Bieszk-S olo z, Bea a; Dmy ów, K zysz o
A icle
Impac o changes o p ocedu es on he e alua ion o he
e ec i eness o o ms o p o essional ac i a ion in poland
Economies
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MDPI – Mul idisciplina y Digi al Publishing Ins i u e, Basel
Sugges ed Ci a ion: Bieszk-S olo z, Bea a; Dmy ów, K zysz o (2021) : Impac o changes o
p ocedu es on he e alua ion o he e ec i eness o o ms o p o essional ac i a ion in poland,
Economies, ISSN 2227-7099, MDPI, Basel, Vol. 9, Iss. 2, pp. 1-18,
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economies
A icle
Impac o Changes o P ocedu es on he E alua ion o he
E ec i eness o Fo ms o P o essional Ac i a ion in Poland
Bea a Bieszk-S olo z and K zysz o Dmy ów *

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Ci a ion: Bieszk-S olo z, Bea a, and
K zysz o Dmy ów. 2021. Impac o
Changes o P ocedu es on he
E alua ion o he E ec i eness o
Fo ms o P o essional Ac i a ion in
Poland. Economies 9: 88. h ps://
doi.o g/10.3390/economies9020088
Academic Edi o s: Rui Cas anho,
Sema Yılmaz Genç and
De is Ki ikkaleli
Recei ed: 30 Ap il 2021
Accep ed: 26 May 2021
Published: 3 June 2021
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A ibu ion (CC BY) license (h ps://
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Ins i u e o Economics and Finance, Uni e si y o Szczecin, 71-101 Szczecin, Poland;
[email p o ec ed]
*Co espondence: k zysz o .dmy [email p o ec ed]; Tel.: +48-691-981-555
Abs ac :
Ac i e labou ma ke policy is connec ed wi h he necessi y o accoun o he unds
alloca ed o i . The conduc ed analysis o ms a pa o esea ch on he e alua ion o he e ec s o
changes in oduced by legal egula ions. The aim o his esea ch is o assess he impac o changes o
he me hodology o calcula ing on alues o he cos and employmen e ec i eness o basic o ms o
economic ac i a ion in Poland. They we e in oduced in 2015 in connec ion wi h ongoing discussion
ega ding he e ec i eness o he e alua ion me hods used. The Minis y o Economic De elopmen ,
Labou and Technology is cu en ly esponsible o ac i a ing he unemployed in Poland, and unds
come om he Labou Fund. The analysis used is he eg ession discon inui y design. This analysis
showed ha signi ican changes occu ed only in he slope o he eg ession line o cos e ec i eness
a e 2015 o bo h p ocedu es o i s calcula ion. This shows ha he new, in oduced me hods
o calcula ing e ec i eness we e cosme ic in na u e and did no signi ican ly a ec hei alues.
A good ecommenda ion o imp o ing he me hod o e alua ing o ms o economic ac i a ion o
he unemployed could be o ex end he ime o equi ed employmen .
Keywo ds:
eg ession discon inui y design; e ec i eness o ac i a ion; egis e ed unemploymen ;
economic ac i a ion
JEL Classi ica ion: C21; J64; J68
1. In oduc ion
One o he mos impo an economic and social p oblems in he mode n wo ld is he
phenomenon o unemploymen . I has a nega i e impac bo h on he economic g ow h
o coun ies and on he unc ioning o households. The e o e, a ious ools a e used
o mi iga e he e ec s o unemploymen . Thei aim is o limi i s du a ion and p e en
he dep ecia ion o human capi al. Wi hin he amewo k o ac i e labou ma ke policy,
go e nmen s apply a ious o ms o suppo and ac i a ion o people who emain unem-
ployed. Mos o en, public unds a e used o his pu pose. In o de o con i m he alidi y
and e ec i eness o he use o such measu es, e alua ion s udies a e conduc ed. Due o he
social aspec , i is impo an o employ as many job seeke s as possible. F om he poin o
iew o ins i u ions inancing ac i e suppo p og ammes, i is necessa y o e alua e he
spending o unds. In he case o unemploymen , esea ch may conce n many p oblems,
such as: he iden i ica ion o g oups o people a isk o long- e m unemploymen , assess-
men o he impac o implemen ed p og ammes on ge ing people ou o unemploymen ,
and moni o ing he spending o unds alloca ed o hese pu poses. These analyses a e
la gely based on he esea ch wo k o James Heckman (Heckman e al. 1999), winne o
he Nobel P ize in Economics. Resea ch on he e ec i eness o labou ma ke policies
in di e en coun ies ocuses on di e en aspec s. In he Eu opean Union, employmen
e ec s a e mos ly s udied, as he main objec i e is o a oid he high cos s o long- e m
unemploymen . In he Uni ed S a es, he income e ec s o ac i e employmen p og ammes
Economies 2021,9, 88. h ps://doi.o g/10.3390/economies9020088 h ps://www.mdpi.com/jou nal/economies
Economies 2021,9, 88 2 o 18
a e mainly analysed. Labou ma ke esea ch indica es ha he amoun and du a ion o un-
employmen bene i s ha e a posi i e e ec on ime spen looking o employmen (Mo i
1985;Ka z and Meye 1990;Meye 1990;Hun 1995;Ca d and Le ine 2000;Hahn e al. 2001;
Lali e 2007;Bieszk-S olo z and Ma kowicz 2015). O e ly p o ec i e s a e social policies
may os e he occu ence o long- e m unemploymen . A be e impac on he p ocess
o ge ing ou o unemploymen is gi en by he implemen a ion o a ious p og ammes
inc easing p o essional ac i i y. Such ac i i ies a e also ca ied ou in Poland. Howe e ,
he e is a p oblem wi h he e alua ion o he ac ions aken. The ca alogue o basic o ms
o ac i a ion is upda ed om ime o ime. In 2015, ollowing commen s om he bodies
con olling he labou o ices in Poland, a majo modi ica ion was in oduced in he way o
calcula ing he applied measu es.
