctivity plns. In ddition the Europen Commission my grnt finncil ssistnce for the crrying out of specific ctivities which re prt of the overll ctivity pln. This prt specifies the conditions nd procedure for subsidy requests. The finncil pln under B III provides s bsis for nnul requests. EU finncil support shll be concentrted on limited number of ctivities, in order to mximize its effect. 20
Tble 3.1 Priorities for EURES 2007-2010 EURES Priorities 1 Contribute ctively, through the provision of performing informtion nd ssistnce services, to the politicl objectives of the Growth nd Jobs Strtegy. 2 Step up the minstreming of EURES in the Public Employment Services throughout the EU/EEA territory. 3 Enhnce synergies nd improve the profiling of EURES mong other networks nd informtion providers in the lbour mrket re, whether t ntionl, Community or interntionl level. 4 Enhnce the visibility of the services provided by the EURES network, by reinforcing its communiction ctivities. 5 Improve significntly the collection of strtegic dt from the network s dily opertions, ensure proper evlution of results nd provide for regulr monitoring of EURES opertions. 6 In ddition to the overll provision of informtion, estblish, where needed, more systemtic contcts with specific groups of stkeholders. 7 Improve trnsprency in informtion provision within the respective employment mrkets, in prticulr with view to ensuring tht interntionl plcements comply with relevnt lbour stndrds. 8 Improve the qulity of informtion chnnelled through the network, nd in prticulr of the job vcncies dvertised by the Public Employment Services. 9 Contribute to identify lbour shortges nd bottlenecks which cn be ttenuted by trnsntionl lbour mobility, including the possibility of brodening the scope of informtion provision to workers coming from other prts of the world. 10 Reinforce the development of cross-border ctivities in the employment re, nd encourge, where needed, the development of cross-border ctivities nd prtnerships between the newer EU Member Sttes, or between older nd newer Member Sttes. Source: EURES Activity Pln 2007-2010, Norwy. 3.3 Activity Pln 2007-2010 3.3.1 Introduction Bsed on the EURES Guidelines, EURES Norwy, in the utumn of 2006, estblished n ctivity pln for the three-yer period 1 April 2007 31 Mrch 2010. The ctivity pln ws lter endorsed in letter from the EURES Coordintion Office. The evlution of the implementtion of the Activity Pln for EURES Norwy is crried out for the following prts of the pln: Administrtive informtion. See section 3.3.2. Specifiction of min ctivities plnned. See section 3.3.3-3.3.12. Ech of these 10 sections is devoted to one of the 10 key priorities in the EURES Guidelines. In ech of these sections our strting point is the expected ctions/results specified in the EURES Guidelines. We then list the min ctivities plnned by EURES Norwy for the whole 21
period 2007-2010, nd link ech ctivity to the expected ctions/results in the guidelines. The implementtion is evluted nnully for ech ctivity. Some of the nnul ctivities re covered, prtly or entirely, by nnul grnts from the EU Commission. These ctivities re shown. Humn nd finncil resources needed. See section 3.3.13. In section 3.3.14 we conclude on the implementtion of the ctivity pln. 3.3.2 Administrtive informtion EURES Norwy is orgnised s prt of the Norwegin Lbour nd Welfre Service, which is the stte-owned prt of the Norwegin Lbour nd Welfre Administrtion (NAV). NAV ws estblished 1 July 2006, s n integrtion of the Norwegin Ntionl Insurnce Service, the Norwegin Lbour Mrket Service, nd the municiplities socil services. This estblishment of NAV is clled the NAV Reform. The min prt of the implementtion of the NAV Reform hs been crried out during the evlution period for EURES Norwy. Orgnistionl chnges hve obviously been prt of this, lso ffecting EURES ctivities. Estblishing locl NAV offices in municiplities nd urbn districts strted in utumn 2006, nd reched 447 NAV offices t the end of 2009. During 2010 the lst plnned NAV offices will be estblished, reching totl of 457 NAV offices. These offices include the previous locl Public Employment Service (PES) offices. In the trnsition period, before estblishing n integrted NAV office, the PES nd socil service institutions hs existed side by side, s NAV Work nd NAV Socil Security. The min orgnistion of EURES ctivities during the evlution period hs been like this: A centrl tem in the centrl dministrtion of NAV (Directorte of Lbour nd Welfre). In 2007 this tem hd 1 EURES mnger. 