Export of unemployment

benefits
PD U2 Questionnaire

June 2014

Prof. dr. Jozef Pacolet & Frederic De Wispelaere

HIVA – KU Leuven
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Network Statistics FMSSFE

This report has been prepared in the framework of Contract No VC/2013/0301 ‘Network of Experts on intra-
EU mobility – social security coordination and free movement of workers / Lot 2: Statistics and compilation
of national data’. This contract was awarded to Network Statistics FMSSFE, an independent research
network composed of expert teams from HIVA (KU Leuven), Milieu Ltd, IRIS (UGent), Szeged University and
Eftheia bvba. Network Statistics FMSSFE is coordinated by HIVA.

Authors:

Prof. dr. Jozef Pacolet, Head of the ‘Welfare State’ research group, HIVA - Research Institute for Work and
Society, University of Leuven (KU Leuven).

Frederic De Wispelaere, Senior research associate, HIVA - Research Institute for Work and Society,
University of Leuven (KU Leuven).

Peer reviewers:

Prof. dr. József Hajdú, Head of the Department of Labour Law and Social Security, Szeged University.

Gabriella Berki, Professor Assistant at the Department of Labour Law and Social Security, Szeged University.

Suggested citation:
PACOLET, J. and DE WISPELAERE, F., Export of unemployment benefits – PD U2 Questionnaire, Network
Statistics FMSSFE, European Commission, June 2014, 25 p.

Disclaimer:
This document has been prepared for the European Commission. However, it reflects the views only of
the authors, and the Commission cannot be held responsible for any use which may be made of the
information contained therein.

© European Union, 2014

Reproduction is authorised provided the source is acknowledged.

June 2014 ii
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Table of Contents
List of Tables .................................................................................................. iv

List of Figures .................................................................................................. v

Executive Summary .......................................................................................... 1

1. Introduction ........................................................................................... 2

2. Number of PDs U2 issued and received ....................................................... 3

3. The number of prolongations .................................................................... 8

4. The success rate and impact of prolongation ............................................. 12

5. The length of the export period ............................................................... 16

6. Administrative procedures ...................................................................... 17

7. Awareness-raising policies ...................................................................... 18

8. Inappropriate use .................................................................................. 18

9. Conclusion and recommendations ............................................................ 19

Annex 1 The impact of the unemployment rate on the export and import of jobseekers
and their success rate ..................................................................................... 20

Annex 2 Country abbreviations ......................................................................... 23

Annex 3 PD U2 Questionnaire........................................................................... 24

June 2014 iii

 Employment, Social Affairs and Inclusion
Export of unemployment benefits

List of Tables
Table 1 Number of PDs U2/SEDs U008 issued and received, second semester
2013 6

Table 2 Percentage of unemployed persons with a PD U2/SED U008 compared

to the average number of unemployed persons, 2013 8

Table 3 The number of requested and granted prolongations of the period of

export, second semester 2013 10

Table 4 Applied policies by MSs concerning the request for prolongation of the
period of export (prolongation possible? Yes / No) 11

Table 5 The number of unemployed persons with a PD U2 who have found

work, per sending MS, second semester 2013 13

Table 6 The number of unemployed persons with a PD U2 who have found

work, per receiving MS, second semester 2013 14

Table 7 The success rate of job search by (mobile) unemployed persons

during the first three months, second semester 2013 16

Table 8 The average length of the period of export, second semester 2013 17

Table A2 Country abbreviations 23

June 2014 iv
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

List of Figures
Figure 1 The current and future flow of documents applicable to the export of
unemployment benefits 3

Figure 2 The net balance between unemployed jobseekers sent on the basis of
a PD U2/SED U008 and unemployed jobseekers received on the basis
of a PD U2/SED U008, second semester 2013 7

Figure A1.1 The net balance of outgoing and incoming unemployed persons confronted
with the average unemployment rate, second semester 2013 20

Figure A1.2 The ratio outgoing vs. incoming jobseekers confronted with the average
unemployment rate, second semester 2013 20

Figure A1.3 The percentage of unemployed persons who have exported their
unemployment benefit confronted with the average unemployment rate of
2013, per issuing MS 21

Figure A1.4 The percentage of unemployed persons who have imported their
unemployment benefit confronted with average unemployment rate of 2013,
per receiving MS 21

Figure A1.5 The success rate of receiving MS confronted with the average unemployment
rate in these MSs, second semester 2013 22

June 2014 v
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Executive Summary
 The mobility of unemployed persons looking for work abroad on the basis of a PD U2
is very limited: about 1 out of 1,000 unemployed persons. Some 13,866 PDs U2 or
SEDs U008 were issued in the second semester of 2013 and some 10,692
jobseekers were actually registered with the employment services of the Member
State to which they have gone. From this semi-annual information an estimated
number for one year of 28,079 can be expected. This has to be compared to some
24.9 million unemployed persons.

 For the EU28 some 8.4% of PDs U2 issued were prolonged for another three months
up to a maximum of six months.

 The export rules are not applied uniformly across the EU. Some Member States do
not grant a prolongation of the export period while other Member States grant a
prolongation if the unemployed person meets a number of criteria. The criteria for
granting prolongation also differ between Member States.

 For only a limited number of Member States was information up until now available
on the success rate of finding a job while exporting the unemployment benefit. For
those sending Member States for which information was available on average 8.3%
of the persons that exported their unemployment benefit obtained work within the
first three months. In the prolongation period a similar average percentage of 8.5%
found a job, bringing the total average success rate to 8.7%. For those Member
States granting a prolongation the average success rate in the first three months
was already higher and further increased during the prolongation up to 14.6%. For
the total set of Member States with and without prolongation, the total average
success rate of finding a job while exporting the unemployment benefit was 9.5%.
Similar success rates calculated from the point of view of the receiving Member
States most of the time revealed lower success rates, indicating that the export of
an unemployment benefit revealed a choice versus Member States of more job
opportunities. More complete information, and more detailed information on bilateral
flows of jobseekers could help to interpret those figures. Further information on
micro data on the profile/motivation of the unemployed persons is, however, needed
to fully analyse those phenomena, which is beyond the scope of those macro figures.

 With regard to administrative impact, Member States observe a lower administrative

burden compared to the old procedure. Nevertheless, some problems arise due to
the delay in providing necessary documents between Member States. These
problems could have an impact on the (non-)payment of the unemployment benefit.
A need for efforts to further raise awareness and provide information is mentioned in
several Member States. On the contrary, only in a limited number of Member States
is inappropriate use mentioned.

 The new questionnaire on PD U2 has proven to reveal information that was up until
now unavailable, both from the sending and receiving Member States of unemployed
persons exporting their unemployment benefit. Providing further information on the
bilateral basis is required. Further details on additional dimensions of the application
of the coordination regulation, as among others, the number of persons that not
registered for at least four weeks in the competent Member State before exporting
their unemployment benefit; the number of persons that not registered within seven
days with the employment service of the receiving Member State; and the number of
unemployed persons who failed to provide a PD U2 seems to be feasible within the
scope of the data collection based on the questionnaire on PD U2.

