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ANNUAL REPORT INSURANCE IN UNEMPLOYMENT 2013
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ANNUAL REPORT
INSURANCE INUNEMPLOYMENT
2013
EDITORIAL 3INTRODUCTION 5KEY EVENTS 6KEY FIGURES 7
UNDERSTANDING JOBSEEKERS 9THE SITUATION OF BENEFIT RECIPIENTS: A REFLECTION OF THE DUALITY OF THE LABOUR MARKET 10A VARIETY OF UNEMPLOYMENT SITUATIONS 12
PAYING BENEFITS AND HELPING TO MAINTAIN SOCIAL EQUILIBRIUM 13PROVIDING A BENEFIT PAYMENT ADAPTED TO SOCIO-ECONOMIC REALITIES 14
ENCOURAGING AND PROMOTING STAYING IN AND RETURNING TO WORK 19STAYING IN TOUCH WITH THE LABOUR MARKET 20ENCOURAGING THE RETURN TO WORK 23INSTITUTIONAL COOPERATION FOR RETURNING TO WORK 26
ENSURING THE FINANCING OF BENEFITS AND ASSISTANCE 27GUARANTEEING THE PAYMENT OF BENEFITS 28
STRENGTHENING THE MANAGEMENT OF THE UNEMPLOYMENT INSURANCE SCHEME AND FACILITATING NEGOTIATION 31A NEW UNEMPLOYMENT INSURANCE CONVENTION 32ORGANISING THE MANAGEMENT OF THE UNEMPLOYMENT INSURANCE SCHEME 35 THE UNÉDIC BOARD 36
GLOSSARY 38
CONTENTS
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Constantly seeking to better meet the needs of jobseekers, employees and companies is the focus of concern for the social partners that manage Unédic. Prior to negotiations on the new unemployment insurance convention, 2013 was therefore largely given over to developing essential analyses for its preparation. In an economic and social context that is still very difficult, marked by the continued increase in the number of unemployed people, these analyses are essential for breathing life into and adapting our interprofessional solidarity scheme.Within Unédic, the social partners exercise constant vigilance with regard to the condi-tions for implementing their decisions, both from the point of view of benefit recipients and operators. Understanding how the rules apply, how they are perceived by jobseekers, understanding the difficulties that Pôle emploi
(State employment agency) encounters in paying benefits etc. is essential for constant adaptation, a high-quality service and increased efficiency. This vigilance and these analyses enable us to identify problem areas, to consider changes and thereby create momentum for improvement.Currently, one out of two unemployed people works at the same time as receiving benefits. More than half of them have lost a short-term contract, which may result in the short-term payment of benefits. The number of people working part-time has increased. These are the analyses of the realities of and changes in the labour market and employment conditions that Unédic provides to the social partners in the essential convention negotiating phase.
In 2014, Unédic’s first mission is to ensure the convention is implemented, in accordance with the negotiators’ decisions. In order to ensure this, Unédic cooperates with Pôle emploi and the Joint Regional Bodies (IPR) within jurisdictions, so that the convention can be rolled out everywhere under the best conditions for jobseekers, by helping to train advisers and preparing for the follow-up to its operational implementation. This direct cooperation is also aimed at ensuring that those affected have high-quality information so that they understand the meaning of the new rules: improved job security and encouragement to return to work. The social partners entrusted Unédic with assessing the effects of the new convention: an arrangement will be put in place to accurately measure the impacts of these rules on jobseekers and on Unédic’s economic situation.Furthermore, the negotiators decided to work thematically with a view to upcoming
negotiations on the Unemployment insurance scheme; Unédic will therefore continue its work on analysing the labour market in order to fuel this debate.Finally, our financial management policy will remain tight, by clearly articulating long and medium-term objectives and managing bond issue conditions at rates as close as possible to those of the State. The financial data is both a starting point and a result of our unemployment benefit responsibility. Every day, with Unédic’s employees, we carry out our mission with a commitment to improve and adapt so that Unédic is always attentive and efficient, dedicated to essential solidarity.
A YEAR FOCUSSED ON PREPARING FOR UNEMPLOYMENT INSURANCE NEGOTIATIONS
WITH THE NEW UNEMPLOYMENT INSURANCE CONVENTION, UNÉDIC GUARANTEES PROPER CONDITIONS OF APPLICATION
EDITORIAL
Patricia Ferrand, PRESIDENT OF UNÉDIC
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• Finances 62.6%
of Pôle emploi’s budget•
Implements the unemployment insurance
convention
• Negotiate and establish the rules for unemployment benefits• Determine the rate of contribution of employers and employees to the Unemployment insurance scheme as part of a negotiation
COMPENSATION BY THE UNEMPLOYMENT INSURANCE SCHEME
ORGANISATION
Since 1 January 2011, Acoss (Central Agency of Social Security Organisations),
CCMSA, CCVRP, the central funds of Monaco
and St-Pierre et Miquelon have centralised recovery for greater simplicity for
companies.
IN RECOVERED CONTRIBUTIONS
€33.1BILLION
• Registration of
jobseekers•
Calculation and payment of their benefits
• Support towards returning to work
• Exploration of the
labour market•
Assistance to companies for recruitment
• Job search monitoring
• Recovery of
contributionsfor specific
arrangements
DEDUCTED BY THE SOCIAL
SECURITY ORGANISATIONS
TO PROMOTE A SWIFT
RETURN TO WORK
MANDATORY INSURANCE
AGAINST THE RISK OF JOB
LOSS
Employees and employers from the private sector
contribute jointly to the financing of the
Unemployment insurance scheme.
WITHIN THE FRAMEWORK OF AN AGREEMENT NEGOTIATED BY THE SOCIAL PARTNERS
IN UNEMPLOYMENT
INSURANCE BENEFITS AND
SOCIAL SECURITY CONTRIBUTIONS
€33.6BILLION €0.9
BILLIONIN RETURN-TO-WORK
ASSISTANCE
MANAGED JOINTLY
PAID BYPÔLE EMPLOI
FOR THE PÔLE EMPLOI BUDGET
€3.1BILLION
SOCIALPARTNERS
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INTRODUCTION
2013: MODERATE GROWTH, STABLE UNEMPLOYMENT
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2013 started in an economic environment still weakened by the economic downturn of summer 2011. French activity grew by +0.4% over the year, as in 2012. Business was supported by an upturn in household consumption, but it was limited by the marked decline in investment for the second year in a row.Job losses continued in 2013 (-62,200 jobs), but they levelled off with the improvement in business at the end of the year. The increase in temporary employment resulted in a few job creations in the 4th quarter. As a result, the wage bill lost impetus, which weighed heavily on the Unemployment insurance scheme’s revenues. Public policies on employment in the non-market sector contributed to substantially mitigating the drop in total employment. In 2013, the increase in the working population slowed down as a result of greater opportunities for retirement at 60.Over the course of 2013, the unemployment rate as understood by the International Labour Office (ILO) was stable. At the end of the year, it stood at 9.8% of the working population in mainland France, i.e. 2.8 million unemployed. The unemployment of the under 25’s dropped by 2.6 points over the year. It increased very slightly in those between 25 and 49 (+0.4 point) and in senior citizens (+0.1 point).At the end of 2013, 4.9 million jobseekers were registered at Pôle emploi in categories A, B and C in mainland France, i.e. an increase of +6.0% over a year. This increase was reflected in both the increase in jobseekers
without a job (+5.6% over a year), and people who undertook a reduced activity (+7.0% over a year). The number of people receiving Unemployment benefit increased slightly over one year (+1.1%). It reached 2.3 million people at the end of the year in the whole of France. This virtual stability is explained by the increase in the long-term unemployed coming to the end of their entitlement to benefits and the increase in jobseekers undertaking a reduced activity and less often receiving benefits. The increase in beneficiaries of redeployment arrangements - improved job security contract - amounted to +11,500 (+13.4% over one year).
286,500
+34,000
+ 0.4%
more jobseekers registered in categories A, B and C in 2013
jobseekers receiving benefits compared to 2012
growth in 2013
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National interprofessional agreement on improved job security The social partners decided to modulate employers’ contributions to the Unemployment insurance scheme. They overhauled the short-time working arrangements and laid down the principle of renewable unemployment insurance benefits.
Implementation of the agreement for the modernisation of the joint management system
The Unédic Board of Directors adopted the implementing measures of the agreement of 17 February 2012. This agreement enhanced the requirements for transparency in the governance and management of the Unemployment insurance scheme.
11 JANUARY 2013
24 JANUARY 2013
JANUARY
25 MARCH 2013
30 APRIL 2013
MARCH
APRIL
Launch of a borrowing programme Unédic raised 1.5 billion Euros. This operation launched the programme planned for this year under favourable market conditions.
Study on “Who are the recipients of Unemployment insurance benefits?” Unédic analysed the characteristics and the circumstances of people receiving unemploy-ment insurance benefits at the end of 2011.
Approval of Unemployment insurance scheme accounts and reassessment of unemployment benefitsThe Unédic Board of Directors approved the 2012 annual accounts, certified by the Auditors. The Board of Directors voted for an increase in the fixed portion and in the minimum amount of unemployment benefit from 1 July 2013.