2 ssistnt EURES mngers. In ddition ccounting services hve been crried out, minly under the uspices of NAV. This hs minly been the stffing of the unit ll through the evlution period, except for some temporry devitions up or down due to specil tsks or bsences. A prt of the stff in the regionl nd locl PES offices nd, lter, in the NAV offices, hs been trined nd dedicted to EURES ctivities. In 2007 the number of employees mounts to: 18 EURES dvisers 1 Jnury 2007. This is persons trined by EU/EURES. They work between 75 to 100 per cent on EURES mtters. About 100 of other stff (EURES ssistnts, line mngers nd IT-personnel). The Action Pln specifies wht ws foreseen in the lloction of PES stff to EURES during the period of the pln. By the end of Mrch 2010 the pln envisged: 25 EURES dvisers. The im ws t lest one EURES dviser in ech county (There re 19 counties in Norwy). An incresed number of EURES ssistnts. The sitution t the end of the pln/evlution period t 31 Mrch 2010 is: 3 positions in the centrl tem. 40 EURES dvisers. All counties re covered. Uncler if ll of them hve followed the initil or bsic trining t Europen level or if some of them re witing for the opportunity. Those who not hve received this trining, re titled ssisting EURES dvisers. Uncler number of EURES ssistnts. The orgnistionl chnges generted by the NAV Reform hve led to relloctions of employees between different jobs in NAV. 22
Our survey mong the EURES dvisers tells tht the EURES resources t the NAV offices hve diminished during the orgnistionl chnges. The EU trined resources of EURES Norwy hve grown fr more thn envisged in 2006. 3.3.3 Priority 1: Contribute to politicl objectives The priority is to contribute ctively, through the provision of performing informtion nd ssistnce services, to the politicl objectives of the Growth nd Jobs- Strtegy. In the EURES Guidelines three expected ctions nd results re specified, see Tble 3.2. In the Norwegin Activity Pln eight ctivities re specified, see Tble 3.3. No EC grnts re given under this priority, but severl ctivities lso turn up under other priorities nd re thereby covered by grnts. Trining of EURES dvisers hs exceeded plns. In-house trining of new EURES ssistnts seems to be on lower level thn plnned. Coopertion with Russi ws not tken inside EURES. Monthly newsletter nd use of SMS for quick informtion to employers re not implemented. Other min ctivities re implemented ccording to plns. All the expected ctions nd results re fully met. It cn be dded tht the news section on the Internet nd the Extrnet re updted once week (expected ction c). Tble 3.2 Expected ctions nd results for EURES 2007-2010, Priority 1 b c All EURES members nd prtners shll be committed to the provision of comprehensive nd professionl informtion nd ssistnce services to workers in the EU/EEA re. All EURES members nd prtners shll ensure tht in the provision of their services, the fundmentl principle of equl tretment of ll persons, irrespective of their country of residence in the EU/EEA re is respected. EURES mngers shll ensure tht the vilble informtion is correct nd up-to-dte. Updtes should be provided immeditely fter chnges tke plce. Source: EURES guidelines for 2007-2010. Tble 3.3 Activities plnned 2007-2010, Priority 1. Yer with EC-grnt. Annul implementtion. Link to expected ctions Min ctivities plnned 2007-2010 Yer ECgrnt Annul implementtion, b, c Trining of three to four EURES dvisers per yer., b In-house trining to pproximtely 150 200 new EURES ssistnts in the three yer period. - Exceeded pln. - Not fully ccomplished. 2007: Number of seminr/meetings for locl prt-time EURES ssistnts ws reduced. One seminr in September for 48 EURES ssistnts. 2008: No trining. 2009: No trining 23
c c c Increse coopertion with EURES collegues in ll the EEA/EU countries nd prticipte in job firs/recruitment firs orgnised brod nd lso cooperte with collegues to orgnise specific recruitment firs for Norwegin Employers. A specil project for coopertion with the northern prt of Russi together with collegues from Sweden nd Finlnd. Increse efforts to present updted nd interesting informtion to the public through the internet: www.nv.no, www.eures.no, nd through our extrnet to collegues in NAV. Updting severl EURES brochures in complince with the new NAV logo nd formts: e.g. Living nd Working in Norwy in severl lnguges, publish four yerly editions of EURES News, monthly Newsletters through e-mil to employers, use SMS for quick informtion to employers nd publish EURES Annul Reports. Trining of EURES dvisers s deliverers of news nd in interview situtions both on rdio nd TV, in coopertion with the medi. Monitor the lbour mrket nd the use of workers from EU/EEA nd from outside the EEA through surveys twice yer, nd by use of vilble sttisticl dt from other sources. - 2007: Prticipted t 70 job firs in other EU/EEA countries nd 20 in Norwy. 