The political economy of active labour market policy

Working Papers on the Reconciliation of Work and Welfare in Europe
The political economy of
active labour market policy
Giuliano Bonoli
Reconciling Work and Welfare in Europe
A Network of Excellence of the European Commission’s
Sixth Framework Programme
Giuliano Bonoli
The political economy of active labour market policy.
REC-WP 01/2010
Working Papers on the Reconciliation of Work and Welfare in Europe
RECWOWE Publication, Dissemination and Dialogue Centre, Edinburgh
© 2010 by the author(s)
The Working Papers on the Reconciliation of Work and Welfare in Europe series seeks to
promote the diffusion of research and research integration activities taking place within
the network and being produced by other researchers working on issues of work and
welfare in Europe.
Working papers are published either within the framework of a series of closed calls,
which follow the different stages in the life-cycle of the network’s activities, or as part of
an open call, which aims to privilege both research focussed on cross-national
comparative analysis of the various tensions between work and welfare and research
focussed on the role of the European level in addressing these tensions.
All papers are peer-reviewed.
The Working Papers on the Reconciliation of Work and Welfare in Europe are published
online by the Publication, Dissemination and Dialogue Centre (PUDIAC) of RECWOWE.
They can be downloaded at
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RECWOWE / PUDIAC on the internet:
http://www.socialpolicy.ed.ac.uk/recwowepudiac
About the author
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The determinants of active labour market policy
Political explanations
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Type
Objective
Tools
Incentive
reinforcement
Strengthen positive and negative
work incentives for people on benefit
- Tax credits, in work benefits
- time limits on recipiency
- benefit reductions
- benefit conditionality
- sanctions
Employment
assistance
Remove obstacle to employment and
facilitate (re-)entry into the labour
market
- placement services
- job subsidies
- counselling
- job search programmes
Occupation
Keep jobless people occupied; limit
human capital depletion during
unemployment.
- job creation schemes in the
public sector
- non employment-related training
programmes
Human capital
investment
Improve the chances of finding
employment by upskilling jobless
people
- basic education
- vocational training
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Recent titles in this series
download at http://www.socialpolicy.ed.ac.uk/recwowepudiac/working_papers/
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