The aim o his esea ch is o assess he impac o changes, since 2015, o he me hodol-
ogy o coun ing he le el o cos and employmen e ec i eness o basic o ms o economic
ac i a ion in Poland. The choice o Poland is dic a ed by he ac ha i ep esen s pos -
communis coun ies ha ha e unde gone sys emic ans o ma ion. I does no ha e as
much expe ience o a ma ke economy, and he e o e o unemploymen , as he coun ies o
Wes e n Eu ope. I is no a wel a e s a e due o i s lowe le el o economic de elopmen
compa ed o he highly de eloped coun ies o Wes e n Eu ope. I is he e o e in e es ing
o see how he new egula ions imp o e he si ua ion.
2. Concep ual Backg ound
Many me hods o measu ing he impac o in e en ions a e desc ibed and applied
in he li e a u e. Among hem, he Reg ession Discon inui y Design (RDD) is a popula
model. I was i s in oduced in he social sciences by This le hwai e and Campbell (1960).
They analysed he in luence o awa ds on he u u e achie emen s o s uden s (ca ee
aspi a ions, egis a ion o pos g adua e s udies, academic achie emen s, e c.). Thei
s udy was conduc ed h ough an awa d ha was based on an obse ed es sco e. This
awa d, he Na ional Me i Awa d, was p esen ed o s uden s who achie ed a speci ied
minimum sco e. Di e ences in he success o s uden s who sco ed abo e and below his
sco e we e a ibu ed o he impac o he awa d. The p es ige o he awa d was ound
o ha e an e ec on imp o ed es sco es, making i mo e likely o be ecei ed, bu he
hypo hesis ha he awa d ecei ed in luenced s uden s’ subsequen a i udes and ca ee
plans was no con i med.
Al hough he eg ession discon inui y design has been known o se e al decades,
i s use in esea ch has been qui e a e (Cook 2008). I began o be used inc easingly in
socio-economic analysis om he la e 1990s onwa ds. Since hen, he e ha e been many
a icles in he ields o educa ion, he labou ma ke , o ensics, en i onmen al p o ec ion,
and heal h ca e, on he economic impac o egula o y change (Lee and Munk 2008;Lee
and Lemieux 2010;Dong e al. 2019;Lo su e al. 2019;Wang e al. 2019,2021;Ogunmodede
e al. 2020;Song e al. 2020;Zhao e al. 2021).
An example o he applica ion o he RDD model can be ound in he assessmen o
he labou ma ke impac o a ax in oduced in F ance in 1987, and modi ied in 1992, called
he Delalande ax (Behaghel e al. 2008). I was a ax paid by employe s who dismissed
wo ke s aged 50 and o e . In ac , i became he cause o he equen dismissal o wo ke s
be o e he age o 50 and a gene al eluc ance o hi e olde wo ke s. In 1992, a change
was in oduced o p o ide ax exemp ions o companies employing people aged 50 and
o e . A e his change, he ansi ion a e om unemploymen o employmen o olde
wo ke s inc eased signi ican ly. The use o he RDD model also made i possible o assess
he ansi ion a e a age 50. I u ned ou ha he legal ac om 1987 esul ed in a es o
hose unde 50 and hose aged 50 and o e ha we e no signi ican ly di e en , al hough
younge wo ke s ound wo k sligh ly as e . Legisla i e changes in 1992 esul ed in a
signi ican change. I u ned ou ha he chances o inding a job o unemployed olde
people inc eased signi ican ly compa ed o younge ones.
Economies 2021,9, 88 3 o 18
Many a icles on he applica ion o he RDD model in economics ha e been w i en
by Lali e. In 1988, he Aus ian go e nmen in oduced an ex ension o he du a ion
o unemploymen bene i s om 30 o 209 weeks. This applied o unemployed people
aged 50 and o e , li ing in ce ain a eas o Aus ia o a leas 6 mon hs, and p e iously
wo king. Such a la ge change in bene i collec ion inc eased he du a ion o unemploymen ,
especially o women, due o he p oximi y o e i emen (Lali e 2007). Lali e’s s udy used
an RDD model in a sha p o m wi h an eligibili y h eshold conce ning age and dis ance
om he bo de o he isk egions.
B ügge e al. (2009) hypo hesised ha cul u al di e ences may in luence he mag-
ni ude o unemploymen . The analysis hey conduc ed was based on a compa ison o
communi ies in Swi ze land sepa a ed by a linguis ic and men al ba ie be ween a pa o
he coun y wi h F ench, I alian and Rhae o-Romanic languages and a Ge man-speaking
pa . Public employmen se ices ope a e in he same way h oughou Swi ze land. How-
e e , people li ing in he La in-speaking pa ( he con ac ual bo de a ea) ook abou 18%
longe o look o a job han hei neighbou s and we e abou 40% less likely o ind a job.
The au ho s showed ha in he sea ch o wo k, cul u al di e ences a e economically as
impo an as he du a ion o bene i s o changes in hei amoun s.
Sha p discon inuous eg ession models wi h mul iple age h esholds we e used by
Schmiede e al. (2012) o s udy he e ec o po en ial bene i du a ion on unemploymen
du a ion in Ge many be ween 1980 and 2008. These au ho s emphasise ha he s udy was
based on a liquidi y-cons ained job sea ch model and he assump ion ha he Ge man
unemploymen bene i sys em is ideal and should he e o e be used o his ype o s udy.
They ook as discon inui y h esholds he age h esholds de e mining he po en ial du a ion
o bene i eceip (42, 44, and 49 yea s). They con i med he hypo hesis ha he du a ion
o bene i eceip ex ended he job sea ch pe iod signi ican ly. The s udy also showed a
discon inui y in he du a ion o bene i collec ion acco ding o he age o he unemployed
pe son. These au ho s hypo hesised ha companies ook in o accoun he mo e a ou able
age h esholds o ex ending he du a ion o bene i collec ion when an employee was
made edundan .
Ma kowicz and Bieszk-S olo z (2016) analysed he impac o he implemen a ion
o a p og amme inc easing p o essional e ec i eness on he du a ion o unemploymen .