2008: Prticipted t 80 job firs in other EU/EEA countries nd 20 in Norwy. 2009: Prticipted in 146 job firs in other EU/EEA countries. Approximtely 20 i Norwy. - Not implemented within EURES. - Done. - EURES Nytt (News) more thn four issues in 2009. Monthly newsletter to employers not implemented. SMS informtion not implemented. - In 2007, 2008 nd 2009. - Done. Source: EURES Activity Pln 2007-2010 Norwy, Grnt Agreement 2007, 2008, 2009, ddendum to Grnt Agreement 2009. Finl Report 2007, 2008, 2009. Links re ssessed by Prob. 3.3.4 Priority 2: Step up the minstreming of EURES in PES The priority is to step up the minstreming of EURES in the Public Employment Services throughout the EU/EEA territory. In the EURES Guidelines four expected ctions nd results re specified, see Tble 3.4. Expected ction d is not relevnt since no EURES ctivities re contrcted out. 24
In the Norwegin Activity Pln 10 ctivities re specified, see Tble 3.5. No EC grnts re given under this priority, but severl ctivities lso turn up under other priorities nd thereby re covered by EC grnts. No complete registrtion of trining nd seminrs is vilble. It seems to hve been in ccordnce with plns, with resonble djustments long the wy nd sometimes limited by lck of resources. EURES-relted ctivities re not contrcted out in Norwy. But coopertion with privte entities is brod nd reported successful. The lloction of NAV stff resources to EURES seems to hve been temporrily suffering from the implementtion of the NAV reform. Beyond this, ll the expected ctions nd results re fully met. Tble 3.4 Expected ctions nd results for EURES 2007-2010, Priority 2 b c d Reflecting the role of the Public Employment Services in the EU/EEA s full members of the EURES network, ll services involved in the mngement of the network shll ensure tht mobility becomes stndrd issue rised during contcts between PES nd jobseekers, nd tht EURES is properly included in the PES policy plnning process, such s the setting of trgets nd performnce indictors t ntionl nd regionl level. A cler lloction of stff resources to EURES must be mde in the PES t centrl level nd throughout the territory with cler definition of their respective roles nd tsks, with ll hierrchy levels in the Public Employment Service knowing nd cknowledging the ttribution of stff to EURES tsks. The PES shll orgnise pproprite in-house trining of stff deling with EURES nd ensure tht EURES is included in in-house trining given to ll front line stff When EURES-relted ctivities re contrcted out by the Public Employment Services to privte entities, the PES shll ensure tht the priorities nd expected outputs pply lso to the work undertken by such privte entities. Source: EURES guidelines for 2007-2010. Tble 3.5 Activities plnned 2007-2010, Priority 2. Yer with EC-grnt. Annul implementtion. Link to expected ctions Min ctivities plnned 2007-2010 Yer ECgrnt Annul implementtion Actively use the extrnet to mrket EURES nd inform NAV collegues bout the EURES system nd wht EURES cn do. Distribute EURES News qurterly to ll NAV locl offices nd regionl offices s well s mke it vilble on www.eures.no nd the extrnet - Done. - Done. 25
Distribute the Inside EURES nd EURES & You nd use the dtbse of medi contcts nd dtbnk ctively Actively use www.nv.no nd www.eures.no to highlight nd promote EURES - Done by EC - Done., b All Line Mngers will t regulr intervls receive informtion bout the EURES Legl Bse nd the need to llocte stff resources to EURES t ll levels of the orgnistion, c Instructing EURES dvisers to inform nd trin collegues in locl NAV offices, c Trining EURES ssistnts once/twice yer for the next three yer period, c Initite five regionl Line Mnger nd EURES ssistnts seminrs nd 4 5 study tours to other EU/EEA countries for locl Line Mngers orgnised by the EURES dvisers Orgnise one yerly Study Tour for Regionl Directors Cooperte with the relevnt privte entities nd ensure tht the products they deliver re ccording to the ordinry EURES nd public employment services qulity stndrds - Done. - Done. - Not fully ccomplished. 2007: Trining for 48 EURES ssistnts. 2008: No trining. 2009: No trining. - 2007: Line Mngers to Budpest nd Amsterdm. 