27 JUNE 2013
JUNE
Initial report on the regulation and jobseeker surveyThe initial half-yearly report on the conditions for applying the unemployment insurance convention was presented to the Unédic Board. The report took into account the opinions of benefit recipients, Pôle emploi and mediating bodies. It thus included a jobseeker survey.
23 MAY 2013
Adjustment of employer contributions to the Unemployment insurance scheme Employer contributions to the Unemployment insurance scheme were increased for certain fixed-term contracts (CDD). In return, employers were exempt from contributions for hiring employees under 26 for the first few months.
1 JULY 2013
JULY
6
MAY
Progress report on the State/Unédic/Pôle emploi tripartite agreementThe State, Unédic and Pôle emploi shared an initial staging point for the three priorities set at Pôle emploi by the 2012-2014 tripartite agreement: customisation of the service offering, stronger links with local communities and continuation of the effort to optimise resources. This progress report was published in July.
21 MAY 2013
EVENTSKEY
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KEY FIGURES
JOBSEEKERS COMPENSATEDBY THE UNEMPLOYMENT INSURANCE SCHEME AT THE END OF 2013
IN RETURN-TO-WORK ASSISTANCE
2.6
€0.9
MILLION
BILLION
IN BENEFITSAND SOCIALCONTRIBUTIONS PAID IN 2013
€33.6 BILLION
1.6MILLION
EMPLOYERS CONTRIBUTING TO THE UNEMPLOYMENTINSURANCE SCHEME
2013
EMPLOYEES AFFILIATED TO THE UNEMPLOYMENT INSURANCE SCHEME
16.4 MILLION
AMOUNTOF RECOVEREDCONTRIBUTIONS
€33.1 BILLIONStudy on benefit recipients in reduced activityThe study increased the awareness of Unemployment insurance benefit recipients who work at the same time as being registered as jobseekers.
17 OCTOBER 2013
26 SEPTEMBER 2013
OCTOBER
Second report on the regulation The second half-yearly report on the conditions for implementing the unemployment insurance convention continued the process started by the report presented in May 2013.
28 NOVEMBER 2013
NOVEMBER
Audit committeeFirst meeting of the audit committee, pursuant to the agreement for the modernisation of the joint management system.
SEPTEMBER
Survey on Assistance for the takeover or creation of a company (ARCE)The survey questioned ARCE beneficiaries in order to learn more about what has become of them and their perception of this Unemployment insurance assistance.
Publication of Unemployment insurance scheme facts and figuresSince March 2013, the quarterly Unemployment insurance scheme facts and figures have enabled the Unédic Board to monitor the payment of benefits and the recovery of contributions.
20 DECEMBER 2013
23 DECEMBER 2013
DECEMBER
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JOBSEEKERS COMPENSATION
CONDITIONS TO BE MET TO QUALIFY FOR BENEFITS
Involuntary job loss
The Unemployment insurance scheme
compensates a loss
Length of affiliation
One must have
contributed to the scheme to benefit
from it
Registration Job search
The
unemployed person must be a
jobseeker
Physical aptitude
The jobseeker must be able to take up
employment
Age
< retirement age at full rate
Residency
The Unemployment
insurance scheme applies across
France
RECEIVING BENEFITS AND RETURNING TO WORK
COMBINATION OF BENEFITSWITH A SALARY
RENEWABLE BENEFITSIf the new job is lost
Benefits paid = benefits - 70% of the gross salary for the month’s work
The combined total of benefits and salary must not exceed the previous salary
Possible combination until entitlements are exhausted
STARTING POINT TO RECEIVE BENEFITS
A waiting periodof 7 days in all cases.
A paid holiday deferralif the employer paid the compensatory paid holiday benefit. Principle of non-
accumulation of 2 incomes over the same period of unemployment.
A specific deferral (max. 180 days)if the employer paid severance indemnities in
excess of or different from those established by law. Deferral associated with the severance and
not the ordinary performance of the employment contract. Limited to 75 days for employees made
redundant for economic reasons.
Calculation of the number of days before payment of benefits
ENTITLEMENT TO BENEFITS
DURATION OF BENEFITS BENEFIT AMOUNTInformation taken into account
for the calculation
calculated on the basis of former salaries subject to contributions, up to (even
suspended) 12 months preceding - days’ absence
the last day worked and paid
= any periods of work under contract
(even suspended) - days’ absence
DAYS OF EMPLOYMENTREFERENCE SALARY
A MINIMUM
ONE PRINCIPE
A LIMIT
CONDITIONS
4 months’ affiliation
Affiliation sought within 28 months preceding the end of the employment contract
1 day’s affiliation = 1 day’s benefit
730 days
Reference salary
Number of days employment in the companyDRS =
Calculation of the numberof days eligible for benefits Calculation of the daily reference salary (DRS)
Formula
Find all of the new rules for compensation on unedic.fr
JOB LOSS FROM 1 JULY 2014
RULES OF APPLICATION
UNEMPLOYMENT INSURANCE CONVENTION OF 14 MAY 2014
If remaining entitlements are not forfeited
Supplement from 150 hours of work
RESUMPTION OF UNUSED ENTITLEMENTS
PAYMENT OF NEW ACQUIRED ENTITLEMENT WITH JOBS TAKEN UP SINCE THE START
OF THE PERIOD OF COMPENSATION
FROM 1 OCTOBER 2014
UNDERSTANDINGJOBSEEKERS
01
Changes in the labour market are reflected in the situation of jobseekers receiving benefits. The Unemployment insurance scheme must therefore adapt and take into account a wide variety of situations: people with long-term entitlements after the loss of a permanent contract (CDI), people at the end of a fixed-term contract (CDD) or a temporary contract with short-term entitlements, jobseekers who work, those who frequently alternate between employment and unemployment, jobseekers who have been out of work for long periods of time, etc.
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HALF OF ALL BENEFIT RECIPIENTS ARE UNEMPLOYED AFTER THE END OF A SHORT-TERM CONTRACTIn 2013, half of all benefit recipients registered after the end of a fixed-term contract (CDD) or a temporary assignment. People made redundant represented barely a third of unemployed people receiving Unemployment insurance benefit (31.0%). Only 10.0% of people receiving benefits were unemployed as a result of a redundancy for economic reasons. Almost a quarter of benefit recipients were working part-time before losing their job (22.8%). 29.6% of benefit recipients worked for less than a year before losing their job.
AN INCREASINGLY BLURRED LINE BETWEENEMPLOYMENT AND UNEMPLOYMENTIn recent years, the labour market has been marked by the fragmentation of activities and an increas-ingly frequent alternation between employment and unemployment. This change is reflected in benefit recipients’ employment history, which is increasingly fragmented and discontinuous. In 2013, more than a million jobseekers undertook a reduced activity every month, i.e. almost one out of every two benefit recipients. They are working and looking for a job in the same month.
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In recent years, the growth in short-term and temporary contracts has significantly changed the structure of the labour market. This change is clearly illustrated among people receiving Unemployment insurance benefit.
THE SITUATION OF BENEFIT RECIPIENTS: A REFLECTION OF THE DUALITY OF THE LABOUR MARKET
Interview with Pierre Cavard, Director of studies and analyses
1out of every 2 unemployed benefit recipients
has lost their job as a result of the end of a fixed-term contract (CDD) or a temporary assignment
1out of every 2 benefit recipients
undertakes a reduced activity every month
1out of every 4 unemployed benefit recipients
is long-term unemployed, and has been receiving benefits for more than a year (24.1%)
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Distribution of benefit recipients by reason for employment contract termination at the end of 2013
Distribution of benefit recipients by level of qualifications at the end of 2013
Distribution of benefit recipients by age and sex
As at 31 December 2013, a little over half of all Unemployment insurance benefit recipients were men (52%).
There were far fewer young people under 20 compared to other Unemployment insurance benefit recipients (42,400). Only a third of these benefit recipients were women. This is explained primarily by the fact that young women stay in education
longer. Senior citizens over 60 were also less represented in the population of Unemployment insurance benefit recipients. More than half of these benefit recipients were women (53%).
Beneficiaries aged between 25 and 35 were the largest group, with more than 400,000 people by age category.
More than half of all recipients of Unemployment insurance have no BAC (54.5%). 1 out of every 4 benefit recipients was in higher education (24.4%). More than a third have a CAP/BEP level of training (37.2%). 17.3% of benefit recipients terminated their studies before the BAC; these are mainly people over 50. While a low level of education seems to increase the risk of unemployment, a high level of education does not offer com-plete protection from this risk.