June 2014 1
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

1. Introduction
Portable Document U2 (PD U2) ‘Retention of unemployment benefits’ provides
unemployed persons with the authorisation to export their unemployment benefits
under Article 64 of Regulation (EC) No 883/2004 if they go to another Member State
(MS)1 to look for work.2 The reference period for the present and first data collection
on PD U2 is the second half of calendar year 2013.3

At its 334th meeting of 12-13 March 2013, the Administrative Commission agreed on
the collection of data on PD U2. The MSs were subsequently provided with a draft
questionnaire (AC 177/13). In order to give the MSs the chance to take the necessary
preparatory measures to allow them to collect the data for the indicated reference
period it was agreed to start the data collection from the second semester of 2013
onwards. To monitor the developments and trends in this area of social security
coordination, the data collection on PD U2 will in the future be carried out annually.
The data collection exercise is accompanied by several qualitative questions giving
MSs the opportunity to share their experiences with the application of the EU
provisions to the export of unemployment benefits.

To facilitate the understanding of the frequently used terms, Figure 1 provides an

overview of the current flow of documents between the MSs involved and the citizen.
It also enables us to identify some of these flows and to discuss the related
administrative concerns.

PD U2 (the old E303 form) grants the unemployed person an authorisation to export
his/her unemployment benefit to another MS in order to seek work there for a period
of three months. With this PD U2, the unemployed person must register as a person
seeking work with the employment services of the MS to which he/she has gone. The
institution in this MS has to inform the competent institution via Structured Electronic
Document (SED) U009 ‘Notification Registration – Export’ about the registration. When
the unemployed person registers without a PD U2 the institution in the MS to which
the unemployed person has gone requests the document on export with an SED U007
‘Request Document on Export’ from the competent institution and indicates the date of
registration. The competent institution provides the institution in the MS to which the
unemployed person has gone with the requested document (SED U008) ‘Document on
Export’4 and continues to pay the unemployment benefit of the unemployed person.
The latter may request an extension of the export period for another three months up
to a maximum of six months. If the competent institution extends the export period it
has to inform the institution in the MS to which the unemployed person has gone
about the extension by means of an SED U015 ‘Extension Period of Export’.

The competent institution may request a monthly follow-up from the institution in the
MS to which the unemployed person has gone (via PD U2 (point 3.2 of the document)
or SED U012 ‘Request for Monthly Follow-up’). If a monthly follow-up is requested,
each month the institution in the MS to which the unemployed person has gone has to
confirm by means of an SED U013 ‘Monthly Follow-up’ that the unemployed person
still complies with the procedures. If any circumstances occur which could affect the
entitlement to an unemployment benefit (the person has taken up employment, has

1
MS: includes the EU/EEA countries and Switzerland.
2
See also Article 55 of Implementing Regulation (EC) No 987/2009.
3
See Annex 3 for the PD U2 Questionnaire.
4
However, only the body of SED U008 provides information on the entitlement (point 3: entitlement yes or
no).

June 2014 2
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

become self-employed, has refused a job offer or interview request …) the institution
in the MS to which the unemployed person has gone has to inform the competent
institution by means of an SED U010 ‘Circumstances Affecting Entitlement – Export’
and the unemployed person by means of a PD U3 ‘Circumstances likely to affect the
entitlement to unemployment benefits’.

Figure 1 The current and future flow of documents applicable to the export of unemployment
benefits

Source Own figure based on SEDs

2. Number of PDs U2 issued and received

Input from 29 MSs was received, resulting in a total of 13,866 PDs U2/SEDs U008
issued and 10,692 of PDs U2/SEDs U008 received during the second semester of
2013 (Table 1).5,6,7,8 Most PDs U2/SEDs U008 were issued (in absolute values) by ES
(3,128), PT (1,751) and DE (1600)9. UK (2,129), FR (1,954) and PL (1,374) registered
the highest number of jobseekers on the basis of a PD U2/SED U008. Possible reasons
to export the unemployment benefit as well as the comparison of these absolute
values with the total number of unemployed persons will be discussed below.

We would expect to observe an equal number of PDs U2/SEDs U008 received and
issued. Different possible reasons may explain this discrepancy between both. Firstly,
the reported totals do not currently cover IS, LI and CH. Secondly, also the time

5
The annual figures for 2013 provided by BE, FR, SI and PT have been divided by 2.
6
No distinction could be made between the number of PDs U2 issued/received and the number of SEDs
U008 issued/received. This distinction would enable us to quantify the number of unemployed persons who
have registered with the employment service in the MS to which they have gone with(out) a PD U2.
7
More detailed bilateral flows of incoming & outgoing unemployed persons between MSs are not available.
8
See Annex 2 for the explanation of the country abbreviations.
9
Estimate for DE.

June 2014 3
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

dimension might play a role as there will be a period of time between the moment the
PD U2 is issued by the competent MS and the moment the unemployed person has
registered with the employment services of the MS which (s)he has gone to. However,
Article 64(1)(b) of Regulation (EC) No 883/2004 states that the unemployed person
has to register within seven days after (s)he ceased to be available to the employment
services of the MS which (s)he left. Finally, not every unemployed person who
received a PD U2 will eventually export his/her unemployment benefit. But, perhaps
also other reasons might explain this discrepancy.

Only 187 forms (or 1.3% of the total number of forms issued) were immediately
issued for a period longer than three months. This policy was applied by CZ, SI and
SK.10 However, only CZ issued consistently all PDs U2/SEDs U008 for a period longer
than three months, while SI and SK applied this only to a limited number of PDs
U2/SEDs U008.

Figure 2 gives an overview of the net balance of PDs U2/SEDs U008 per MS by
showing the number of outgoing unemployed persons on the basis of a PD U2/SED
U008 minus the number of incoming unemployed persons on the basis of a PD U2/SED
U008. Some MSs are ‘net recipients’ (UK, PL, FR, RO, BG, BE, SK, SE, NO, LT, MT, HU,
HR and LU) while other MSs are ‘net senders’ (ES, PT, NL, DK, IT, AT, IE, CY, LV, CZ,
SI, EE and FI) of unemployed persons exporting their unemployment benefit.

Several factors could influence the decision to export the unemployment benefit.
Figures A1.1 – A1.4 (see Annex 1) illustrate to what extent the incoming and outgoing
flows of unemployed persons could (partly) be explained by the level of the national
unemployment rates. A higher export of the unemployment benefit in MSs with a high
unemployment rate as well as the export of the unemployment benefit to a MS with a
lower unemployment rate compared to the competent MS could be expected.11
However, based on a first tentative analysis no final conclusion could be made. Figures
A1.1 and A1.2 show a positive relationship between the national unemployment rates
and the net balance of outgoing and incoming jobseekers (in absolute and relative
values), which confirms our initial hypothesis. In Figures A1.3 and A1.4 the separate
flows of outgoing and incoming jobseekers (as a share of the number of unemployed
persons of the outgoing or receiving MS) are confronted with the national
unemployment rates. MSs with a low unemployment rate seem to attract more
jobseekers (Figure A1.4) which could be an indication for the export of the
unemployment benefit to MSs with lower unemployment rates. However, Figure A1.3
shows a negative relationship between the percentage of outgoing jobseekers and the
unemployment rate in the outgoing MS, which is in contradiction to the hypothesis of
a higher export of the unemployment benefit in MSs with a high unemployment rate.
Reasons to export the unemployment benefit other than the height of the
unemployment rate are perhaps more decisive.