The p emise o he p og amme was o equalise he labou ma ke oppo uni ies o young
people unde 30 yea s o age by adap ing hei p o essional quali ica ions o labou ma ke
equi emen s. The use o a eg ession discon inui y design allowed he iden i ica ion
o he impac o he p og amme inc easing p o essional e ec i eness on he du a ion o
unemploymen , i.e., he assessmen o he e ec i eness o he p og amme. Two g oups
o unemployed people we e compa ed: hose included and hose no included in he
p og amme. Despi e a dec ease in he a e age du a ion o unemploymen in bo h g oups,
he posi i e e ec o he impac o he implemen ed p ojec in he h eshold o 30 yea s was
s a is ically signi ican .
Dec ame and Vano melingen (2016) analysed he e ec s o an in es men subsidy
p og amme o small- and medium-sized en e p ises in Flande s o he pe iod 2004–2009.
The subsidies we e awa ded acco ding o a anking sys em ha a ou ed young, g owing,
and p oduc i e i ms wi h a s ong cash low, g an ing subsidies o he highes sco ing
i ms un il he deple ion o unds. They con i med he e was a posi i e e ec on i m-le el
in es men , employmen , ou pu , and p oduc i i y o he i ms ha we e g an ed he
subsidy, bu only o small i ms. This e ec was small in ela ion o he cos o he subsidy.
Cadil e al. (2018) s udied he impac o public R&D suppo o p i a e en e p ises
in Czechia on hei economic sus ainabili y. They showed ha policies suppo ing he
p i a e sec o led o highe inno a ion ac i i y, bu did no lead o highe alue added and
p oduc i i y o he suppo ed en i ies.
Cansino e al. (2018) s udied he Labou Ma ke Inse ion Con ac , which was
an Ac i e Labou Ma ke Policy (ALMP) ool in oduced in Spain. I a ge ed young
people who had di icul y en e ing he labou ma ke , and was in oduced o educe he
Economies 2021,9, 88 4 o 18
unemploymen a e. A mic oeconomic analysis was ca ied ou based on causal s a is ical
in e ence by using p opensi y sco e ma ching and ke nel and adial es ima o s. The
analysis iden i ied ha he employabili y o people who we e ecipien s o an inse ion
con ac was lowe in he sho and medium e m han ha o indi iduals who had signed
a empo a y employmen con ac . This esea ch con ibu es o he li e a u e by e alua ing
whe he he e is empi ical e idence o suppo a poli ical decision o e oke an ALMP.
A e y big p oblem o he con empo a y labou ma ke is he phenomenon o NEETs.
This is he e m used o young people no in employmen , educa ion, o aining. Ruesga-
Beni o e al. (2018) examined he impac o socio-economic a iables ela ed o he le el
o na ional wel a e and social p o ec ion, as well as he isk o po e y o and he social
exclusion o young NEETs. The highes p opo ion o such indi iduals was in G eece
and I aly. The main indings poin ed o he need o s eng hen social p o ec ion as a key
ac o o a oid he discou agemen o young people, hus educing he likelihood o hei
becoming NEETs. Such measu es should be b oad-based and co e economic and social
policies, including heal h and educa ion.
Cas año e al. (2019) applied coun e ac ual analysis o e alua e he way in which
Eu opean Ru al De elopmen P og ammes (RDPs) we e impac ed be ween 2007 and 2013.
They concluded ha he e was no adequa e coun e ac ual me hod o e alua e ex-pos
socio-economic impac s as equi ed by he e alua ion s anda d. Indeed, he limi ing ac o s
we e he a ailabili y o da a, ce ain me hodological assump ions, and cons ain s on
e alua ion esou ces such as expe ise, ime, budge .
3. Fo ms o Ac i a ion o he Unemployed in Poland and Me hods o Assessing
Thei E ec i eness
A e Poland’s accession o he Eu opean Union, he scope o ac ions ela ed o he
p o essional ac i a ion o he unemployed, add essed o g oups o people in a di icul
si ua ion in he labou ma ke , inc eased. In 2004, he Ac on P omo ion o Employmen
and Labou Ma ke Ins i u ions (Jou nal o Laws 2016, No. 99, i em 1001) was in oduced.
I s objec i e was o adjus Polish labou ma ke policy o he Eu opean Employmen
S a egy. The ac di ided ac ions ac i a ing he unemployed in o labou ma ke se ices
and ins umen s. Labou ma ke se ices included assis ance in seeking wo k. I consis ed
o : job placemen , oca ional counselling, p o essional in o ma ion, assis ance in ac i e
job seeking, and he o ganisa ion o aining. P o essional ac i a ion o he unemployed
was connec ed wi h he in oduc ion o such ins umen s as: in e en ion wo ks, public
wo ks, p o essional p epa a ion in he wo kplace, in e nships, and unds o c ea ing
jobs. Since 2004, dozens o modi ica ions ha e been made o he ac . These modi ica ions
aimed o make he ac mo e e ec i e and o ensu e ha i adap ed o changing needs and
socio-economic condi ions. Thanks o his ac , he e has been an expansion o access o
labou ma ke se ices, a p omo ion o li elong lea ning p og ammes, and a modi ica ion
o he sys em o unemploymen bene i s, as well as he implemen a ion o a sys em o
incen i es o s a ing economic ac i i y and c ea ing new jobs.
The Minis y o Economic De elopmen , Labou and Technology is cu en ly esponsi-
ble o he ac i a ion o he unemployed in Poland. I s name changed se e al imes du ing
he analysed pe iod. In Poland, he ac i a ion o he unemployed is di ec ly handled by
oi odeship and po ia labou o ices. Thei ask is o ob ain unds and o ganise ac i a ion
measu es. Resou ces come mainly om he Labou Fund, o which con ibu ions a e paid
by employees and companies. O he esou ces come om he EU p ojec s.