1 OUT OF EVERY 2 UNEMPLOYED PEOPLE HAS NO BAC (equivalent A’ levels)
Source: FNA, Unédic calculations Source: FNA, Unédic calculations
Field: Benefit recipients compensated by the Unemployment insurance scheme, whole of France Source: National file of benefit recipients (Unédic/Pôle emploi). Receiving benefits as at 31/12/2013 observed over 6 months
21% OTHER REDUNDANCIES
13% CONTRACTUAL TERMINATION
2% DEPARTURE FOR NO JUST REASON
60 AND OVER
UNDER 20
55 TO 60
45 TO 50
35 TO 40
25 TO 30
50 TO 55
40 TO 45
30 TO 35
20 TO 25
10% REDUNDANCY
FOR ECONOMIC REASONS
4% OTHER REASON
12% END OF
TEMPORARY ASSIGNMENT
38% END OF
FIXED-TERM CONTRACT (CDD)
17.3% SECONDARY SCHOOL <BAC
37.2% CAP, BEP
5.6% BAC +5 OR MORE
6.6% BAC +3 AND +4
12.2% BAC +2
21.1% BAC
out of every 2 unemployed benefit recipients
out of every 4 unemployed benefit recipients
150 0
00
100 0
00
250 0
00
300 0
00
200 0
00
50 00
0
150 0
00
100 0
00
300 0
00
250 0
00
200 0
00
50 00
00
53%
49%
49%
48%
47%
46%
46%
47%
47%
33%
47%
51%
51%
52%
53%
54%
54%
53%
53%
67%
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In order to enhance the understanding of jobseekers, Unédic conducted a study based on data analysis. It identified six completely different groups made up of benefit recipients with the most similar characteristics within each group. This method enabled connections to be made between the benefit recipients’ personal characteristics and their experiences. These typical
profiles recorded the variety of unemployment situations for which benefits are allocated. They highlighted the dual function of the Unemployment insurance scheme: supporting the redeployment of employees who lose a stable job and giving more security to those who alternate between periods of employment and unemployment.
A VARIETY OF UNEMPLOYMENT SITUATIONS
The profiles of 2,565,200 benefit recipients at the end of 2013
UNDERSTANDINGJOBSEEKERS
01
25,3% 648,100 people
22.8%
585,500 people
19.5% 499,800 people
13.4% 344,500 people
12% 307,900 people
3.6% 91,800 people
Some benefit recipients could not be classified in this analysis (87,600 people, i.e. 3.4% of benefit recipients). Their situations correspond to other full-time contract terminations.
PEOPLE MADE REDUNDANT
PART-TIME EMPLOYEES
PEOPLE WHOSE FULL-TIME FIXED-TERM CONTRACT HAS ENDED
TEMPORARY EMPLOYEES
CONTRACTUAL TERMINATIONS AND VOLUNTARY DEPARTURES
ARTISTS AND WORKERS IN THE ENTERTAINMENT INDUSTRY
People who have been made redundant from a full-time contract are older than the average benefit recipient: 33.0% are over 50 (versus 21.0% for all
benefit recipients). This group is largely male (57.9%). They are often faced with long-term unemployment: almost 1 out of 3 has been receiving benefits for more than a year (32.9%). These people have more frequently worked for
more than 2 years compared to all benefit recipients (80.4% versus 47.0% overall).
Benefit recipients who have been carrying out part-time work make up a group that is 73.0% female, versus 48% for all benefit recipients. More than
half are unemployed after the termination of a fixed-term contract (CDD) (56%). They have fewer qualifications than the average: 80.0% have not been
in higher education (75.1% for all benefit recipients).
People whose full-time fixed-term contract has ended are younger than average: 35.8% are under 25 versus 17.8% overall. They are entitled to benefits
for a shorter period: 46.0% of them have less than a year of entitlements to benefits. They receive benefits for less time than average (84.6% for less than
a year versus 76.8% overall).
Temporary employees make up a largely male group at 73.1% (versus 52.0% for all benefit recipients) and a younger group (20.2% are under 25 versus
17.8% overall). Temporary employees are more likely to have undergone vocational technical training: 44.6% have a CAP/BEP (versus 36.6% for all
benefit recipients). They are entitled to benefits for a shorter period: 61.4% have worked for less than a year before being receiving benefits.
Benefit recipients after a contractual termination or a voluntary departure form a slightly more male group than average (54% of men). 71.0% of 25-49
year old are represented in this group (versus 61.6% for all benefit recipients). They have more qualifications: 35.6% were in higher education versus 24.9%
for all benefit recipients. They are entitled to benefits for a longer period than average: 4 out of 5 people have worked for at least 2 years before being
unemployed (47.0% for all benefit recipients).
Artists and workers in the entertainment industry are largely men (67.3% versus 52.0% for all benefit recipients). They are mainly in
Ile-de-France (48.7% versus 17.7% for all benefit recipients). They have more qualifications: 32.7% of them have a Bac + 3 level or higher, versus 12.7% overall.
78.4% are between 25 and 49 (versus 61.6% overall).
of benefit recipients
of benefit recipients
of benefit recipients
of benefit recipients
of benefit recipients
of benefit recipients
PAYING BENEFITSAND HELPING TO MAINTAINSOCIAL EQUILIBRIUM
02
Faced with the diversity of work arrangements and the increase in benefits expenditure, Unédic is committed to improving the quality of the benefits service.
19.5% 499,800 people
3.6% 91,800 people
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The agreement for the modernisation of the joint management system of February 2012 introduced the requirement to provide a high-quality service to the end beneficiary. As a joint management organisation, Unédic therefore ensures the unemployment insurance rules are properly applied, primarily the payment of benefits entrusted to Pôle emploi. This concern also applies to guaranteeing the rules coincide with social and economic realities.
THE WAY IN WHICH THE BENEFITS SYSTEM OPERATES IS JUDGED SATISFACTORY OVERALLIn April 2013, a survey conducted with benefit recipients gave an insight into their perception of the Unemployment insurance benefit scheme. In general, jobseekers thought that the operation of the benefits system was satisfactory. They considered the payment deadlines reasonable in the majority of cases. The update service was considered easy and procedures deemed reliable and rigorous.When problems arise, they concern primarily: delays and errors in filling out the employer statement, misunderstanding over the documents required for the application, the calculation of deferral days, taking into account jobs saved, unusual situations, the loss of applications or documents. These issues may result in continuing and worrying difficulties for jobseekers, which takes up a lot of their energy.
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In the interests of continued improvement of the service delivered, Unédic ensures with its operators that jobseekers are paid benefits under the best conditions.
PROVIDING A BENEFIT PAYMENT ADAPTED TO SOCIO-ECONOMIC REALITIES
...
4,739,500people received, on at least one occasion,
2,457,900 people receiving benefits on average every month in 2013
unemployment benefit (ARE) or training unemployment benefit (AREF) in 2013
+ 5.7% In one year, benefits expenditure increased by
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Almost 55% of jobseekers are covered by the Unemployment insurance scheme
In 2013, more than half of all jobseekers were entitled to Unemployment insurance, even if they were not, at the time, receiving benefits (in the event of reduced activity, for example). The rate of jobseekers eligible for benefits - those receiving benefits or not - took into account the large proportion of jobseekers in reduced activity who were in work, some of whom, in a given month, were not receiving benefits when their activity exceeded the thresholds.
(*) Jobseekers entitled to Unemployment insurance, but not receiving benefits during the month.
(**) Categories A, B, C, D and E + those exempt from searching for a job.
676,000 “ELIGIBLE
FOR BENEFITS*”
2,592,000 UNEMPLOYED PEOPLE Receiving Unemployment insurance including training and improved job security contracts (CSP)
2,744,000 jobseekers** NOT COVERED by the Unemployment insurance scheme
Source: FNA, Pôle emploi, raw data at the end of December 2013, whole of France
Increased benefits expenditure. The number of jobseekers required to actively seek work, unemployed (category A), continually increased in 2013. At the same time, the number of unemployed people receiving Unemployment benefit (ARE) continued to increase over the whole year.
At the end of December 2013, 2.3 million unemployed people were receiving Unemployment benefit (ARE) through the Unemployment insurance scheme, i.e. an increase of +1.1% over the year. In one year, benefits expenditure increased by +5.7%.
Benefits and assistance packages
Field: Whole of France, CVS Source: Pôle emploi
DISTRIBUTION OF EXPENDITURE IN 2013
1.9 billion Euros VALIDATION OF PENSION POINTS
0.9 billion Euros
ASSISTANCE PACKAGES
31.7 billion Euros BENEFITS AND SOCIAL
CONTRIBUTIONS
In 2013, Unédic decided to provide the resources to better understand jobseekers’ perceptions of their benefits. The objective was to understand their experience but also to see how to improve the benefit system and information about rights to manage complex individual situations.In order to meet this commitment, the Gatard & Associés Institute for Studies met with more than 70 jobseekers in qualitative interviews, which subsequently helped to structure a quantitative sur-vey aimed at measuring the results from the first phase. A large spectrum of jobseeker profiles was studied: new jobseekers, those ceasing to receive benefits to return to work, those ceasing to receive benefits due to the end of entitlement, reduced activity, resumption of entitlements and readmissions.
On losing a job, people are usually under the influence of negative emotions. Their first steps are marked by a sense of urgency: registering as quickly as possible, perhaps even registering in advance to be paid benefits as quickly as possible. At the same time, they need time to learn what is needed to manage this period as best they can.The majority of jobseekers believe that Unemploy-ment benefit (ARE) connects them to the world of work. Some consider it a right acquired through their work. Others see it as help in finding a job. Unemployment benefit can also be perceived as an opportunity and a privilege.