More detailed information on the export of unemployment benefits could be collected

from the national reports. However, only DK, IE, LT, FI, SE and UK reported that they
carried out an assessment, survey or study on a national level on the export of
unemployment benefits.12 Especially the national report of SE provides useful
additional information. It states that: “The Unemployment Insurance Board (IAF) has

10
However, also DE (see remark ** Table 1) and MT (Table 4) report that if there is a sufficiently long
period of entitlement the PD U2 will be issued for more than three months.
11
MSs were not yet able to report the bilateral flows between MSs in the PD U2 Questionnaire of 2013. This
should be revised for the data collection of 2014.
12
However, ES reports on the evolution of the number of PDs U2 issued: 2010: 1,477 forms; 2011: 2,923
forms; 2012: 4,758 forms; 2013: 6,257 forms.

June 2014 4
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

in 2012 written a report which shows that jobseekers between the ages of 30 and 39
used the opportunity to export their unemployment benefits in a slightly higher extent
than other age categories. It also shows that the group consisted of more women than
men. Of the jobseekers who travelled to another EU country to search for work, 48
percent went to their own birth country and of the jobseekers who travelled to an EEA
country or Switzerland, 29 percent went to their own birth country”.13 Also the
national report of IE “suggests that in the majority of cases exports are being made to
the native country of the recipient”.

Different reasons to export the unemployment benefit to another MS might appear (a

lower unemployment rate compared to the competent MS, familiarity with the MS
where looking for employment, ‘return’ of the mobile worker to his/her country of
birth …). This kind of detailed information on the profile/motivation of the unemployed
person has an important added value and should be confronted with the (future) input
from other MSs.14 For that reason, more detailed statistical information is needed to
assess this further, among others on the bilateral flows between MSs of the export of
the unemployment benefit and on the nationality of those unemployed persons.

The mobility of unemployed persons seems very limited when we confront these data
with the total number of unemployed persons (the average number of unemployed
persons of 2013) (Table 2). On average 0.11% (1 out of 1,000) of the unemployed
persons in the MSs of which administrative data is available moved abroad on the
basis of a PD U2/SED U008 in order to seek work.15 Only LU (1.26%), NO (0.86%), AT
(0.81%) and DK (0.61%) show a relatively high percentage of unemployed persons
exporting their unemployment benefit.

13
E.g. for 2012 DK reports that 930 Danish citizens (or 68.5% of the total amount) have exported their
unemployment benefit and 430 other EU/EEA citizens (or 31.5% of the total amount).
14
Perhaps a distinction could be made between national workers, migrant workers, frontier workers and
other cross-border workers.
15
However, it is not always necessary to export the unemployment benefit. For example (unemployed)
jobseekers can create a CV in EURES and make it available for registered employers and EURES advisers
helping employers to find suitable candidates. Most registered jobseekers live in IT, ES and RO (based on
EURES statistics of 7 April 2013).

June 2014 5
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Table 1 The number of PDs U2/SEDs U008 issued and received, second semester 2013*

MS No of PDs U2 or No of PDs U2 or Total No of PDs U2 No of persons who

SEDs U008 issued SEDs U008 issued or SEDs U008 issued registered as a
for up to 3 months for more than 3 (A+B) jobseeker on the
(A) months (B) basis of a PD U2 or
on the basis of a SED
U008
BE*** 716 0 716 895
BG 40 0 40 266
CZ 0 177 177 134
DK 620 0 620 75
DE** e n.a. n.a. n.a.
1,600
EE 41 0 41 19
IE 536 0 536 220
EL n.a. n.a. n.a. n.a.
ES 3,128 0 3,128 698
FR*** 1,510 0 1,510 1,954
HR 27 0 27 41
IT 487 0 487 n.a
CY 156 0 156 14
LV 204 0 204 81
LT 73 0 73 165
LU 93 0 93 94
HU 27 0 27 108
MT 6 0 6 91
NL 952 n.a. 952 276
AT**** 869 869 493
PL 140 0 140 1,374
PT*** 1,751 0 1,751 327
RO 3 0 3 260
SI*** 26 7 33 11
SK 39 3 42 219
FI***** 106 0 106 95
SE 168 0 168 311
UK 142 0 142 2,129
Subtotal 13,459 187 13,646 10,350
EU28*******
IS
NO****** 220 n.a. 220 342
LI
CH
Total******* 13,679 187 13,866 10,692
* n.a.: no data available; blank: non-response.
** DE: estimate for DE. When there is a sufficiently long period of entitlement the period of
export will immediately be longer than three months (for ± 40% of the cases).
*** BE, FR, PT and SI: annual figure reported by MS divided by 2 to estimate results for
second semester 2013. However, for PT the No of forms received is the exact number
during the second semester.
**** AT: unable to make a distinction between up to three months (A) and more than three
months (B).
***** FI: for the number of forms issued figures from the unemployment funds are quoted.
However, 73 PDs U2 were issued in the second semester of 2013 by the Social Insurance
Institution (Kela).
****** NO: total number of forms issued for 2013: 788; total number of forms received for
2013: 508.
****** Subtotal EU28 and total: excluding not reporting MSs.
Source Administrative data PD U2 Questionnaire

June 2014 6
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Figure 2 Net balance between unemployed jobseekers sent on the basis of a PD U2/SED
U008 and unemployed jobseekers received on the basis of a PD U2/SED U008,
second semester 2013*

* n.a.: DE, GR; blank: BE, HR, IS, LI and CH.