2008: Reykjvik, Icelnd. Seminrs for line mngers in Norwy nd Sweden. - 2007: Mnchester, Job Centre Plus 2008: Berlin 2009: Amsterdm. - Close coopertion with temporry work gencies nd lrge employers in need of lbour. Qulity control of Norwegin employers who register vcncies through the EURES portl. Source: EURES Activity Pln 2007-2010 Norwy, Grnt Agreement 2007, 2008, 2009, ddendum to Grnt Agreement 2009. Finl Report 2007, 2008, 2009. Links re ssessed by Prob. 3.3.5 Priority 3: Improve the profiling of EURES The priority is to enhnce synergies nd improve the profiling of EURES mong other networks nd informtion providers in the lbour mrket re, whether t ntionl, Community or interntionl level. In the EURES Guidelines three expected ctions nd results re specified, see Tble 3.6. In the Norwegin Activity Pln nine ctivities re specified, see Tble 3.7. EC grnts re given in 2007 nd only in 2007, but some of the ctivities lso turn up under other priorities nd thereby is covered by EC grnts, especilly the further development of ICT solutions. A new ctivity is dded in the grnts greement, see Tble 3.8. 26
It is difficult to tell how close the coopertion is with other EU networks nd instruments, but knowledge bout them is covered by the EURES trining. EURES Norwy hs links to relevnt networks nd instruments on the web sites. All ctivities re properly executed, nd ll the expected ctions nd results re fully met. Tble 3.6 Expected ctions nd results for EURES 2007-2010, Priority 3 b c Bsed on the estblished links with PLOTEUS nd EUROPASS, closer coopertion mechnisms shll be put in plce with other EU networks or instruments such s Euroguidnce, the Euro Info Centres, ERACAREERS, Citizens Signpost Europe, Your Europe nd TRESS (Trining nd Reporting on Europen Socil Security). Opertionl contcts with interested privte informtion nd plcement services operting in the employment re, re to be welcomed in so fr s they re in line with the overll mission of the network, nmely to provide customised informtion nd ssistnce to ll workers nd their fmilies, s well s to employers. Specific ttention needs to be given to the further development of ICT solutions with view to consolidte the overll performnce of the network nd to further improve the qulity of the informtion services, prticulrly s regrds the ccess nd posting of job vcncies. Source: EURES guidelines for 2007-2010. Tble 3.7 Activities plnned 2007-2010, Priority 3. Yer with EC-grnt. Annul implementtion. Link to expected ctions Min ctivities plnned 2007-2010 ECgrnt only 2007 Implementtion Continue to cooperte with EUROPASS nd invite them to job firs, informtion events etc. Continue to cooperte with Euroguidnce nd keep ech other updted. Keep up estblished links to PLOTEUS, Eurodesk nd EU Eduction nd Trining Portl. 2007 2007: According to pln in grnt greement. 2008: Ongoing. 2009: Ongoing. 2007 2007: According to pln in grnt greement. 2008: Ongoing. 2009: Ongoing. 2007 2007: According to pln in grnt greement. 2008: Ongoing. 2009: Ongoing. 27
b c c Estblish links to Euro Info Centres, ERACAREERS, Citizens Signpost Europe, Your Europe nd TRESS. Keep up the coopertion with the privte plcement gencies nd if necessry broden the rnge of cooperting compnies Encourge nd cooperte with ny Leonrdo project tht my be initited by the regionl NAV orgnistions where EURES dvisers re involved Cooperte ctively with the public reltion unit who will be responsible for estblishing n Employers Portl in Norwy nd promote the ntionl- nd Europen Portl for mobility questions. Cooperte with ll other relevnt Norwegin projects for informtion bout lbour mobility nd questions relted to living nd working in Norwy. Set up working group to del with informtion qulity nd services, including the qulity of the vcncy registrtion. 2007 2007: According to pln in grnt greement. 2008: Ongoing. 2009: Ongoing. 2007 2007: According to pln in grnt greement. 2008: Ongoing. 2009: Ongoing. 2007 2007: According to to pln in grnt greement 2008: Some ctivity. 2009: Some ctivity. 2007 2007: According to greement 2008: Ongoing process. 2009: Ongoing process. - 2007: Ongoing. 2008: Ongoing. 2009: Ongoing. 2007 2007: According to pln in grnt greement 2008: Tsks performed 2009: Tsks performed Source: EURES Activity Pln 2007-2010 Norwy, Grnt Agreement 2007, 2008, 2009, ddendum to Grnt Agreement 2009. Finl Report 2007, 2008, 2009. Links re ssessed by Prob. Tble 3.8 New ctivity plnned, Priority 3. Yer with EC-grnt. Annul implementtion Link to expected ctions New ctivities plnned Yer ECgrnt Annul implementtion b 2007: Produce informtion mteril to different types of stkeholders: Employers, jobseekers nd collegues in the new NAV orgnistion. 2007 2007: According to pln in grnt greement 2008: See chpter 5. 2009: See chpter 5. Source: Grnt Agreement 2007. Finl Report 2007, 2008, 2009. Link re ssessed by Prob. 28