LISTENING TO WHAT JOBSEEKERS HAVE TO SAY ABOUT UNEMPLOYMENT BENEFIT
1616
PAYING BENEFITS AND HELPING TO MAINTAINSOCIAL EQUILIBRIUM
02
... MONITORING THE QUALITY OF THE SERVICE DELIVEREDAttention to the quality of the service delivered to the end beneficiary also concerns the proper implementation of the social partners’ decisions. Thus, Unédic monitors the services delegated to operators on a quarterly basis. Facts and figures, presented to the Unédic Board, address both the collection of contributions from employers and the compensation of jobseekers. The facts and figures enable the service quality objectives set for the Unemployment insurance scheme’s operators to be monitored by Unédic. Audit missions, conducted jointly with Pôle emploi, help to monitor procedural compliance with the rules defined by the social partners. Every quarter, the Unédic Board studies the indicators for monitoring the benefits provided by Pôle emploi. This work enables it to identify areas for improvement, to establish action plans with the operators and to make suitable management decisions.
A PROCESS FOR CONTINUOUS IMPROVEMENT OF THE BENEFIT RULESFaced with the increasing diversification in work arrangements, the social partners must ensure the rules are adapted to the changing socio- economic needs of employees and companies. As Unemployment insurance scheme managers, they intend to check that the rules they have laid down contribute to the objectives pursued: providing a replacement income and encouraging the return to work. This arrangement also contributes to improving the legibility and accessibility of regulations for its beneficiaries and the operators who apply it.Pursuant to the agreement for the modernisation of the joint management system of 17 February 2012, Unédic provides for its bodies a half-yearly report on the difficulties of applying the regulatory aspects of the unemployment insurance convention.
The two reports presented to the Unédic Board in 2013 took into account jobseeker statements, collaborative work with Pôle emploi and questions from the Joint Regional Bodies (IPR) and mediation bodies. This work helped to distinguish what falls within the remit of Unédic’s management and what requires a change in regulation through negotiation.This arrangement guarantees a swift identification and analysis of difficulties. For the social partners, these reports helped fuel their dialogue in order to change the rules in the framework of negotiating the convention of 14 May 2014.Therefore, the work carried out in 2013 contributed to the negotiators’ thinking about the conditions for combining benefits and remuneration, assistance for starting up a business, the list of cases of legitimate resignations, and the compensation of people with-out work during suspension of an employment contract, and the update of certain texts.
Enhanced efforts to combat increasing fraud In 2013, the fight against Unemployment insurance benefit fraud identified fraudulent situations amounting to 100 million Euros, 42 million Euros of which fraud were avoided.
Implemented by Pôle emploi, the strengthening of arrangements to prevent and combat fraud increases the number of detections every year (62 million Euros in 2011, 76 million Euros in 2012).
The two main mechanisms for fraud concern undeclared periods of work (38%) and fictional jobs and false employer attestations (16%).
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PAYING BENEFITS ANDHELPING TO MAINTAIN
SOCIAL EQUILIBRIUM
02
Measuring the performance of compensation by Pôle emploi
Unédic entrusts Pôle emploi with the operational implementation of jobseeker compensation. To ensure the compliance and performance of this delegated service, several indicators help to ensure the speed with which jobseekers are dealt with and the quality of handling benefit applications. These indicators are monitored on a regular basis by the Unédic governance bodies and by the coordination committee convened between Unédic
and Pôle emploi, in accordance with the bipartite agreement of 21 December 2012, which is binding on both institutions. The level of these indicators for 2013 conveys the consistent quality of the benefit payment service despite the increase in benefit applica-tions. Pôle emploi’s “benefit payment” action plan, launched in 2013, should help to improve these results and get closer to the targets set for 2014.
Source: Pôle emploi, internal audit
RATE OF DECISIONS IN FEWER THAN 15 DAYS 93.1%
RATE OF FIRST PAYMENTS ON TIME 89,7%
RATE OF QUALITY OF HANDLING BENEFIT APPLICATIONS 90,9%
RATE OF RECOVERY OF OVERPAYMENTS 64,1%
* ANNUAL AVERAGE IN 2013
93.1%
90.9%
89.7%
64.1%
*
SERVICE QUALITY, A LOCAL CONCERN
The Joint Regional Bodies (IPR) correspond to the local manifestations of the social partners who manage the Unemployment insurance scheme. They ensure the unemployment insurance convention is properly applied. Within this framework, they rule on the individual situations of jobseekers; their intervention enables individual situations to be taken into account when applying the benefit rules. Through this activity, the Joint Regional Bodies (IPR) contribute to considerations on implementing the regulation, by providing knowledge about the specific situations of jobseekers who are submitted to them; they have also identified issues specific to each region.
Source: Pôle emploi, SID
32.08% 40,321
VOLUNTARY REDUNDANCIES
0.65% 1,630 OTHER
49.60% 62,338 OVERPAYMENTS
17.67% 22,208 ASSESSMENTS of certain eligibility conditions
The surveys conducted with jobseekers raise the issue of the quality of the information provided on benefit payment. Up-to-date information on jobseekers is focused primarily on the procedures and arrangements to be managed. If their benefit calculation is what they expected it to be, jobseekers express the need to better understand their benefit payment in order to be able to anticipate and make decisions with full background knowledge. Important information may not be dealt with, or left to chance
of word of mouth, contacts and research. This lack of knowledge of the rules causes anxiety pending benefit payment and in managing certain situations. Afterwards, jobseekers may feel that they have not been sufficiently informed in order to make good decisions. For example, the conditions for combining some benefits with a salary are misunderstood, which can lead to some jobseekers hesitating over a job opportunity or perhaps even turning it down.
INFORMATION ON BENEFIT PAYMENT:A CLEARLY EXPRESSED EXPECTATION
125,692 INDIVIDUAL
CASES DEALT WITH BY THE
JOINT REGIONAL BODIES
(IPR)
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PAYING BENEFITS AND HELPING TO MAINTAINSOCIAL EQUILIBRIUM
02
The unemployment benefit systems in Europe have different rules, closely related to each social and political environment and to the characteristics of the labour market. In some countries, unemployed people can benefit from a range of solidarity and social assistance arrangements, particularly for housing. Comparing unemployment benefit in Europe requires taking into account the link between
the assistance packages offered to the unemployed, taxation and social transfers.In France, the average ratio between benefit payment and lost salary is around the European average for a 5-year period of unemployment. Germany, the UK and Belgium offer a slightly higher level of protection over this period.
In 2013, Unemployment insurance beneficiaries received on average 1,098 Euros net per month, i.e. 69% of their net reference salary. This replacement rate, namely the ratio between the benefit and the salary previously received, varies according to the previous level of remuneration. Thus, beneficiaries of the Unemployment insurance scheme compen-sated on the basis of a minimum wage work reference (SMIC) receive a monthly benefit payment equivalent to 78% of their net reference salary.
Furthermore, approximately a quarter of Unemployment insurance scheme beneficiaries are compensated on the basis of part-time work references. Their replacement rate is higher. Thus, the beneficiaries compensated on the basis of part-time work references receive on average 77% of the net reference salary compared to 68% for full-time.In 2013, 95% of jobseekers received less than 2,000 Euros per month in benefits.
UNEMPLOYMENT BENEFIT IN EUROPE
REPLACEMENT RATE:69% OF THE NET REFERENCE SALARY PAID
Source : OECD
Italy
Spain
EU Average
France
Germany UK
Sweden
Switzerla
nd
Denmark
The Netherlands
0
10
20
30
40
50
60
70
80
With social and housing benefits Without social and housing benefits
Belgium
Average net replacement rate in Europe INCLUDING ASSISTANCE AND HOUSING BENEFIT ARRANGEMENTS, CALCULATED FOR 4 FAMILY SITUATIONS AND 2 INCOME LEVELS
ENCOURAGING AND PROMOTING STAYING IN AND RETURNING TO WORK
03
With arrangements such as the combination of benefits and salary and Assistance for the takeover or start-up of a company, jobseekersstay in touch with the labour market and thereby increase their chance of returning to work.
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In order to make their return to work easier, jobseekers can benefit from assistance packages such as the option to combine benefits with a salary, and the Compensatory allowance upon redeployment (ADR) in the event of taking up a job that is less well paid than the previous one.
COMBINATION OF BENEFITS AND SALARYIN THE EVENT OF REDUCED ACTIVITY: AN INCENTIVE TO RETURN TO WORKJobseekers may take a job, even for a short period, at the same time as being registered at Pôle emploi. This phenomenon has developed since the 1990s, especially between 2008 and 2011. This expansion reflects the changes in the labour market, marked by the increase in short-term contracts and part-time work. In 2013, more than a million jobseekers undertook a reduced activity every month. In order to support them in their return to work, an Unemployment insurance package enables them, under certain conditions, to combine the salary from their monthly activity with a portion of their benefit. 53.3% of benefit recipients in reduced activity benefit from this combination every month. Those that do not receive benefits either work longer than 110 hours or receive an income in excess of 70% of their previous salary.
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The Unemployment insurance scheme finances assistance packages aimed at encouraging the return to work and staying in touch with the labour market.