Source Administrative data PD U2 Questionnaire

June 2014 7
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Table 2 The percentage of unemployed persons with a PD U2/SED U008 compared to the
average number of unemployed persons, 2013*

MS Total number of PDs Estimated number of Average number of % unemployed

U2 or SEDs U008 PDs U2 or SEDs unemployed persons persons who have
issued second U008 issued 2013 2013 (in ,000) exported their
semester 2013 (A*2) (B) unemployment
(A) benefit (A*2/B)
BE** 716 1,431 417 0.34%
BG 40 80 433 0.02%
CZ 177 354 368 0.10%
DK 620 1,240 202 0.61%
DE e 3,200 2,262 0.14%
1,600
EE 41 82 58 0.14%
IE 536 1,072 281 0.38%
EL n.a. n.a. n.a.
ES*** 3,128 6,257 5,986 0.10%
FR** 1,510 3,019 2,818 0.11%
HR 27 54 318 0.02%
IT 487 974 3,105 0.03%
CY 156 312 70 0.44%
LV 204 408 119 0.34%
LT 73 146 172 0.08%
LU 93 186 15 1.26%
HU 27 54 448 0.01%
MT 6 12 12 0.10%
NL 952 1,904 590 0.32%
AT 869 1,738 215 0.81%
PL 140 280 1,788 0.02%
PT** 1,751 3,501 873 0.40%
RO 3 6 730 0.00%
SI** 33 65 102 0.06%
SK 42 84 386 0.02%
FI 106 212 219 0.10%
SE 168 336 409 0.08%
UK 142 284 2,397 0.01%
Subtotal 13,646 27,291 24,792 0.11%
EU28****
IS
NO*** 220 788 92 0.86%
LI
CH
Total 13,865 28,079 24,883 0.11%
* n.a.: no data available; blank: non-response.
** BE, FR, PT and SI: original input from BE, FR, PT and SI.
*** ES and NO also provided data for 2013. For these MSs there is no multiplication by 2.
**** % EU 28 and total: weighted average. MSs are only taken into account when their
national percentage (last column) is known.
Source Administrative data PD U2 Questionnaire and Eurostat Indicator ‘Unemployment by
sex, age and nationality (1 000)’ (aged 15 -64)

3. The number of prolongations

The freedom of choice of MSs accorded by Article 64(1)(c) of Regulation (EC) No
883/2004 to extend the period of three months up to a maximum of six months
results in a non-uniform application of the export rules. About 8.4% of the PDs U2
were prolonged. The highest percentage of prolonged PDs U2 are obtained for RO
(33% of the PDs U2 issued), EE (32% of the PDs U2 issued) and LU (29% of the PDs
U2 issued). However, we should deduct the number of unemployment persons who
have found work during the first three months of their export period from the number
of PDs U2/SEDs U008 issued in order to obtain a more exact percentage of
unemployed persons who have received a prolongation of the export period. This kind
of data is only available for 7 MSs (EE (39.4%), LT (8.1%), LU (31.4%), MT (25.0%),
PL (29.3%), SI (9.4%) and SK (24.2%).

June 2014 8
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Based on the quantitative and qualitative input of the MSs, differences appear in the
policies applied for granting a prolongation (Table 3 and Table 4). DK, IE, GR, FR, HR,
CY, IT, NL, FI, SE, UK and NO (or 46% of the reporting MSs (excluding CZ, HU and
MT)) do not grant an extension of the export period, while BE, BG, DE, EE, ES, LV, LT,
LU, AT, PL, PT, RO, SI and SK (or 54% of the reporting MSs (excluding CZ, HU and
MT)) could/will accept the request for prolongation (Table 4). Most of the latter MSs
have defined formal criteria to assess the requests for prolongation. Most applied
criteria are i) proof of an increased chance of finding a job abroad during the extended
period (BE, BG and ES); ii) proof of efforts by the unemployed person during the first
three months (BE, EE, LT and PT, AT); iii) job opportunities on the labour market of
the competent MS (DE, PL and AT). CZ issued all PDs U2 for the total duration of the
period of the entitlement. Because of the maximum duration of the entitlement to an
unemployment benefit (90 days) a prolongation of export is not possible in HU. The
applied policy by MSs could also be observed by the quantitative input (Table 3). BG,
EE, LV, LT, LU, MT, PT, PL, RO, SI and SK approved almost all the requests for
prolongation, while IE, FR, IT, HU, FI, SE and UK never granted a prolongation.16

16
Most of the MSs which do not grant a prolongation also report that none of the unemployed persons
requested a prolongation of the export. However, the requests are perhaps not counted/registered by these
MSs or the unemployed person might be well aware of the fact that (s)he will not be granted a
prolongation?

June 2014 9
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Table 3 The number of requested and granted prolongations of the period of export, second
semester 2013*

MS Total number of No of requests No of % prolonged % approved

PDs U2 or SEDs for prolongation prolongations (C/A)**** (C/B)
U008 issued (A) of export (B) granted (C)

BE** 716 n.a. 29 4.1% n.a.

BG 40 9 9 22.5% 100.0%
CZ 177 n.a. n.a n.a. n.a.
DK 620 0 0 0.0% 0.0%
DE e n.a. n.a. n.a. n.a.
1,600
EE 41 13 13 31.7% 100.0%
IE 536 11 0 0.0% 0.0%
EL n.a. n.a. 0 n.a. n.a.
ES 3,128 n.a. 404 12.9% n.a.
FR** 1,510 0 0 0.0% 0.0%
HR 27 0 0 0.0% 0.0%
IT 487 0 0 0.0% 0.0%
CY 156 1 0 0.0% 0.0%
LV 204 59 42 20.6% 71.2%
LT 73 5 5 6.8% 100.0%
LU 93 27 27 29.0% 100.0%
HU 27 0 0 0.0% 0.0%
MT 6 1 1 16.7% 100.0%
NL 952 n.a. n.a. n.a. n.a.
AT 869 n.a. n.a. n.a. n.a.
PL 140 37 36 25.7% 97.3%
PT** 1,751 239 239 13.6% 100.0%
RO 3 1 1 33.3% 100.0%
SI** 33 3 3 9.1% 100.0%
SK 42 8 8 19.0% 100.0%
FI 106 0 0 0.0% 0.0%
SE 168 0 0 0.0% 0.0%
UK 142 n.a. 0 0.0% 0.0%
EU28*** 13,646 414 817 8.4%
IS
NO 220 less than n.a. n.a. n.a.
5%
LI
CH
Total 13,866
* n.a.: no data available (CZ: n.a. = not applicable in column (B)); blank: non-response. MSs
indicating 0% in the last two columns may not prolong the export period.
** BE, FR, PT and SI: annual figure reported by MS divided by 2 to estimate results for
second semester 2013.
*** % of EU28 only calculated for those MSs which reported columns (A) and (C) (weighted
average). The weighted average increases to 10.2% when also CZ is taken into account
(the 177 PDs U2 issued are immediately provided for six months). The weighted average
decreases to 7.7% when NL is taken into account (no prolongation of the PD U2 – see Table
4).
Source Administrative data PD U2 Questionnaire

June 2014 10
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Table 4 Applied policies by the MSs concerning the request for prolongation of the period of
export (prolongation possible? Yes / No)