The le el o he egis e ed unemploymen a e in Poland luc ua ed be ween 2004 and
2019. In 2004 i was equal o 19% and in he ollowing yea s i dec eased o 9.5% (2008).
Then, as a esul o he global inancial c isis, i ose o 13.4% (2012). I emained a he same
le el in 2013 and hen dec eased o 5.2% in 2019. The numbe o egis e ed unemployed
changed in a simila way (Figu e 1).

Economies 2021,9, 88 5 o 18
Economies 2021, 9, x FOR PEER REVIEW 5 o 18
same le el in 2013 and hen dec eased o 5.2% in 2019. The numbe o egis e ed unem-
ployed changed in a simila way (Figu e 1).
In o de o coun e ac unemploymen , a ious o ms o suppo o he unemployed
a e implemen ed in labou o ices. The ca alogue o basic o ms o p o essional ac i a ion
is de e mined by he minis e in cha ge o labou . In 2005–2019 his ca alogue was subjec
o changes. In 2005, i included 7 o ms: aining, employmen wi hin he amewo k o
in e en ion wo ks, employmen wi hin he amewo k o public wo ks, in e nships a
employe s, p epa a ion o adul s o occupa ion in he wo kplace, g an ing he unem-
ployed one- ime esou ces o subsidise s a ing economic ac i i y, and g an ing employ-
e s e unds o cos s o equipmen o addi ional equipmen o he unemployed sen o
hese wo kplaces. In 2006–2009, an eigh h o m was added: pe o ming socially use ul
wo k. In 2010–2013, he e we e 7 o ms—p epa a ion o occupa ion in he wo kplace was
emo ed om he ca alogue. In 2014–2019, he ca alogue included 6 o ms—socially use-
ul wo ks was emo ed. Due o hei auxilia y na u e o insigni ican sha e in he expend-
i u es incu ed, in he yea s 2005–2019 some o ms o suppo we e no included (e.g.,
ac i a ion supplemen , schola ships o he pe iod o con inuing educa ion, e und o
a el and accommoda ion cos s, e und o social insu ance p emiums o a me s dis-
missed om wo k, aining loans). In he analysed pe iod, he la ges numbe o people
bene i ed om ainings and aineeships.
Figu e 1. Regis e ed unemploymen a e, numbe o egis e ed unemployed, and numbe o pe sons pa icipa ing in p o-
g ammes in Poland (as o 31 Decembe ). Sou ce: own elabo a ion based on da a om he Local Da a Bank (2020).
Figu e 1 p esen s he numbe o unemployed people pa icipa ing in ac i a ion p o-
g ammes in 2005–2019. In 2005–2010, his numbe g ew, and was much highe han in
subsequen yea s. In he analysed pe iod, on a e age, sligh ly mo e han 92% o people
ha had s a ed pa icipa ion in selec ed o ms o economic ac i a ion had comple ed i ,
bu only abou 60% o hem ound employmen . In 2011, he e was a clea dec ease in he
numbe o he unemployed pa icipa ing in p og ammes. This is due o he ac ha a
la ge numbe o people s a ed pa icipa ing in ac i a ion o ms in he p e ious yea and
inished in he ollowing yea . Poland was placed unde he excessi e de ici p ocedu e
and, in line wi h he Eco in Council ecommenda ion (o 7 July 2009), was equi ed o
co ec i s gene al go e nmen de ici below 3% o GDP by 2012. Being subjec o his p o-
cedu e en ailed a educ ion in spending by he Labou Fund, which is pa o his sec o .
Nume ous labou ma ke s udies show ha he impac o cha ac e is ics o he un-
employed on he isk o en e ing unemploymen and e-en e ing employmen a ies
g ea ly. Bieszk-S olo z (2020) showed ha age and educa ion in luenced he isk o mul-
iple egis a ions in Polish labou o ices, while gende and senio i y had no signi ican
impac . In a simila way, cha ac e is ics o he unemployed in luenced he isk o i s
0
1000
2000
3000
4000
0
5
10
15
20
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
Numbe o people ( housand)
Unemploymen a e (%)
Yea s
Numbe o unemploymen
Numbe o pe sons pa icipa ing in he p og ammes
Regis e ed unemploymen a e (%)
Figu e 1.
Regis e ed unemploymen a e, numbe o egis e ed unemployed, and numbe o pe sons pa icipa ing in
p og ammes in Poland (as o 31 Decembe ). Sou ce: own elabo a ion based on da a om he Local Da a Bank (2020).
In o de o coun e ac unemploymen , a ious o ms o suppo o he unemployed
a e implemen ed in labou o ices. The ca alogue o basic o ms o p o essional ac i a ion
is de e mined by he minis e in cha ge o labou . In 2005–2019 his ca alogue was subjec
o changes. In 2005, i included 7 o ms: aining, employmen wi hin he amewo k
o in e en ion wo ks, employmen wi hin he amewo k o public wo ks, in e nships
a employe s, p epa a ion o adul s o occupa ion in he wo kplace, g an ing he unem-
ployed one- ime esou ces o subsidise s a ing economic ac i i y, and g an ing employe s
e unds o cos s o equipmen o addi ional equipmen o he unemployed sen o hese
wo kplaces. In 2006–2009, an eigh h o m was added: pe o ming socially use ul wo k. In
2010–2013, he e we e 7 o ms—p epa a ion o occupa ion in he wo kplace was emo ed
om he ca alogue. In 2014–2019, he ca alogue included 6 o ms—socially use ul wo ks
was emo ed. Due o hei auxilia y na u e o insigni ican sha e in he expendi u es
incu ed, in he yea s 2005–2019 some o ms o suppo we e no included (e.g., ac i a ion
supplemen , schola ships o he pe iod o con inuing educa ion, e und o a el and
accommoda ion cos s, e und o social insu ance p emiums o a me s dismissed om
wo k, aining loans). In he analysed pe iod, he la ges numbe o people bene i ed om
ainings and aineeships.