STAYING IN TOUCHWITH THE LABOURMARKET
53.3%of benefit recipients in reduced activity benefit from the combination of benefits and salary every month
In 2011, those benefiting from the combination had, on average, a total income made up of benefits of €750 and a salary of €600 per month for approximately sixty hours of work.This return-to-work support measure is the subject of a body of work by Unédic, aimed at improving the awareness of benefit recipients who undertake a reduced activity. Between 2000 and 2011, 63% of benefit recipients undertook a reduced activity for at least one month. In the majority of cases, benefit recipients undertook a reduced activity on an occasional and transitory basis; it is a frequent practice for a minority of benefit recipients.
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BENE
FIT R
ECIP
IENTS
WHO
UND
ERTA
KE A
REDU
CED
ACTIV
ITY
Benefit recipients in reduced activity, whether receiving benefits or not, had on average a total income
34%
higher than that of benefit recipients with no job.
SIMPLIFYING ACCESS TO THE COMBINATION OF BENEFITS AND SALARYA survey conducted in 2013 by the Gatard & Associés Institute for Studies revealed that the consequences of resuming work on benefit payment are not always controlled by jobseekers. More than half of those questioned did not know how benefits are calculated in the event of resuming work. This uncertainty, shared by 44% of those who take up a reduced activity, can lead hesitation over taking up a job opportunity, or perhaps even turning it down. Management of the combination of benefits and salary was one of the issues monitored in the half-yearly reports on the regulation. This work clarified the decisions of those negotiating the unemploy-ment insurance convention of 14 May 2014. This arrangement led to the simplification of conditions for combining benefits and salary, in order to make them more legible and understandable for jobseekers.
1.2
650,000
benefits recipients
benefit recipients
What is the return-to-work support measure that consists of combining benefits and a salary? Jobseekers may combine the salary from a job with some of their unemployment benefits under certain conditions. This assistance package is aimed at supporting them in their return to work. It enables them to improve their total income, to extend the duration of their entitlements, and to remain close to the labour market. Taking up a job, even for a short period, can make it easier to access long-term contracts and be a springboard to a stable job.
million
worked every month in 2013.
combine benefits and a salary every month.
On average,
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ENCOURAGING AND PROMOTINGSTAYING INAND RETURNING TO WORK
03
The social partners worked to extend and simplify the use of short-time working arrangements in the event of a reduction or temporary suspension of activity. With the National interprofessional agreement of 11 January 2013, this concern prompted the creation of partial activity, a unified scheme. Partial activity, jointly financed by the State and Unédic, came into force as of 1 July 2013. This arrangement unifies the employee’s benefits, simplifies the calculation of hours for
which benefits are due and makes the employer’s obligations more flexible according to the company’s situation and its business prospects. The level of benefits is designed to encourage employees to take training courses during the period of partial activity.The employer pays the employee for the unworked hours; in return, the employer receives a partial activity allowance. The partial activity arrangement is managed by the State.
PARTIAL ACTIVITY: AN OVERHAUL OF SHORT-TIME WORKING ARRANGEMENTS
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When a beneficiary of ARE accepts a salaried job whose remuneration, for the same working hours, is lower by at least 15% of his/her previous job, the salary difference may be paid to him/her on a monthly basis in the form of an allowance.
COMPENSATORY ALLOWANCE UPON REDEPLOYMENT (ADR)
Benefit recipients in reduced activity improve their income
Source: National file of benefit recipients (Unédic/Pôle emploi), 1/10th sample
In 2011, benefit recipients with no job, receiving benefits under the general Unemployment insurance scheme, received on average €1,095 in benefits per month. Benefit recipients in reduced activity received on average 34% more, i.e. €1,470 per month for their activity and a possible combination
with a benefit. Furthermore, within reduced activity, benefit recipients not receiving benefits have higher incomes than beneficiaries of combined salary and benefits (respectively €1,560 and €1,365 per month in 2011).
TOTAL MONTHLY INCOME OF BENEFIT RECIPIENTS
7,031beneficiaries of ADR in 2013
55.5 million Euros paid under the ADR
of beneficiariesof ADR were 50 or over68%Over 2013,
20092008 2010 2011 2012 2013 2014 2015 2016
-2
-1
0
1
2
3
4
5 Masse salariale Contributions
200620052004200320022001200019991998199719961995 2007 2008 2009 2010 2011
600
1 500
1 350
1 200
1 050
900
750
Earned income of benefit recipients not receiving benefitsTotal income (earned income + benefits) of beneficiaries of combined salary and benefitsBenefit payment of benefit recipients with no job
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TWO YEARS OF THE IMPROVED JOB SECURITY CONTRACT (CSP)The purpose of the Improved job security contract in favour of employees made redundant for economic reasons is to allow for the redeployment of these employees through a number of measures aimed at speeding up the return to work.The CSP concerns employees affected by a redun-dancy procedure for economic reasons undertaken between 1 September 2011 and 31 December 2014. The arrangement makes it possible to benefit, for 12 months, from customised and enhanced monitoring by a specific mentor, immediate benefits (improved job security benefit), and adapted social protection.Companies that must offer the CSP to their employ-ees for whom they are considering laying off for economic reasons, are companies with fewer than 1,000 employees and companies in compulsory receivership or liquidation, irrespective of the number of their employees. As for companies with more than 1,000 employees, they must implement the provisions of redeployment leave.In 2013, almost half of employees made redundant for economic reasons opted for the CSP. Since the imple-mentation of this arrangement in September 2011, 258,500 people have benefited from it. On average, 9,000 people access the CSP every month.
Packages to assist in redeployment or starting up a company affect an increasing number of jobseekers. They support them in their return to work.
ENCOURAGINGTHE RETURNTO WORK
... THE I
MPRO
VED
JOB
SECU
RITY
CON
TRAC
T IN
2013 95,700
beneficiariesof the CSP on average
1.9 billion Eurospaid in respect of the CSP
0.64 billion Eurosof contributions paid by employers
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ASSISTANCE FOR THE TAKEOVER OR START-UP OF A COMPANY: A RETURN-TO-WORK SOLUTION
Assistance for the takeover or start-up of a company (ARCE) is an arrangement that enables any benefit recipient eligible for ACCRE to receive half of the unemployment benefits still available to him/her in 2 instalments spaced 6 months apart (€13,000 on average). If the company’s activity stops, the job-seeker may subsequently receive the remainder of his/her benefits if he/she re-registers with Pôle emploi. This Unemployment insurance assistance package aims to promote the redeployment of ben-efit recipients by making it easier to take over or start up a company.This method of activation of unemployment benefits has developed strongly since its creation. In 2006, 19,000 people benefited from ARCE, increasing to almost 60,000 in 2013. The corresponding amounts increased from 112 million Euros to 743 million Euros over the same period.
ENCOURAGING AND PROMOTINGSTAYING INAND RETURNING TO WORK
03
...
59,278743beneficiaries of ARCE in 2013
million Euros paid under the ARCE in 2013
of beneficiaries questioned
are in employment 2 years after
the first payment of ARCE
THE K
EY FI
GURE
S FOR
ARC
EIn 2013, Unédic conducted a survey of 2,400 beneficiaries of ARCE in the first quarter of 2011, in order to find out about their situation two years after obtaining the assistance package and their perception of the arrangement. It concluded that ARCE played an important role in the successful implementation of a project to start up a company: it helped to cover initial project financing needs in 63% of cases, with an average amount of assistance of 13,000 Euros per beneficiary. Without this assistance package, more than three quarters of the beneficiaries stated that they would not have been able to successfully implement their project or that they would have achieved it with greater difficulty.Two years after the first payment of the assistance, 86% of those questioned are in employment. 72% are still at the head of their company. 1% are at the head of another company. 13% of the beneficiaries declared that they are in paid employment: 8% found a permanent contract (CDI) and 3% are on a fixed-term contract (CDD). Only 12% of those questioned are searching for employment again. Of those who found a job after leaving the company, almost a third stated that this entrepreneurial experience made this return to work easier.
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Find the survey on ARCE at unedic.fr
Situation of beneficiaries two years after obtaining ARCE
71% of beneficiaries are men. Compared to Unem-ployment insurance benefit recipients, they are more often receiving benefits after the termination of a permanent contract (CDI), especially a contractual termination (35% versus 11% for all Unemployment insurance benefit
recipients). Redundancy for economic reasons affects 17% of beneficiaries of the assistance package, i.e. 6 points more than for all benefit recipients. They are more qualified than all benefit recipients: 45% have at least a BAC+2 level.
WHO ARE THE BENEFICIARIES OF ARCE?
Source: Unédic survey, April 2013. ARCE beneficiaries in 2011
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ARE IN PAID EMPLOYMENT
86% of beneficiaries
questioned are in employment
2 years after the first payment
of ARCE
ARCE, A RETURN-TO-WORK SOLUTIONFOR ITS BENEFICIARIES
13%
ARE SEARCHING FOR A JOB AGAIN
ARE OUT OF WORK AT THE TIME OF THE SURVEY
2% 12%
72% ARE STILL AT THE HEAD OF THEIR COMPANY
ARE AT THE HEAD OF ANOTHER COMPANY
1%
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INSTITUTIONAL COOPERATIONFOR THE RETURN TO WORK
ENCOURAGING AND PROMOTINGSTAYING INAND RETURNING TO WORK
03
As main financier of Pôle emploi, Unédic sets out the operator’s roadmap with the State. The 2012-2014 tripartite agreement, signed on 11 January 2012, established three priorities for Pôle emploi aimed at promoting jobseekers’ return to work. The establish-ment is called upon to customise its service offering, to develop stronger links with local communities and to continue the effort to optimise resources.