MS Prolongation Applied criteria

BE YES * Efforts of the unemployed person to look for work
* Chance of finding a job abroad
BG YES * Is there an increased possibility to find a job abroad?
CZ The unemployed person is authorised to export his/her unemployment benefit for the complete
entitlement period
DK NO
DE YES * Reason of the unemployed person to seek work abroad;
* Chance of integration;
* Taking into account the national labour demand.
EE YES Taking into account:
* Efforts of the unemployed person to look for work abroad during the first 3
months;
* Planned activities of the unemployed person for the future job seeking
process;
* The jobseeker's evaluation why and how the prolongation would help to
find a job abroad;
* The opinion of the mediation consultant.
IE NO
EL NO
ES YES * Proof that the prolongation period has anything to do with actual
possibilities to find a job.
FR NO
HR NO
IT NO
CY NO
LV YES * Comply with all procedures.
LT YES * Person should write an application and present evidence of his/her job
search in MS.
LU YES * Normally the request for prolongation is always accepted if time periods
are respected.
HU Because of the maximum length of the unemployment benefit (90 days) prolongation of export is
not possible. On the other hand prolongation of export in case of unemployment benefit prior to
pension is possible.
MT If on the basis of the length of his/her insurance record a person is entitled to 6 months of benefit,
the prolongation is granted automatically.*
NL NO
AT YES The jobseeker has to return to Austria. Only in exceptional cases a request of
prolongation is approved without return.
Taking into account:
* The job search during the first 3 months;
* Is there a need for additional education/ training?;
* Job availability on the national labour market.
PL YES * The competent institution will verify whether or not there is a job offer or
any other labour market instrument addressed to the unemployed person in
PL.
PT YES * Verification of active job search by information request through applicable
SED.
RO YES * Approved on the ground that a longer export period is likely to provide
more chances for finding employment, and inasmuch as the unemployed
person complies with the control and checking rules applied by the assisting
institution.
SI YES * The assessment of the request for prolongation of the period of export is
usually based on the information provided by the person’s employment
counsellor in another MS.
SK YES * It is sufficient to prove any reason for such a request, for example family
reasons, better possibilities to find a work or study interest.
FI NO
SE NO
UK NO
IS
NO NO
LI
CH
* MT: In contradiction to Table 1 where none of the PDs U2 were issued for a period > three months.
Source Qualitative data PD U2 Questionnaire

June 2014 11
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

4. The success rate and impact of prolongation

The total success rate is calculated by dividing the number of persons who found work
in another MS during the export period by the total number of PDs U2 or SEDs U008
issued. Yet, also the success rate during the first three months of the export period
and the success rate during the prolongation period should be calculated. However,
there are some methodological concerns. Firstly, the number of persons who received
a PD U2 during the second semester of 2013 is not necessarily the group of persons
for which the chance of finding a job is verified. Secondly, there is no verification in
the questionnaire if the total number of PDs U2 issued is equal to the number of
persons who found work in another MS plus the number of persons who returned
before the export period plus other possibilities: e.g. those who found work in the
competent MS, those who returned after the export period etc. Finally, only for a
limited number of MSs was it possible to calculate the success rate. Among others,
MSs with a high number of PDs U2 issued (i.e. ES, FR and DE) or received (i.e. UK and
FR) did not provide any data on the number of persons who found work. These
limitations do not permit any firm conclusions. However, the reported tentative results
below should encourage MSs to provide more data and should promote debate on this
issue.

The total success rate (= the percentage of unemployed persons exporting their
unemployment benefit who have found work abroad) during the export period varies
considerably between MSs. An average total success rate between 9.5% (average
percentage issuing MSs) and 6.6% (average percentage receiving MSs) was obtained
(Table 5 and Table 6). The highest success rates are observed for unemployed
persons coming from MT (33.3%), HU (22.2%) and SK (21.4%) and for unemployed
persons looking for employment in NL (19.6%), LU (18.1%) and CY (14.3%).

However, in order to assess the impact of the prolongation period a distinction should
be made between the success rate during the first three months of the export period
and the success rate during the prolonged export period. For 13 issuing MSs (DK, EE,
IE, CY, LT, LU, HU, MT, PL, RO, SI, SK and FI) it was possible to calculate the success
rate for both periods. Note that these issuing MSs only include 1,876 PDs U2 (or 15%
of the total number of PDs U2 issued) (Table 5). After three months 8.3% of the
unemployed persons who have received a PD U2 from these MSs found work. Also,
8.5% of the unemployed persons who have been granted an extension of the export
period found work during this period. As some MSs do not grant an extension of the
export period the average total success rate increases rather limited after the
prolongation period to 8.7% (or an increase with 0.2%-points).17 In order to assess
the impact of the prolongation period it is therefore more interesting to select only the
MSs who are granting a prolongation (EE, LT, LU, MT, PL, RO, SI and SK). However,
these issuing MSs only include 431 PDs U2 (or 3% of the total number of PDs U2
issued). The average success rate increases for these MSs from 12.8% after three
months to 14.6% after the prolongation period (or an increase by 1.8%-points). More
or less the same picture appears for the receiving MSs (Table 6). For 13 receiving MSs
(EE, IE, CY, LT, LU, HU, MT, PL, PT, RO, SI, SK and SE) we were able to calculate the
success rate during the first three months as well as the total success rate (after
prolongation of the export period). These receiving MSs include 3,213 PDs U2 (or 31%
of the total number of PDs U2 issued). The average success rate increases for these

17
The success rate would increase from 8.3% after three months to about 16% after the prolongation of the
export period if all jobseekers who did not find a job during the first three months had received an extension
up to a maximum of six months.

June 2014 12
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

MSs from 4.9% after three months to 5.7% after the prolongation of the export period
(or an increase by 0.8% points).

We observe a limited negative correlation (-0.22) between the national unemployment

rates and the success rate of finding work in the receiving MS. Figure A1.5 (see
Annex 1) visualises the weak relationship between both variables and illustrates
especially the strong variability of data.

Table 5 The number of unemployed persons with a PD U2 who have found work, per sending
MS, second semester 2013*
Sending MS Total No of No of persons of which: No of of which: No of Success Success rate Total
number prolongations who found work persons who persons who rate during the success
of PDs granted in another MS found work in have found during prolonged rate
U2 (B) during the another MS work during the export (C/A)
issued export period during the the first 3 first 3 period
(A) (C) prolonged months months (D/B)
export period E=(C-D) (E/A)
(if applicable)
(D)
BE***(**) 716 29 n.a. n.a. n.a. n.a. n.a.
BG 40 9 n.a. n.a. n.a. n.a. n.a.
CZ 177 n.a. n.a. n.a. n.a. n.a. n.a.
DK 620 0 51 0 51 8,2% 8.2%
DE 1,600 n.a. n.a. n.a. n.a. n.a. n.a.
EE 41 13 8 0 8 19,5% 0.0% 19.5%
IE 536 0 20 0 20 3,7% 3.7%
EL n.a. 0 n.a. n.a. n.a. n.a. n.a.
ES 3,128 404 n.a. n.a. n.a. n.a. n.a.
FR*** 1,510 0 n.a. n.a. n.a. n.a. n.a.
HR 27 0 2 n.a. n.a. n.a. 7.4%
IT 487 0 n.a. n.a. n.a. n.a. n.a.
CY 156 0 3 0 3 1,9% 1.9%
LV 204 42 35 n.a. n.a. n.a. 17.2%
LT 73 5 13 2 11 15,1% 40.0% 17.8%
LU 93 27 9 2 7 7,5% 7.4% 9.7%
HU 27 0 6 0 6 22,2% 22.2%
MT 6 1 2 0 2 33,3% 0.0% 33.3%
NL 952 n.a. n.a. n.a. n.a. n.a. n.a.
AT 869 n.a. n.a. n.a. n.a. n.a. n.a.
PL 140 36 20 3 17 12,1% 8.3% 14.3%
***(*)
PT 1,751 239 1,373 n.a. n.a. n.a.
RO 3 1 0 0 0 0,0% 0.0% 0.0%
SI*** 33 3 2 1 1 3,1% 33.3% 6.2%
SK 42 8 9 0 9 21,4% 0.0% 21.4%
FI 106 0 21 0 21 19,8% 19.8%
SE 168 0 n.a. n.a. n.a. n.a. n.a.
UK** 142 0 n.a. n.a. n.a. n.a. n.a.
*****
EU28 13,646 817 1,572 8 1,564 9.5%
******
Selection 1,876 94 164 8 156 8,3% 8.5% 8.7%
Only MSs 431 94 63 8 55 12,8% 8.5% 14.6%
granting
prolong.
*******

