2001年-世界发展银行全球_Poland___Labor_Market_Study--The_Challenges_of_Job_Creation_89页_6mb

Poland Labor Market Study – The Challenge of Job Creation Summary

Core Content

This report, prepared by the World Bank in collaboration with the Government of Poland, analyzes recent labor market developments and proposes a policy agenda aimed at increasing job creation and improving labor market transitions. It highlights the challenges posed by structural changes, high unemployment, and barriers to employment for certain groups, particularly the young, the less-skilled, and women.

Main Findings

• Unemployment Rise: The increase in unemployment is mainly due to accelerated job destruction, driven by enterprise restructuring following the Russia crisis and an imbalanced fiscal-monetary policy mix. Job creation has been slower and less aligned with the skills and locations of the jobs being destroyed.
• Private Sector Leadership: The private sector has been the main driver of job creation, with new jobs primarily concentrated in the service sector in the Warsaw area and requiring better-educated workers.
• Barriers to Transition: Key barriers include a binding minimum wage, high labor taxes, limitations in the labor code, and easy access to early retirement and social benefits. These factors have led to a situation where some individuals prefer social transfers over low-paying jobs, contributing to unemployment and underemployment traps.
• New Entrants Challenges: Recent school graduates, especially in rural areas, face high unemployment due to low educational attainment and the binding minimum wage. The labor code also limits the use of temporary contracts, which hinders their ability to gain experience and transition into formal employment.

Key Policies for Job Creation

1. Fiscal-Monetary Policy Mix

• The current fiscal and monetary policies have weakened domestic demand and slowed investment, while making Zloty-denominated assets attractive to foreign investors.
• This has led to currency appreciation, which negatively affects export growth and employment.
• A better fiscal-monetary mix is needed to support a virtuous cycle of investment and employment growth.
• Fiscal consolidation, through greater discipline and structural reforms, is essential to reduce real interest rates and stimulate investment.

2. Wage Flexibility

• The minimum wage is set at around 40% of the average wage, but it is disproportionately high for young and less-skilled workers.
• A differentiated minimum wage by age and region could help reduce unemployment among these groups.
• While this may increase wage inequality, it is a necessary trade-off to avoid greater inequality in job access.

3. Labor Tax Reductions

• High labor taxes (51% of gross wages) discourage both labor supply and demand, especially for less-skilled workers.
• Reducing the tax wedge is crucial to lowering the cost of job creation and encouraging formal employment.
• Options include increasing flat income tax deductions and providing tax credits for low-income families.
• Payroll tax reductions can be achieved by identifying alternative funding sources for active labor market programs and eliminating implicit taxes on hiring disabled workers.

4. Labor Code Reforms

• Revisions to the labor code are needed to align it with modern practices and the needs of the service sector.
• Temporary contracts should be limited to a certain number, with intervals of at least one month between renewals.
• All forms of remuneration under temporary contracts should be taxable to prevent abuse.
• Overtime pay should be standardized at 50% over regular hours, with a daily limit of 4 hours.

5. Education and Training

• Investment in education and training is essential to improve the skills of the labor force.
• Emphasis should shift from vocational education to general education that provides broader, transferable skills.
• A national learning assessment can help monitor quality and allocate resources effectively.
• Training programs should target specific skills shortages and individuals at risk of long-term unemployment.

6. Labor Market Program Reforms

• Incentives in labor market programs should be realigned to encourage re-employment and reduce dependency on benefits.
• Re-employment bonuses should be given to workers who find jobs before the end of their unemployment benefits.
• Eligibility for pre-retirement benefits should be tightened to discourage prolonged unemployment.
• Active labor market programs should target vulnerable groups such as the less-skilled, youth, the disabled, and those in high unemployment areas.

7. Business Environment Improvements

• Lowering the costs of starting and running businesses is critical for job creation.
• A transparent and efficient business environment, free from administrative discretion and undue privilege, is necessary.
• Simplifying the tax system and improving public administration standards will support private sector development and attract foreign direct investment (FDI).

Conclusion

The labor market in Poland is dynamic and evolving, but structural and policy barriers are impeding job creation and transition. A comprehensive policy agenda is required to address these challenges, including fiscal reforms, labor code adjustments, education investment, and business environment improvements. These actions are essential to support a sustainable and inclusive labor market that can reduce unemployment and poverty, especially among vulnerable groups.