These priorities were reasserted in the bipartite agreement of 21 December 2012, which organises relations between Unédic and Pôle emploi.
TWO YEARS OF THE TRIPARTITE AGREEMENT BETWEEN THE STATE, UNÉDIC AND PÔLE EMPLOI
The “Pôle emploi 2015” strategic plan, launched in 2013, lays down an operational application of the tri-partite agreement at national and regional levels. In May 2013, the State, Unédic and Pôle emploi drew up an inventory of the projects implemented within the framework of the tripartite agreement.The customisation of Pôle emploi’s service offering was reflected, in particular, in the implementation of three support measures, adapted to the jobseeker’s needs. Pôle emploi is continuing its deconcentration process and is strengthening its relations with local communities in order to adapt its initiative to spe-cific local needs. In this context, the Joint Regional Bodies (IPR) - representatives of the social partners
at local level - are contributing to defining and mon-itoring Pôle emploi’s regional strategies, particularly with regard to jobseeker training. The establishment has continued with its reorganisation, thereby increasing the share of employees in contact with the public.In monitoring the tripartite agreement, Unédic pays particular attention to results on the return to sus-tainable employment, the fight against long-term unemployment, the fight against alienation from employment, and improvement in the effectiveness of training courses. This initial progress report is available at unedic.fr.
SUPPORT TO STAY IN WORK FOR THE UNDER 26’SThe National interprofessional agreement of 11 July 2011 has put in place, since 15 March 2012, a financial support arrangement for young people who have been recruited. This arrangement is aimed at young people under 26 entering employment (CDI, CDD, apprenticeship contracts, professional training con-tracts for young people, CUI (single contract for integration into the workforce)/CUE (single con-
tract for recruitment into the workforce)) and its aim is to help them cover the costs they face before receiving their first pay packet. This assistance, financed by the Unemployment insurance scheme, is implemented by Pôle emploi, the Missions locales (access points for employment and social services) and APEC. 12.2 million Euros were paid in 2013 under this assistance package.
RETURNING TO WORK AFTER TRAININGUnemployment benefit recipients are compensated when
they take a training course required by Pôle emploi.
In 2013, 75,000 people benefited from Training unemploy-
ment benefit (AREF) every month. 1.1 billion Euros was
paid under the AREF. In September 2013, six months after
the end of their training, 50.6% of AREF benefit recipients
had found a job.
35.5% of training beneficiaries receiving AREF were on a
permanent contract or a fixed-term contract of more than
6 months.
3.1 billion Euros Unédic’s contribution to Pôle emploi’s budget in 2013
Source: Pôle emploi, september 2013
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ENSURINGTHE FINANCINGOF BENEFITS AND ASSISTANCE
04
Unédic guarantees the financing of the Unemployment insurance scheme. In addition to the recovery of contributions, it has recourse to a borrowing programme, in order to guarantee the payment of benefits.
3.1 billion Euros Unédic’s contribution to Pôle emploi’s budget in 2013
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CONTRIBUTIONS UP SLIGHTLY IN 2013Private sector employers, those from the public sec-tor who signed up to the Unemployment insurance scheme and their employees are obliged to pay a contribution to the Unemployment insurance scheme to insure their employees against the risk of job loss. The employers’ rate of contribution is 4% and that of employees is 2.4%, i.e. 6.4% in total. They apply to salaries limited to 4 times the Social security upper limit. In 2013, operators collected 33.1 billion Euros for Unédic compared with 32.4 billion Euros in 2012, i.e. an approximate increase of 2%. Urssaf agencies are primarily responsible for recovery with 30.6 billion Euros, while other organisations with a geographical or professional expertise, such as Pôle emploi, the CCMSA, the CCVRP, the Central Social Security Funds of Monaco and Saint-Pierre et Miquelon or, further-more, Acoss pursuant to specific arrangements, collected 2.5 billion Euros.The contributions finance unemployment benefits and social contributions (31.7 billion Euros), the validation of jobseekers’ pension points (1.9 billion Euros) and Return-to-work assistance (0.9 billion Euros). 10% of contributions are used to finance the Pôle emploi budget, i.e. 3.1 billion Euros in 2013.
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Supplementing contributions collected with loans guarantees jobseeker compensation.
GUARANTEEINGTHE PAYMENT OF BENEFITS
The slowdown in the growth of the wage bill and the increase in the number of jobseekers to be compen-sated resulted in Unédic’s deficit of 3.8 billion Euros over the year. Thus, at the end of 2013, net indebted-ness stood at 17.8 billion Euros, compared with 13.8 billion Euros at the end of 2012.
30.6
2.5billion Euros recovered by Acoss
recovered by other operators including Pôle emploi, the CCMSA and Acoss for specific arrangements
billion Euros
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SECURING RECOVERYTo ensure the recovery of Unemployment insurance contributions on behalf of Unédic, Acoss has a secu-rity plan linked to its internal auditing plan, jointly monitored with Unédic. The audits recommended to operators primarily concern the quality of the employers’ administrative file, the quality of the recovery, the increased recovery of contributions for financing the CSP and the detection of anomalies. Recommendations are made to Acoss in terms of combating fraud in order to target certain types of employers who file returns.
ADDITIONAL FINANCING THROUGH THE LOAN GUARANTEES THE PAYMENT OF BENEFITSUnédic’s financing requirements are anticipated by the financial break-even point forecasts every quar-ter. The Board of Directors approved a programme of bond issues for 2013 guaranteed by the State of 5 billion Euros. It is 8 billion for 2014 with a debt estimated at 21.3 billion Euros at the end of 2014.Since the implementation of the Unemployment insurance scheme in 1958, the social partners have regularly adapted the rules relating to Unemploy-ment insurance and guarantee its ability to meet both economic and social needs. The prospects for growth anticipate weak economic momentum in France, barely enough to stabilise the level of employment in the coming years. Consequently, the negotiators of the unemployment insurance con-vention of 14 May 2014 adopted rules to gradually reduce the Unemployment insurance scheme defi-cit, without further weakening the social situations of jobseekers. In such a context, only the use of loans ensures the availability of the funds needed to compensate jobseekers, in response to a deterio-rated employment situation.
3.817.8
Euros
billion Euros of debt at the end of 2013
The 14 billion Euro EMTN programme has been increased to 20 billion Euros. It enables Unédic to cover the financing needs of the Unemploy-ment insurance scheme.Six bond issues carried out in 2013 made it pos-sible to raise 5 billion Euros with maturities of 3 to 10 years.
THE BORROWINGPROGRAMME
billion
FINAN
CIAL
SITU
ATIO
N AT
THE E
ND O
F 201
3 A deficit of
30
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ENSURINGTHE FINANCINGOF BENEFITSAND ASSISTANCE
04
In order to encourage employers to hire employees under long-term contracts, the social partners decided to adjust the rate of employer contribu-tions to the Unemployment insurance scheme from 1 July 2013. Defined in the National interprofessional agreement of 11 January 2013 on improved job secu-rity, the variation in employer contributions depends on the nature of the contract, its term, the reason for using such a contract, the age of the employee and the size of the company. The rate of the contribution
payable by the employer is set at 4%. It is increased for fixed-term contracts entered into for an increase in activity and customary fixed-term contracts last-ing up to 3 months. Employer contributions are unchanged for other types of employment con-tracts. In the event of hiring someone under 26 on a permanent contract, the employer is exempt from paying its contribution for the first few months of the contract. In all cases, the employee share of con-tributions is 2.4%.
MODULATION OF EMPLOYER CONTRIBUTIONS
30
Change in cash balance of the Unemployment insurance scheme
Source: Unédic, Unédic calculations
2013 2014 201520092007 2008 2010 2011 2012
-30
-20
-10
0
10 Balance = Revenue - ExpenditureNet banking indebtedness
billions of Euros
20092008 2010 2011 2012 2013 2014 2015 2016
-2
-1
0
1
2
3
4
5 Wage bill Contributions
year-on-year in %
Wage bill and contributions to the Unemployment insurance scheme
Source: Acoss, Pôle emploi, Unédic, Unédic Forecasts
2013 2014 201520092007 2008 2010 2011 2012
-30
-20
-10
0
10 Balance = Revenue - ExpenditureNet banking indebtedness
billions of Euros
20092008 2010 2011 2012 2013 2014 2015 2016
-2
-1
0
1
2
3
4
5 Wage bill Contributions
year-on-year in %
05
The social partners manage the Unemployment insurance scheme through their negotiating and managing roles. In the context of its missions, Unédic ensures compliance with the regulation and decisions of the social partners.