Figu e 1p esen s he numbe o unemployed people pa icipa ing in ac i a ion p o-
g ammes in 2005–2019. In 2005–2010, his numbe g ew, and was much highe han in
subsequen yea s. In he analysed pe iod, on a e age, sligh ly mo e han 92% o people
ha had s a ed pa icipa ion in selec ed o ms o economic ac i a ion had comple ed i ,
bu only abou 60% o hem ound employmen . In 2011, he e was a clea dec ease in he
numbe o he unemployed pa icipa ing in p og ammes. This is due o he ac ha a
la ge numbe o people s a ed pa icipa ing in ac i a ion o ms in he p e ious yea and
inished in he ollowing yea . Poland was placed unde he excessi e de ici p ocedu e
and, in line wi h he Eco in Council ecommenda ion (o 7 July 2009), was equi ed o
co ec i s gene al go e nmen de ici below 3% o GDP by 2012. Being subjec o his
p ocedu e en ailed a educ ion in spending by he Labou Fund, which is pa o his sec o .
Nume ous labou ma ke s udies show ha he impac o cha ac e is ics o he unem-
ployed on he isk o en e ing unemploymen and e-en e ing employmen a ies g ea ly.
Bieszk-S olo z (2020) showed ha age and educa ion in luenced he isk o mul iple egis-
a ions in Polish labou o ices, while gende and senio i y had no signi ican impac . In a
simila way, cha ac e is ics o he unemployed in luenced he isk o i s e u ning o he
o ice. Howe e , hey did no in luence subsequen egis a ions. Resea che s o en d aw
a en ion o he need o lexible amily- iendly policies ha would allow women o en e
he labou ma ke a e ma e ni y. Landmesse (2014) in he s udy showed ha he exi a e
Economies 2021,9, 88 6 o 18
om unemploymen o women was lowe han o men. The gende gap na owed a e
abou age 40. The ansi ion a e o non-pa icipa ion was highe o women han o men,
bu his di e ence also disappea ed wi h age. The unemploymen phenomenon also a ies
by he age o he unemployed. Guija o (2018) analysed he e ec i eness o ac i e labou
ma ke ini ia i es in he Valencia egion, one o he a eas mos a ec ed by unemploymen
in Spain in 2016. He showed ha hose mos a isk o unemploymen we e hose aged 55
and o e and women. In he case o women, only hose wi h highe educa ion had a high
p obabili y o inding a job. A simila s udy o he labou ma ke in Poland was conduc ed
by Bieszk-S olo z and Dmy ów(2018). Using classi ica ion ees and su i al analysis
me hods, hey showed ha among he long- e m unemployed, women aged 60+ had he
g ea es p oblems e u ning o wo k, while young people wi h e ia y educa ion had he
leas p oblems.
Unemploymen in Poland is s ongly spa ially di e en ia ed (Wo´zniak-J˛echo ek 2015;
Mu awska 2016;Ta a czak and Boichuk 2018;Bieszk-S olo z and Dmy ów 2019,2020). The
Polish labou ma ke is s ongly dis o ed by annual luc ua ions o o he mac oeconomic
economic ac o s (Hadas-Dyduch e al. 2016). The e a e a numbe o p oblems limi ing
o p e en ing he e ec i e ac i a ion o ulne able people in he labou ma ke . The
mos impo an o hese is he low lexibili y o he Eu opean Social Fund. In addi ion
o inc easing lexibili y, i is also ecommended o indi idualise p ojec s, which would
con ibu e o an e ec i e ansi ion om he passi e o he ac i e labou ma ke .
To e alua e he e ec i eness o he applied o ms o economic ac i a ion in Poland,
wo basic measu es a e used: employmen e ec i eness and cos e ec i eness. The e y
concep o e ec i eness is he subjec o many discussions and analyses. Fi s o all, i is a
ool o measu ing he e ec i eness o managemen , as i makes i possible o de e mine o
wha ex en se goals a e achie ed. I desc ibes he ela ion o achie ed e ec s o incu ed
expendi u es. In economic heo y, economic e ec i eness is conside ed in wo aspec s.
One o hem is connec ed wi h he pu sui o e ec i eness maximisa ion, i.e., achie ing
he highes possible esul om a gi en amoun o ou lays. The second one esul s om
s i ing o sa e esou ces, i.e., he achie emen o a selec ed le el o he esul , while
minimising he ou lays (cos s). In he case o he assessmen o he e ec i eness o public
sec o unc ioning, ac ions a e aken in he di ec ion o he assessmen o he e ec i eness
o he use o s a e policy ins umen s, in pa icula , he assessmen o he legi imacy o he
u he use o a gi en ins umen and he indica ion o mo e e ec i e solu ions. On he
labou ma ke , suppo p og ammes o he unemployed a e moni o ed. F om he social
poin o iew, i is impo an o employ he maximum numbe o job seeke s. On he o he
hand, om he poin o iew o ins i u ions inancing ac i e suppo p og ammes, i is
impo an o eliably assess he expendi u e o unds. In o de o e alua e he e ec i eness
o implemen ed p og ammes, he cos o pa icipa ion in a o m o ac i a ion, and he
employmen and cos e ec i eness a ios a e de e mined. These alues a e de e mined o
basic o ms o economic ac i a ion.
Employmen e ec i eness ( e-employmen a e) is an indica o ha measu es he
p obabili y o inding a job a e pa icipa ing in a p og amme. I is de e mined by he o -
mula:
EE =numbe o pe sons employed du ing o a e end o pa icipa ion
numbe o pe sons ha ended hei pa icipa ion ·100% (1)
Cos e ec i eness (cos o e-employmen ) assesses he cos o ge ing an unemployed
pe son in o employmen . I is exp essed by he o mula:
CE =amoun o expendi u e om he Labou Fund
numbe o pe sons indica ed as employed (2)
Economies 2021,9, 88 7 o 18
The pa icipa ion cos in a o m o ac i a ion de e mines he a e age cos o ac i a ing
one pe son. I is calcula ed by means o he o mula:
PC =amoun o expendi u e om he Labou Fund
numbe o pe sons who pa icipa ed in a gi en o m (3)
In 2015, he e was a change in he me hodology o coun ing e ec i eness. This
change conce ned wo aspec s: he de ini ion o he end o pa icipa ion in ac i a ion
and he de ini ion o employmen . Be o e 2015, he da e o comple ion o pa icipa ion
in ac i a ion was he da e o comple ion o pa icipa ion in a gi en o m o suppo
( ainings, aineeships) o he da e o comple ion o inancing om he Labou Fund (public
wo ks, in e en ion wo ks, socially use ul wo ks, e unds o equipping o e o i ing
a wo ks a ion). The change o he de ini ion o employmen is ela ed o he change o
he condi ions a e ul ilmen o which an ac i a ed pe son can be conside ed employed.