* n.a.: no data available; blank: non-response.

** UK: however, anecdotal evidence suggests that few 'exporting' unemployment persons
stop claiming benefits before their unemployment benefits have expired, which indicates
that they look at least three months to find work.
*** BE, FR:, PT and SI: annual figure reported by MS divided by 2 to estimate results for
second semester 2013.
**** PT: the success rate was not calculated because of the use of too broad a definition (no
distinction was made between finding work abroad or in the competent MS)
***** Success rate EU 28: weighted average. Including all MSs for which total success rate
(C/A) is known (DK, EE, IE, CY, LV, LT, LU, HR, HU, MT, PL, RO, SI, SK and FI). Of the
1,417 persons (or 75%) who received a PD U2 in BE for 2013, 1,057 persons were not
longer registered after the export period until even 6 months after this export period.
***** Selection: only for those MSs for which all necessary information is available (DK, EE,
IE, CY, LT, LU, HU, MT, PL, RO, SI, SK and FI). We have excluded LV as no information is
available on the number of persons who found work during the prolonged export period. We
need this figure as LV prolongs the export period.
***** Only MSs granting prolongation: this row only selects the MSs which grant an
extension of the export period (EE, LT, LU, MT, PL, RO, SI and SK).
Source Administrative data PD U2 Questionnaire

June 2014 13
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Table 6 The number of unemployed persons with a PD U2 who have found work, per
receiving MS, second semester 2013*
Receiving MS Total number of No of persons of which: No of Of which: No of Success rate Total
PDs U2 or SEDs who found work persons who persons who during the first success
U008 received in your MS found work in found work in three months rate
(A) during the your MS during your MS during (D/A) (B/A)
export period the prolonged the first three
(B) export period months
(if applicable) D=(B-C)
(C)
BE 895 n.a. n.a. n.a. n.a. n.a.
BG 266 2 n.a. n.a. n.a. 0.8%
CZ 134 n.a. n.a. n.a. n.a. n.a.
DK 75 n.a. n.a. n.a. n.a. n.a.
DE n.a. n.a. n.a. n.a. n.a. n.a.
EE 19 2 0 2 10.5% 10.5%
IE 220 13 1 12 5.5% 5.9%
EL n.a. n.a. n.a. n.a. n.a. n.a.
ES 698 n.a. n.a. n.a. n.a. n.a.
FR** 1,954 n.a. n.a. n.a. n.a. n.a.
HR 41 6 n.a. n.a. n.a. 14.6%
IT n.a n.a n.a n.a n.a n.a
CY 14 2 0 2 14.3% 14.3%
LV 81 n.a. n.a. n.a. n.a.
LT 165 13 0 13 7.9% 7.9%
LU 94 17 1 16 17.0% 18.1%
HU 108 6 2 4 3.7% 5.6%
MT 91 12 2 10 11.0% 13.2%
NL 276 54 n.a. n.a. n.a. 19.6%
AT 493 n.a. n.a. n.a. n.a. n.a.
PL 1,374 46 9 37 2.7% 3.3%
PT 327 28 0 28 8.6% 8.6%
RO 260 4 0 4 1.5% 1.5%
SI** 11 1 0 1 9.1% 9.1%
SK 219 20 7 13 5.9% 9.1%
FI 95 9 n.a. n.a. n.a. 9.5%
SE 311 20 3 17 5.5% 6.4%
UK 2,129 n.a. n.a. n.a. n.a. n.a.
EU28*** 10,350 226 25 195 4.9% 6.6%
Selection**** 3,213 184 25 159 4.9% 5.7%
* n.a.: no data available; blank: non-response.
** FR and SI: annual figure reported by MS divided by 2 to estimate results for second
semester 2013.
*** Success rates EU 28: weighted average. Including all MSs for which total success rate is
known.
**** Selection: only for those MSs for which all necessary information is available (EE, IE, CY,
LT, LU, HU, MT, PL, PT, RO, SI, SK and SE).
Source Administrative data PD U2 Questionnaire

The success rates during the export period could be compared to the chance of finding
work (during the first three months or during the prolonged export period) on the
labour market of the competent MS or the chance of finding work (during the first
three months or during the prolonged export period) by unemployed persons living in
the MS where they are seeking work.18 This comparison should give us an answer to
the important question whether or not the export leads to a higher chance of finding
employment during the first three months or in the event of prolongation after six
months. Again some methodological remarks have to be made. Firstly, the calculated
national exit rates and the success rates during the export period are based on

18
However, we have no information on the bilateral success rates of the sending/receiving MSs but only an
aggregated figure.

June 2014 14
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

different sources.19 Therefore, the revised PD U2 Questionnaire should ask for both.
Secondly, the national exit rate “may imply that the individuals actually found a job,
while they simply have fallen into inactivity or may be unemployed again after a spell
of employment” (see footnote 17, EC, 2012, Employment and Social Developments in
Europe 2012, Luxembourg, Publications Office of the European Union). This implies a
possible overestimation of the national exit rate. Finally, the probability of finding a
job depends on numerous factors (work experience, age, gender, education, sector of
last employment …). We do not know if the unemployed persons exporting their
unemployment benefit have characteristics similar to the ‘native’ unemployed persons.
A revised PD U2 Questionnaire could ask for a more detailed profile of the unemployed
persons exporting their unemployment benefit. The first reported comparisons should
therefore be considered as tentative aiming to receive more detailed data from the
MSs.

The analysis is limited for the first three months of unemployment. For DK, IE, CY, LT,
LU, HU, RO, SI en FI we observe a higher success/exit rate for unemployed persons
who have looked for work in the competent MS compared to the unemployed persons
who have moved to another MS (Table 7). The opposite is observed for SK.
Unemployed persons who export their unemployment benefit also show a lower
success rate in the MS where they are looking for work compared to the native
jobseekers (except in CY) (Table 7).20

19
Based on the methodology to calculate the ‘persistence rate’ in EC (2012), Employment and Social
Developments in Europe 2012, Luxembourg, Publications Office of the European Union, 469 p. (see chapter
1, section 1.3.2). The exit rate = 1- ‘the persistence ratio’.
20
To quote RO: “The chances to find work of the unemployed who are not nationals of Romania are
relatively low, mainly because of the language barrier. Still, since 2007 on, the number of export of
unemployment benefits to RO has increased, but the success rate in taking up employment is not
significant”.