STRENGTHENING THE MANAGEMENT OF THE UNEMPLOYMENTINSURANCE SCHEME AND FACILITATING NEGOTIATION
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Derived from the convention of 14 May 2014 and valid for 2 years, the new unemployment insurance rules have been adapted by the social partners to take into consideration the changes in the labour market, par-ticularly the increase in precarious employment and the increasingly frequent alternation between employment and unemployment. In their decisions, the negotiators were concerned about the necessity for jobseekers to understand the benefit rules, in order to enable them to anticipate as best they can the effects of their return to work on their benefits. They took into account the financial situation of the Unemployment insurance scheme, weakened by the economic climate.
In this context, the new unemployment insurance rules provide three concrete responses. They make employees more secure in their journey between employment and unemployment: in order to further combat job insecurity, they prioritise the duration of benefit payments. They provide a stronger incentive
for returning to work. In general, they simplify the rules to make them more legible and more understandable. With a view to improving the financial situation of the Unemployment insurance scheme, the convention also creates new resources designed with fairness and shared effort in mind.
In a period of high unemployment, the aim of the social partners is to ensure that the Unemployment insurance scheme continues to protect jobseekers as best it can, over the long term.
THE FUNDAMENTAL ASPECTS OF THE UNEMPLOYMENT INSURANCE SCHEME ARE RETAINEDYou must have worked for at least 4 months to be eligible for benefits. The simple rule of “one day worked = one day’s benefit” is maintained. Benefits continue to be proportional to the lost salary. The rates of employer and employee contributions stay the same.
For more information on the new unemployment insurance scheme rulesunedic.fr
A NEWUNEMPLOYMENT INSURANCECONVENTIONSince 1958, the social partners have defined, through negotiation, the financing conditions, the benefit rules and the jobseeker assistance packages. 2014 is marked by the adoption of the unemployment insurance convention of 14 May, which implements new rules.
ENCOURAGING THE RETURN TO WORKThree new measures simplify the regulation and encourage jobseekers to return to work: renewable benefits, the new conditions for combining benefits and salary, and the enhancement of entitlements for employees with multiple employers. In fact, these measures will enable them to systematically improve their income and to combine benefit entitlements. At the same time as simplifying the regulation, these rules protect, over time, jobseekers who alternate between periods of work and unemployment.
ENSURING THE FINANCIAL MANAGEMENT OF THE UNEMPLOYMENT INSURANCE SCHEMEIn order to protect the sustainability of the system despite a high deficit, the social partners ensure the best financial balance between the revenue derived from contributions and benefit expenditure. They have
adopted savings measures in the interests of fairness and shared effort. The benefit thresholds and upper limits have been revised. In the event of supra-legal severance payments, the calculation of deferred benefits has been amended and its upper limit has been increased to 180 days (except for those made redundant for economic reasons). The rules specific to casual workers in the entertainment industry have been amended slightly: an upper limit on the combination of benefits and income from employment has been implemented and deferred benefits have been revised. The increase in life expectancy and the statutory dura-tion of work has been taken into account. Employees over 65 and their employers now pay contributions to the Unemployment insurance scheme. The conditions for maintaining benefits until retirement at full rate have been adjusted to adapt to pension reform.
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WHO IS AFFECTED BY THE NEW RULESOF THE UNEMPLOYMENT INSURANCE CONVENTION?
Some of the new rules were applied from 1 July 2014. New jobseekers, i.e. employees who lost their job as of this date, are affected by the new rules.Renewable benefits, conditions for combining ben-efits with a salary and cases of multiple employers
are applicable as of 1 October 2014. Jobseekers currently receiving benefits will benefit from the new rule on renewable benefits as of 1 October 2014, irrespective of the date on which they lost their job.
COMBINATION OF SALARY AND UNEMPLOYMENT BENEFITS SIMPLIFIED RULES
The combination of unemployment insurance bene-fit and a salary is now possible irrespective of the number of working hours in the month. The benefit calculation is simplified. The combination of benefits
and salary must not exceed the salary prior to the job loss. These conditions also apply to temporary employees.
RENEWABLE BENEFITS THE MORE A JOBSEEKER WORKS, THE MORE HE/SHE IS ENTITLED TO BENEFITS
The new arrangement now enables the jobseeker to keep all of his or her benefits in the event of return-ing to work, even for a short period. When he or she comes to the end of his or her initial compensation,
the entitlements acquired in the meantime will be added, provided that he or she has worked for at least 150 hours during the compensation period.
...
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IMPACT PER MEASURE IMPLEMENTATION 2014 2015 2016
Renewable benefits after a job
Partial combination of benefitswith income linked to returning
to work
Multiple employers
Capping of the capital/salaryratio at 75%
Minimum replacement rate at 57%
Specific benefit deferral
Age of maintainingbenefits until retirement
Contribution of employees65 and over
Benefits deferralin appendices 8 and 10
Capping of the salary/benefits combination in
appendices 8 and 10
Rate of contributionin appendices 8 and 10
STRENGTHENING THE MANAGEMENT OF THE UNEMPLOYMENT INSURANCE SCHEME AND FACILITATING NEGOTIATION
05
Overall, the convention of May 2014 will result in a lower expenditure estimated at 300 million Euros in the second half of 2014, 830 million Euros in 2015 and 770 million Euros in 2016.
The ramp-up of the measure to renewable benefits and the gradual reduction in savings linked to specific deferral results in a drop in lower expenditure at a cruise rate.
The impacts of the new convention
For more information on the impact of the new rules unedic.fr
The unemployment insurance convention of 14 May 2014 stipulates that every 6 months, the social part-ners will meet to ensure the new rules are being imple-mented properly and to measure their impact accurately, by relying on Unédic’s qualitative and quantitative assessments.
These regular meetings will also be an opportunity to anticipate, reflect more deeply about and arbitrate on the issues of the upcoming agreement on unemployment benefits.
October 2014
October 2014
October 2014
July 2014
July 2014
July 2014
July 2014
July 2014
July 2014
July 2014
July 2014
€0m +€40m +€150m
-€60m
+€5m
€0m
-€20m
-€90m
€0m
-€60m
-€20m
-€20m
-€30m
+€380m
-€230m
+€10m
-€35m
-€50m
-€270m
€0m
-€130m
-€70m
-€30m
-€60m
-€210m
+€10m
-€45m
-€70m
-€260m
-€30m
-€130m
-€100m
-€30m
-€60m
-€140m
+€10m
-€50m
-€70m
-€140m
-€120m
-€130m
-€100m
-€30m
-€60m
2014 MODEL YEAR
... MONITORING AND ASSESSINGTHE NEW RULES
Source: Estimate from the FNA, realigned with the break-even point forecast of January 2014
Through its four missions, Unédic manages the Unemployment insurance scheme and guarantees the social partners’ decisions are properly implemented.
ORGANISING THE MANAGEMENT OF THE UNEMPLOYMENT INSURANCE SCHEME
Unédic’s main mission is to manage the Unemploy-ment insurance scheme. It is an association under the law of 1901, led by the social partners, and is therefore an organisation under private law. It lays down the unemployment benefit rules decided by the social partners, oversees their implementation, produces the forecasts required to manage them and the studies to supplement joint debate. Unédic ensures the benefits are financed under the best possible conditions. It is positioned at the centre of a network of operators: it mainly entrusts the Social Security Contribution Collection Agencies (URSSAF) with collecting contributions; it delegates to Pôle emploi the payment of benefits to jobseekers according to the rules of the unem-ployment insurance convention.
ENSURING THE SOCIAL PARTNERS’ DECISIONS ARE IMPLEMENTEDUnédic oversees the proper operational implemen-tation of the Unemployment insurance scheme’s rules, according to a number of conditions: quarterly facts and figures on the operators’ activity, audit mis-sions in cooperation with its operators, etc.
Pursuant to the agreement for the modernisation of the joint management system of 17 February 2012, this arrangement was strengthened in 2013 with the completion of the first external end-of-term audit.
This audit is conducted whenever the Unédic Board of Directors is renewed; it analyses the conditions for implementing the decisions of the social partners and Unédic bodies over the 2012-2013 period.The audit concludes that the organisation and the processes in place guarantee Unédic’s ability to implement the social partners’ decisions regarding the Unemployment insurance scheme in accordance with their objectives and the decisions of the Board. The cooperation agreements with the operators are effective and monitored; they are the subject of a regular report to the governance bodies. The audit highlights the handling, by means of jobseeker surveys, of issues relating to the quality of the service provided. Ideas are put forward to improve records on monitoring the bodies’ decisions, particularly the limitation provisions that ensure the implementation of rules laid down by the social partners. The Unédic Board should examine these ideas and submit proposals in 2014 to improve the conditions for implementing the social partners’ decisions.
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Within Unédic, the representatives of the social partners sit on the Board of Directors. Their mission is to manage the unemployment insurance scheme. Unédic’s Board of Direc-tors is appointed for two years. It is made up of an “employ-ees” board and an “employers” board each comprising 25 members. This Board of Directors elects the Joint Board, which ensures the operational functioning of Unédic.The Unédic Board is responsible for managing the Unem-ployment insurance scheme: its mission is to ensure the unemployment insurance convention is applied and the financing of the scheme is managed. It appoints the Manag-ing Director.