Be o e 2015, a pe son was conside ed employed i , a e comple ing pa icipa ion in a
pa icula o m o ac i a ion, hey did no e- egis e wi h a po ia labou o ice wi hin
3 mon hs. I could happen ha some people los hei jobs and did no e- egis e , and
in he calcula ions hey we e conside ed as employed. In ou esea ch, his me hod o
de ining he end o pa icipa ion and employmen will be called he old p ocedu e.
The p o isions o he Ac o 20 Ap il 2004 on employmen p omo ion and labou
ma ke ins i u ions (Jou nal o Laws 2016, i em 645, as amended) de ined he da e o
comple ion o ac i a ion as he momen when he obliga ion pe iod ends. In he case o
e unding he cos s o p o iding addi ional equipmen o equipping a wo ks a ion, his is
he pe iod du ing which he employe is obliged o main ain he wo ks a ion c ea ed o
equipped wi h he unds om he Labou Fund. Since 2015, i has also been equi ed ha
an unemployed pe son, a e pa icipa ing in ac i a ion, wo ks o a leas 30 days o e a
pe iod o 3 mon hs and on his accoun (wi h ew excep ions) social insu ance con ibu ions
a e paid o he Social Insu ance Ins i u ion (Polish abb e ia ion ZUS). This me hod o
de ining he end o pa icipa ion and employmen will be called he new p ocedu e.
These 2015 changes we e o pa icula impo ance wi h ega ds o subsidising business
ac i i y and e unding he cos s o equipping o e o i ing a wo ks a ion. Bo h hese
o ms o ac i a ion a e connec ed wi h a one- ime paymen o unds. A he same ime, he
du a ion o hese o ms is long. The e alua ion o employmen e ec s a e h ee mon hs
om he paymen o unds, i.e., in he pe iod o obliga o y unning business ac i i y,
esul ed in employmen e ec i eness o bo h o ms being 100%, while cos e ec i eness
was equal o he a e age amoun o subsidies o e unds. The modi ica ions made we e
supposed o imp o e da a quali y.
Pe sons pa icipa ing in a gi en o m o ac i a ion a e hose o whom expendi u es
om he Labou Fund we e made in a gi en yea , ega dless o he du a ion o ac i a ion
o he mul iple use o he same o m o ac i a ion.
Pe sons who comple ed pa icipa ion in a gi en o m o ac i a ion a e pe sons who in
he examined yea comple ed pa icipa ion in a gi en o m o economic ac i a ion inanced
om he Labou Fund, including pe sons who comple ed ac i a ion ha commenced in
p e ious yea s.
People who ha e been employed a e hose who, du ing o wi hin 3 mon hs a e
comple ing pa icipa ion in a gi en o m o ac i a ion, ook up a job and kep i o a leas
30 days, acco ding o da a ob ained om he Social Insu ance Ins i u ion.
In he analysed pe iod, he highes cos e ec i eness was cha ac e ised by subsidies o
s a ing economic ac i i y and e unding cos s o equipping o e o i ing a wo ks a ion.
On he o he hand, he highes employmen e ec i eness was achie ed by subsidies
o s a ing business ac i i y and in e en ion wo ks. The g ea es numbe o people
pa icipa ed in in e nships o ganised by labou o ices. In Poland, g oups o people mos a
isk o unemploymen a e iden i ied. These a e he unemployed in a special si ua ion in
he labou ma ke . They include:
•
he unemployed unde 30 yea s o age (wi h a sepa a e g oup unde 25 yea s o age);
Economies 2021,9, 88 8 o 18
• he long- e m unemployed;
• he unemployed aged o e 50;
• he unemployed using social wel a e bene i s;
•
he unemployed ha ing a leas one child unde 6 yea s o age o a leas one disabled
child unde 18 yea s o age;
• he disabled unemployed;
•ca egi e s o a disabled pe son.
These people ha e p io i y in being e e ed o special p og ammes.
This s udy will compa e he e ec i eness de e mined a e he change om 2015
(new p ocedu e) o he e ec i eness de e mined on he basis o he old egula ions (old
p ocedu e). Figu e 2p esen s he cos o pa icipa ion, cos and employmen e ec i eness,
and he ac i a ion p og ammes in Poland in 2005–2019 de e mined on he basis o he
new and old p ocedu es. In Figu es 2and 3, alues ep esen ing cos e ec i eness and
cos o pa icipa ion a e p esen ed in USD. We used he exchange a e as o 23 May 2021
(1 USD = 3.69 PLN). A e he in oduc ion o he new way o de ining people who ha e
aken up employmen since 2015, he cos o pa icipa ion has no changed, bu he alue
o bo h o ms o e ec i eness has changed. S ill, he cos incu ed pe pe son employed
(cos e ec i eness) was much highe han he cos pe pe son s a ing o pa icipa e in
he p og amme.
Economies 2021, 9, x FOR PEER REVIEW 8 o 18
• he long- e m unemployed;
• he unemployed aged o e 50;
• he unemployed using social wel a e bene i s;
• he unemployed ha ing a leas one child unde 6 yea s o age o a leas one disabled
child unde 18 yea s o age;
• he disabled unemployed;
• ca egi e s o a disabled pe son.
These people ha e p io i y in being e e ed o special p og ammes.