June 2014 15
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Table 7 The success rate of job search by (mobile) unemployed persons during the first
three months, second semester 2013*

MS Success rate as Success rate as National Impact: Impact:

sending MS (A) receiving MS (B) exit rate of Export (A) Mobile unemployed
**
unemployment vs. stay person (B) vs national
***
(C ) (C ) unemployed person (C )
BE n.a. n.a. 16.4% n.a. n.a.
BG n.a. n.a. 15.1% n.a. n.a.
CZ n.a. n.a. 20.0% n.a. n.a.
DK 8.2% n.a. 52.0% Lower n.a.
DE n.a. n.a. 47.9% n.a. n.a.
EE 19.5% 10.5% n.a. n.a. n.a.
IE 3.7% 5.5% 41.4% Lower Lower
EL n.a. n.a. 9.0% n.a. n.a.
ES n.a. n.a. 29.7% n.a. n.a.
FR n.a. n.a. 30.2% n.a. n.a.
IT n.a. n.a. 23.0% n.a. n.a.
CY 1.9% 14.3% 9.1% Lower Higher
LV n.a. n.a. 16.7% n.a. n.a.
LT 15.1% 7.9% 28.9% Lower Lower
LU 7.5% 17.0% 44.7% Lower Lower
HU 22.2% 3.7% 48.7% Lower Lower
MT 33.3% 11.0% n.a. n.a. n.a.
NL n.a. n.a. 28.1% n.a. n.a.
AT n.a. n.a. 38.6% n.a. n.a.
PL 12.1% 2.7% 7.1% n.a. Lower
PT n.a. 8.6% 25.3% n.a. Lower
RO 0.0% 1.5% 69.3% Lower Lower
SI 3.1% 9.1% 17.4% Lower Lower
SK 21.4% 5.9% 13.6% Higher Lower
FI 19.8% n.a. 77.1% Lower Lower
SE n.a. 5.5% 63.7% n.a. Lower
UK n.a. n.a. 44.7% n.a. n.a.
EU27 8.3% 4.9% 35.2% Lower Lower
* n.a.: no data available; blank: non-response.
** The exit rate is = 1 – permanence rate whereby the permanence rate is the ratio between
those unemployed for three to five months in t+1 (3rd quarter 2013) and those
unemployed for less than three months in t (2nd quarter 2013).
Source Administrative data PD U2 Questionnaire and calculations based on EU Labour force
survey (Eurostat indicator ‘Unemployment by sex, age and duration of unemployment’ (aged
15-64)).

5. The length of the export period

The questionnaire also included a question on the average length of the export period
during which the benefits were paid. 18 MSs were able to report on this. The length of
the export period in DK (54 days), AT (56 days), MT (58days) and FI (59 days) is
relatively short compared to a length which is almost double in BG (107 days), LU
(104 days) and PL (102 days) (Table 8). The length of the export period could be
determined by three variables: i) applied national policy on the provision of a
prolongation of the export, ii) the number of unemployed persons who found a job
abroad during the export period and iii) the number of unemployed persons who
returned earlier. The percentage of prolonged PDs U2 and the success rates are
already discussed above (Tables 3 and 5). Table 8 also provides information on the
percentage of unemployed persons who returned before the end of the export period.
On average 5.8% of the unemployed persons returned earlier. We observe a high
percentage of returns for FI (50%), MT (33.3%) and PT (21.6%). It seems that this
high percentage of returns has influenced the short duration of the export period for
MT and FI, while the high percentage of prolonged PDs U2 has influenced the long
duration of the export period for LU and PL.

June 2014 16
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Table 8 The average length of the period of export, second semester 2013*

MS Average length of the % of persons who % PDs U2 Total success rate

export period during which returned before the end prolonged as sending MS
the benefits were paid of the export period
BE n.a. n.a. n.a. n.a.
BG 107 days n.a. 22.5% n.a.
CZ n.a. n.a. n.a. n.a.
DK** 54 days 29.8% 0.0% 8.2%
DE 69.5 days n.a. n.a. n.a.
EE n.a. 17.1% 31.7% 19.5%
IE 11.4 weeks 3.7% 0.0% 3.7%
EL n.a. n.a. n.a. n.a.
ES n.a. n.a. 12.9% n.a.
FR n.a. 1.0% 0.0% n.a.
HR 61 days n.a. 0.0% 7.4%
IT 3 months n.a. 0.0% n.a.
CY 3 months 3.2% 0.0% 1.9%
LV n.a. 16.7% 20.6% 17.2%
LT 3 months 13.7% 6.8% 17.8%
LU 104 days 6.5% 29.0% 9.7%
HU 47.4 days 3.7% 0.0% 22.2%
MT 58 days 33.3% 16.7% 33.3%
NL n.a. n.a. n.a. n.a.
AT 56 days n.a. n.a. n.a.
PL 102 days 9.3% 25.7% 14.3%
PT** 72 days 21.6% 13.6% n.a.
RO 3 months n.a. 33.3% 0.0%
SI 2,5 months 4.6% 9.1% 6.2%
SK 84 days 9.5% 19.0% 21.4%
FI*** 59 days 50.0% 0.0% 19.8%
SE 85 days n.a. 0.0% n.a.
UK n.a. n.a. 0.0% n.a.
Subtotal 5.8% 8.5% 9.5%
EU28****
IS
NO n.a. n.a. n.a. n.a.
LI
CH
Total
* n.a.: no data available; blank: non-response. Figures for BE are unclear.
** DK and PT: total group of persons who returned and not limited to the early return.
*** FI: however, the length of export is 65 days for the 73 PDs U2 issued by Kela.
**** Subtotal EU28= weighted average. EU28 percentage of persons who returned before the
end of the export period without DK and PT (see **)
Source Administrative data PD U2 Questionnaire

6. Administrative procedures
The most frequently reported problems/concerns by the MSs are:
 Delays in or not receiving confirmation of the registration (SED U009) of the
unemployed person with the unemployment services in the MS where (s)he is
seeking work with a PD U2 (BG, CZ, HR, IE, GR, LU, LV, PL, PT, SK, FI, SE and UK).
 Delays in or not receiving a monthly follow-up (SED U0013) (CZ, HR, GR, LV, SK and
CY).
 No request or request received after the export period of a monthly follow-up (SED
U0012 or PD U2) (PL).
 Delays in reporting circumstances which could affect the entitlement (SED U010)
(BE, CZ, GR, SK and SE).
 No reply to the question whether a person has been granted a PD U2 (SED U007)
(SE).
 Disapproval of the PD U2/ SED documents (LV).