The Board has been presided over since January 2014 by Patricia Ferrand for CFDT. Jean-François Pilliard, for Medef, is its vice-president.The presidency alternates every 2 years between an employers’ representative and an employees’ representa-tive. Made up of 10 members drawn equally from employers (Medef, CGPME and UPA) and employee trade unions (CFDT, CGT, CGT-FO, CFTC, CFE-CGC), it meets every month. The State-appointed Auditor participates in the Board every month. He provides the link with the Ministry of Finance and sits in an advisory capacity on the Board of Directors and the Board.
In 2013, Unédic conducted several studies, the results of which it shared with partners, experts, negotiators and the media. This work concerned, in particular, the bene-ficiaries of assistance for starting up a company. Reduced activity also remains a significant topic of study, with the publication of a study dedicated to this growing phenomenon. Through its partnership with the
Chair of improved career path security, Unédic puts for-ward to the community of researchers subjects linked to Unemployment insurance and changes in the labour market, such as the analysis of the duality of the world of work. Unédic conducts comparative work on Euro-pean practices in terms of unemployment benefits. The results of Unédic’s studies are available at unedic.fr.
PROVIDING AND SHARING INSIGHTS INTO EMPLOYMENT AND UNEMPLOYMENT
THE UNÉDIC BOARD
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ASSESSORDOMINIQUE TELLIER (MEDEF)
ASSESSORDENIS GRAVOUIL (CGT)
TREASURERPATRICK LIEBUS (UPA)
STATE-APPOINTED AUDITOR ALAIN CASANOVA
VICE-PRESIDENTJEAN- FRANÇOIS PILLIARD (MEDEF)
PRESIDENTPATRICIA FERRAND (CFDT)
Appointed by the Board of Directors on 7 January 2014
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Signed in February 2012, the National interprofes-sional agreement (ANI) on the modernisation of the joint management system reasserts the aim of joint management: to guarantee the quality of the ser-vice provided to the end beneficiaries, to facilitate collective bargaining between the social partners and to enhance transparency and access to informa-tion. Its application at Unédic led to the creation of an audit and account preparation committee and a committee responsible for appointing the senior executives and setting their remuneration. It also led to the publication of a summary of the main deci-sions of the governance bodies (Board and Board of Directors), quarterly facts and figures for monitor-ing operators, a half-yearly report on the application of regulations and the completion of an external end-of-term audit. All these measures were imple-mented over the course of 2013.
It should be noted that in 2013 Unédic provided technical and legal training for its newly appointed directors. This training mainly concerned regulatory changes.Unédic carried out its mission to facilitate and assist in the social partners’ decision-making process within the framework of negotiating the unemploy-ment insurance convention of May 2014: firstly, by providing technical support to the joint policy group prior to negotiations, and then a reference file on the main topics of negotiation. Unédic responded to simulation requests for each organisation on the effects of the proposed regulatory changes. This work fuelled negotiators’ discussions on under-standing the labour market and its impacts on the Unemployment insurance scheme.
UNÉDIC ENHANCES THE TRANSPARENCYOF GOVERNANCE AND MANAGEMENT
ASSISTANT TREASURERFRANCK MIKULA (CFE-CGC)
ASSESSORSTÉPHANE LARDY (FO)
ASSESSORÉRIC LE JAOUEN (MEDEF)
2ND VICE- PRESIDENTYVES RAZZOLI (CFTC)
3RD VICE- PRESIDENTEGENEVIÈVE ROY (CGPME)
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GLOSSARYUNEMPLOYMENT INSURANCEMandatory insurance scheme against invol-untary job loss for private and public (under certain conditions) sector employees, the management of which is entrusted to social partners.
ACOSSCentral Agency of Social Security Organisa-tions, Urssaf (Social Security Contribution Collection Agency).
PARTIAL ACTIVITYArrangement that enables employees to keep their jobs and 75% of their remuneration in the event of a reduction in activity due to econom-ic difficulties. This short-time working meas-ure is financed by the Unemployment insur-ance scheme and the State.
ADRCompensatory allowance upon redeploy-ment: assistance granted to jobseekers over 50, or who have been receiving benefits for at least a year, who take up a job that is less well-paid than their previous job by at least 15% for equivalent working hours.
AGSAssociation for the Management of the Em-ployee Debt Guarantee scheme.
APPENDIX 4Appendix 4 to the Unemployment insurance convention includes the provisions on Return-to-work assistance and unemployment bene-fits for temporary employees from temporary work companies.
APPENDICES 8 AND 10Appendices 8 and 10 to the Unemployment insurance convention include the provisions on Return-to-work assistance and unem-ployment benefits for sound recording, cine-matographic and audiovisual production, ra-dio, broadcasting and entertainment workers and technicians, and performers.
ANIThe National interprofessional agreements stem from the negotiation of the social part-ners representing employers and employees. The Unemployment insurance convention is generally preceded by an ANI that sets out the main guidelines.
ARCEAssistance for jobseekers taking over or creat-ing a company, in the form of two instalments of a portion of the Unemployment insurance benefits. The allocation of this assistance in the form of capital is subject to obtaining State assistance for unemployed people wish-ing to create or take over a company (ACCRE).
AREUnemployment benefit (ARE) is the allowance provided by the Unemployment insurance scheme. It is granted to employees affiliated to the Unemployment insurance scheme who can furnish proof of a minimum duration of ac-
tivity prior to the involuntary loss of their job. The Unemployment insurance convention in force sets this duration at 122 days (4 months) during the last 28 months, for the under 50s.
AREFUnemployment benefit paid to the benefit recipient following a training programme provided for by his/her Personalised Plan for Accessing Employment (PPAE). Its amount is that of the ARE under ordinary law, but may not be lower than a level set by the general regulations (20.34 Euros as at 1 July 2013). The incidences of suspension of payment are identical to those of the ARE, and its payment also terminates at the end of the training pro-gramme or in the event of suspension of this training programme lasting longer than 15 days (return to ARE under ordinary law). The unjustified abandonment of training shall give rise to an assessment by Pôle emploi.
ASPImproved job security benefit is paid to bene-ficiaries of the Improved job security contract (CSP). It represents 80% of the previous gross salary for employees who have two years’ sen-iority.
ASSThe Special solidarity allowance is aimed at jobseekers who have exhausted their enti-tlements to ARE within the framework of the Unemployment insurance scheme who meet specific conditions. This arrangement is fi-nanced by the State.
JOBSEEKER CATEGORIES• Category A: jobseekers required to engage in positive job searches, unemployed.• Category B: jobseekers required to engage in positive job searches, undertaking a short- term reduced activity (<78 hours).• Category C: jobseekers required to engage in positive job searches, undertaking a long- term reduced activity (>78 hours).• Category D: jobseekers not required to en- gage in positive job searches (due to an in- ternship, a training programme, an illness, etc.), unemployed.• Category E: jobseekers not required to en- gage in positive job searches, in employment (for example: beneficiaries of supported contracts).CCMSAThe Central Fund for the Agricultural Mutual Insurance Scheme is in charge of managing social protection for the agricultural sector.
CCVRPOrganisation for the collection of Social Se-curity and Unemployment insurance contribu-tions for sales representatives.
UNEMPLOYMENT INSURANCE CONVEN-TIONStemming from the negotiation of the social partners, the convention sets forth the con-ditions for paying benefits to jobseekers and the amount of employers’ and employees’ contributions.
STATE/UNÉDIC/PÔLE EMPLOI TRIPARTITE AGREEMENTThe tripartite agreement sets the budget and the operational objectives of Pôle emploi for three years according to the guidelines set forth by Unédic and the State, co-financiers of Pôle emploi.
COMBINATION OF BENEFITS AND SALARYArrangement that enables a jobseeker to combine benefits and remunerations under certain conditions, while continuing to look for work.
CSPIn force since 1 September 2011, the Improved job security contract is an arrangement co-fi-nanced by the State and Unédic intended for employees made redundant for economic rea-sons from companies with fewer than 1,000 employees (or companies of any size placed in compulsory liquidation). It replaces the CRP and the CTP and has merged both these ar-rangements.
DEFMMonth-end jobseekers. Individuals registered with Pôle emploi and having an outstanding claim on the last day of the month.
DREThe Job search exemption, repealed in 2012, exempted beneficiaries of ARE, of ASS aged over 60, early retirees and beneficiaries of equivalent retirement benefit (AER) from the obligation to look for work.
IPRThe Joint regional body convenes at regional level, with the social partners representing the employers and the employees. This body pro-vides guidance on Pôle emploi’s local activity, and is competent to rule on certain individual cases of jobseekers and employers.
PPAEThe Personalised Plan for Accessing Employ-ment is drawn up by Pôle emploi further to registration as a jobseeker. It aims to set out a pathway for a return to work adapted to the jobseeker’s situation, particularly in terms of the distance from employment, training, qual-ifications, knowledge or acquired skills.
RSASolidarity regime benefit intended for anyone residing in France on a stable and actual ba-sis, whose household has resources beneath a certain income level. Consequently, it is aimed at bringing household resources to the level of a “guaranteed income”. It may either make up for a lack of income from activity (base RSA), or supplement an income from activity when the employee does not draw a “living wage” from his/her work (cap RSA or activity RSA). Its amount depends on the composition and the resources of the beneficiary’s household.
GLOSSARY
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