This s udy will compa e he e ec i eness de e mined a e he change om 2015
(new p ocedu e) o he e ec i eness de e mined on he basis o he old egula ions (old
p ocedu e). Figu e 2 p esen s he cos o pa icipa ion, cos and employmen e ec i eness,
and he ac i a ion p og ammes in Poland in 2005–2019 de e mined on he basis o he new
and old p ocedu es. In Figu es 2 and 3, alues ep esen ing cos e ec i eness and cos o
pa icipa ion a e p esen ed in USD. We used he exchange a e as o 23 May 2021 (1 USD
= 3.69 PLN). A e he in oduc ion o he new way o de ining people who ha e aken up
employmen since 2015, he cos o pa icipa ion has no changed, bu he alue o bo h
o ms o e ec i eness has changed. S ill, he cos incu ed pe pe son employed (cos e -
ec i eness) was much highe han he cos pe pe son s a ing o pa icipa e in he p o-
g amme.
Figu e 2. Cos o pa icipa ion, cos and employmen e ec i eness o ac i a ion p og ams in Poland o al. Sou ce: own
elabo a ion.
In he yea s 2006–2010 a la ge inc ease in cos e ec i eness ( om abou PLN 6.5 hou-
sand/USD 1.76 housand o abou PLN 13 housand/USD 3.52 housand) was accompa-
nied by a ela i ely cons an employmen e ec i eness a he le el o abou 55% (Figu e
2). In 2011 he e was a signi ican d op in cos e ec i eness—compa ed o he p e ious
yea — om abou PLN 13 housand (USD 3.52 housand) o abou PLN 9 housand (USD
2.44 housand). This was ela ed o he co ec ion o he gene al go e nmen de ici de-
sc ibed ea lie . Then, un il 2015, bo h ypes o e ec i eness showed an upwa d end, and
0%
10%
20%
30%
40%
50%
60%
70%
80%
90%
100%
0
1000
2000
3000
4000
5000
6000
7000
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2015
2016
2017
2018
2019
Employmen e ec i eness
Cos e ec i eness, cos o pa icipa ion (USD)
Yea s
Cos e ec i eness (USD) new p ocedu e
Cos o pa icipa ion (USD)
Cos e ec i eness (USD) old p ocedu e
Employmen e ec i eness (%) new p ocedu e
Employmen e ec i eness (%) old p ocedu e
Figu e 2.
Cos o pa icipa ion, cos and employmen e ec i eness o ac i a ion p og ams in Poland o al. Sou ce:
own elabo a ion.
In he yea s 2006–2010 a la ge inc ease in cos e ec i eness ( om abou PLN 6.5 hou-
sand/USD 1.76 housand o abou PLN 13 housand/USD 3.52 housand) was accompanied
by a ela i ely cons an employmen e ec i eness a he le el o abou 55% (Figu e 2). In
2011 he e was a signi ican d op in cos e ec i eness—compa ed o he p e ious yea —
om abou PLN 13 housand (USD 3.52 housand) o abou PLN 9 housand (USD 2.44
housand). This was ela ed o he co ec ion o he gene al go e nmen de ici desc ibed
ea lie . Then, un il 2015, bo h ypes o e ec i eness showed an upwa d end, and a e
Economies 2021,9, 88 15 o 18
ness inc eased sligh ly. This change was also s a is ically insigni ican . The only signi ican
change was he change in he a e o decline o cos e ec i eness a e changing he me hod
o i s calcula ion (i was sligh ly as e ).
This s udy con i ms he esul s o p e ious esea ch conduc ed by au ho s (Bieszk-
S olo z and Dmy ów 2021). They analysed he impac o changes o calcula ion p ocedu es
on cos and employmen e ec i eness in Poland o oi odeships. The oi odeships we e
clus e ed using he k-means me hod o bo h he new and old calcula ion p ocedu es. The
impac o changes in oduced since 2015 on clus e ing esul s was analysed. Di e ences
we e examined using a simple simila i y measu e. Du ing he analysed pe iod, he change
in he p ocedu e o de e mining pe o mance measu es gene ally did no esul in la ge
di e ences in clus e ing esul s. The excep ion was he yea 2016. In 2018 he clus e ing
esul s we e iden ical. The oi odeships in which mo e unds we e alloca ed o ac i a ion
( he e we e high alues o cos e ec i eness) gene ally used hese unds o a lesse ex en
( alues o employmen e ec i eness we e lowe ), and ice e sa.
The analysis e e s o Poland, bu i can be applied o o he economic o social aspec s,
also in o he coun ies. This is an example in which ce ain egula o y changes did no
ha e a signi ican impac on he o ma ion o indica o s de e mining he e ec i eness o
measu es aimed a ac i a ing he unemployed.
S udies on he impac o changing legisla ion o policies on socio-economic phenomena
lead o di e en conclusions. Some imes, he impac signi ican ly al e s he p ocess unde
analysis. An example is he s udy by Lo su e al. (2019), who showed ha he powe ac o
co ec ion policy implemen ed by Ghana’s go e nmen is e ec i e. Simila ly, Wang e al.
(2019) showed ha in no he n China, ai quali y has g adually imp o ed due o a se ies
o hea ing policy changes implemen ed by he cen al go e nmen in ecen yea s. Wang
e al. (2021) analysed he co ela ion be ween he policy s ingency index and he numbe
o dea hs om COVID-19 in he wo ld. They showed ha policy con ol measu es had a
signi ican e ec on epidemic con ol. Howe e , changes in oduced do no always ha e
a signi ican e ec on he phenomenon analysed. An example is he s udy by S ancanelli
(2012), which aimed o assess he impac o he in oduc ion o an un a ou able pension
policy in F ance in 1993 on he economic beha iou o spouses. The analysis showed ha
he in oduced e o m did no signi ican ly a ec he p obabili y o e i emen o ma ied
women, while i signi ican ly educed he p obabili y o e i emen a e i emen age o
ma ied men.
This s udy used da a om labou o ice egis e s. Full moni o ing o people long
a e hey ha e le he egis e is a di icul ask. This is because i would equi e cos ly
su eys. As highligh ed by d’Homb es and San angelo (2019), esea ch app oaches based
on adminis a i e da a a e he mos common. In Eu ope, hese da a a e mos o en used o
coun e ac ual assessmen s o he impac o ac i e labou ma ke policies. These au ho s
poin ou ha coun e ac ual impac e alua ions based on adminis a i e da a usually
measu e he impac o ac i e labou ma ke policies on se e al ou come a iables, es ima e
he e ogeneous e ec s ac oss di e en subg oups, and examine sho - and long- e m e ec s.
In con as , su ey-based analyses end o be less comp ehensi e. Re o e and T i ella o
(2019) poin o simila ad an ages o his ype o esea ch. Fac o s limi ing he s udy o he
impac o policies on unemploymen a e also poin ed ou by Pesque a Alonso e al. (2021).
In hei s udy, hey assessed he impac o he You h Gua an ee policy launched in 2013 by
he Eu opean Union. I aimed o add ess high le els o you h unemploymen and NEET
a es. In hei indings, hey e ealed he impo ance o ime in policy implemen a ion,
di e ences and simila i ies be ween coun ies, and hidden p oblems in da a collec ion ha
led o e o s and misleading esul s. The au ho s concluded ha i was oo ea ly o assess
he use ulness o he policy and ecommended imp o ing he da a collec ion p ocess.
7. Conclusions
Se e al gene al conclusions can be d awn om he s udy:

Economies 2021,9, 88 16 o 18
1.
The changes o he me hod o calcula ion o bo h ypes o e ec i eness did no
signi ican ly a ec hei alues;
2. Only he a e o change o cos e ec i eness changed (al hough o a small ex en );
3.
The ob ained esul s con i med he conclusions o ea lie s udies using o he me hods.
This analysis o ms a pa o he esea ch on impac assessmen o changes in oduced
by legal egula ions. In his pa icula case, he change o calcula ion me hod was supposed
o imp o e he alue o applied pe o mance measu es. Despi e changes o he de ini ions
o indi idual elemen s, he e was no signi ican change in he alues o hese measu es.
A good solu ion would be o be e de ine people employed a e pa icipa ing in o ms o
p o essional ac i a ion. Howe e , his would equi e be e and longe moni o ing o he
employmen his o y o he de- egis e ed unemployed.
The s udy shows ha he in oduc ion o new egula ions o imp o e he in o ma ion
alue o indica o s should be moni o ed and adap ed o changing condi ions. This is
pa icula ly impo an in he case o he unemployed. I is necessa y o ind ac i a ion
measu es bes adap ed o ma ke needs. The e o e, in Poland, he ca alogue o hese
measu es and he way o calcula ing e ec i eness indica o s should be subjec o changes.
Ano he ema k is ela ed o he me hod i sel . The esul s ob ained as a esul o
applying he eg ession discon inui y design model a e wo h p esen ing in g aphical
o m. G aphs show especially well he analysed changes o hei absence. The sha p
o m o he model p esen ed in he pape is sui able o he analysis o socio-economic
phenomena o which he e has been a change o condi ions o a change o he me hod
o hei measu emen . This change mus occu a a p ecisely de ined momen (eligibili y
h eshold). I can be he da e o in oduc ion o a new egula ion/law o he da e o
a spec acula e en which in luences he analysed socio-economic phenomenon. The
esul s ob ained by applying a eg ession discon inui y design model make i possible o
assess whe he hese changes ha e had a signi ican impac on he u he cou se o he
analysed phenomenon and whe he he e has been a signi ican change in i s eligibili y
h eshold. The sha p o m o he model used in he p esen ed s udy is use ul in he
analysis o phenomena ha may be dis u bed by changes in legisla ion o as a esul o
he in oduc ion o new social p og ammes. Such changes usually ake e ec a a p ecise
momen in ime. An addi ional ad an age o his me hod is i s ecommenda ion by he
Eu opean Commission o e alua ion s udies.
Ou di ec ion o u u e esea ch in his a ea will in ol e an analysis o he impac
o p o ec i e measu es in he labou ma ke (due o he COVID-19 pandemic) on he
e ec i eness o o ms o p o essional ac i a ion.
Au ho Con ibu ions:
Concep ualiza ion, B.B.-S. and K.D.; me hodology, B.B.-S. and K.D.; so wa e,
B.B.-S.; alida ion, K.D.; o mal analysis, B.B.-S.; in es iga ion, B.B.-S. and K.D.; esou ces, B.B.-S. and
K.D.; w i ing—o iginal d a p epa a ion, B.B.-S. and K.D.; w i ing— e iew and edi ing, K.D. Bo h
au ho s ha e ead and ag eed o he published e sion o he manusc ip .
Funding: This esea ch ecei ed no ex e nal unding.
Da a A ailabili y S a emen :
A publicly a ailable da ase was analysed in his s udy. These da a
can be ound a he webpage o he Minis y o o Economic De elopmen , Labou and Technology
(MRPiT 2021): h ps://www.go .pl/web/ ozwoj-p aca- echnologia/e ek ywnosc- o m-p omocji-
za udnienia (accessed on 22 Ma ch 2021).
Con lic s o In e es : The au ho s decla e no con lic o in e es .
Re e ences
Behaghel, Luc, B uno C épon, and Béa ice Sédillo . 2008. The pe e se e ec s o pa ial employmen p o ec ion e o m: The case o
F ench olde Wolke s. Jou nal o Public Economics 92: 696–721. [C ossRe ]
Bieszk-S olo z, Bea a, and K zysz o Dmy ów. 2018. Applica ion o he Su i al T ees o Es ima ion o he P opensi y o Accep ing a
Job and Resigna ion om he Labou O ice Media ion by he Long-Te m Unemployed People. In P oblems, Me hods and Tools in
Expe imen al and Beha io al Economics. CMEE 2017. Sp inge P oceedings in Business and Economics. Edi ed by Kes a Ne mend and
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