June 2014 17
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

 Difficulties in being accepted as a jobseeker (AT and UK).

 A lack of knowledge about their rights and duties (CZ, IT and SI).
 Refusals to pay the unemployment benefit by the country of last employment if the
unemployed person expresses his/her intention to export this benefit (SK).
 Not clear where the unemployed person should register (FI).
 Time pressure to issue the PD U2 when the unemployed person requests the
document shortly before leaving (NL).

The hope was expressed by MT that EESSI (the Electronic Exchange of Social Security
Information) could solve most of these issues. Some MSs reported a reduced
administrative burden since the ‘new’ Regulation has been implemented (LU, MT, NL
and SE).

All MSs have installed administrative procedures to deal with complaints of

unemployed persons concerning the export of unemployment benefits. Most
complaints seem to be related to the non-payment of benefits by the competent MS
(because of a delay of certain documents).

7. Awareness-raising policies
A possible tool to increase the mobility of unemployed persons is the launch of
information campaigns or awareness-raising events on the EU rules on the export of
unemployment benefits. Channels which are frequently used to inform unemployed
persons about their right to export their unemployment benefit are EURES (via
advisors, job fairs, the website) (DE, EE, MT, PT, AT and RO), consulates and
embassies (LV), public employment services (DK, FR, ES, SI and SE,) and
(competent) institutions/departments (BE, DK, FR, IE, GR, IT, HU, NL, RO, SK, FI and
UK). However, to quote SI “there is a need for greater awareness and knowledge
about the export of unemployment benefits among unemployed persons and also
among professionals and counsellors working with unemployed”.

8. Inappropriate use
Only GR, MT and UK reported some specific cases (blank PD U2 completed by the
unemployed person (UK), the unemployed person’s unwillingness to comply with the
procedures under Article 64 of Regulation (EC) No 883/2004 (GR),21 not respecting
transitional arrangements between MT and BG (MT)).

21
CY reports that in some cases unemployed persons do not fulfil the requirement to be registered for four
weeks in CY (and return immediately to their MS of residence).

June 2014 18
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

9. Conclusion and recommendations

The mobility of unemployed persons looking for work abroad on the basis of a PD U2 is
very limited (about 1 out of 1,000 unemployed persons).

The export rules are not applied uniformly across the EU. Some MSs do not grant a
prolongation of the export period while other MSs grant a prolongation if the
unemployed person meets a number of criteria. The criteria for granting prolongation
also differ between MSs.

Some first tentative results were obtained on the chance of finding work during the
export period. The group of persons who found a job after the prolonged export period
increased to some extent compared to the group who found a job during the first
three months. However, in order to assess the current rules also the chance of finding
work in the competent MS needs to be taken into account.

MSs observe a lower administrative burden compared to the old procedure.

Nevertheless, some problems arise due to the delay in providing necessary documents
between MSs. These problems could have an impact on the (non-)payment of the
unemployment benefit.

In order to assess the mobility of unemployed persons and to validate our tentative
analyses, more detailed figures on the bilateral flows and success rates between MSs
and on the profile/motivation of the unemployed person are needed. Our tentative
analysis also illustrates methodological concerns and the problem of missing
information both for certain MSs and with regard to indicators. Also, observing the
different aspects of Article 64 a more precise answer to the following questions is
required:
 To what degree are exceptions made to the rule that the unemployed person is
already registered and available to the employment services of the competent MS for
at least four weeks? (Purpose: to verify how many unemployed persons immediately
export their unemployment benefit without seeking a job for at least four weeks in
the competent MS) (Article 64(1)(a) Regulation (EC) No 883/2004).
 Is the unemployed person registered with the employment services of the MS to
which (s)he has gone within seven days after (s)he ceased to be available to the
employment services of the MS which (s)he left? To what extent (in how many
cases) have the competent services extended this period? (Purpose: to verify if this
is a realistic period) (Article 64(1)(b) of Regulation (EC) No 883/2004).
 What is the number of unemployed persons who fail to provide a PD U2 whereby the
institution in the MS to which the unemployed person has gone must contact the
competent institution in order to obtain the necessary information? (Purpose: to
make a distinction between the number of PDs U2 and SEDs U008 issued/received)
(Article 55(2) of Regulation (EC) No 987/2009).

June 2014 19
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Annex 1 The impact of the unemployment rate on the

export and import of jobseekers and their success rate

Figure A1.1 The net balance of outgoing and incoming unemployed persons confronted with the
average unemployment rate, second semester 2013*

* n.a.: DE, GR; blank: IS, LI and CH; not included: BE and HR.
** R² measures how close the data are to the trend line. In general, the closer the R² to 1,
the better the model fits the data.
Source Administrative data PD U2 Questionnaire and Eurostat indicator “Unemployment rate
by sex and age groups - monthly average, %” (aged 25 -74) (months July – December 2013)

Figure A1.2 The ratio outgoing vs incoming jobseekers confronted with the average
unemployment rate, second semester 2013*

* n.a.: DE, GR; blank: IS, LI and CH; not included: BE and HR.
** R² measures how close the data are to the trend line. In general, the closer the R² to 1,
the better the model fits the data.
Source Administrative data PD U2 Questionnaire and Eurostat indicator “Unemployment rate
by sex and age groups - monthly average, %” (aged 25 -74) (months July – December 2013)

June 2014 20
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Figure A1.3 The percentage of unemployed persons who have exported their unemployment
benefit confronted with the average unemployment rate of 2013, per issuing MS*

* n.a.: no data available; blank: non-response.

** R² measures how close the data are to the trend line. In general, the closer the R² to 1,
the better the model fits the data.
Source Administrative data PD U2 Questionnaire and Eurostat indicator ‘Unemployment rate
by sex and age groups - monthly average, %’ (aged 25 -74) (months July – December 2013)

Figure A1.4 The percentage of unemployed persons who have imported their unemployment
benefit confronted with the average unemployment rate of 2013, per receiving MS*

* n.a.: no data available; blank: non-response.

** R² measures how close the data are to the trend line. In general, the closer the R² to 1,
the better the model fits the data.
Source Administrative data PD U2 Questionnaire and Eurostat indicator ‘Unemployment rate
by sex and age groups - monthly average, %’ (aged 25 -74) (months July – December 2013)

June 2014 21
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Figure A1.5 The success rate of receiving MS confronted with the average unemployment rate in
these MSs, second semester 2013*

* n.a.: no data available; blank: non-response.

** R² measures how close the data are to the trend line. In general, the closer the R² to 1,
the better the model fits the data.
Source Administrative data PD U2 Questionnaire and Eurostat indicator ‘Unemployment rate
by sex and age groups - monthly average, %’ (aged 25 -74) (months July – December 2013)

June 2014 22
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Annex 2 Country abbreviations

Table A2 Country abbreviations

Abbreviation Country
BE Belgium
BG Bulgaria
CZ Czech Republic
DK Denmark
DE Germany
EE Estonia
IE Ireland
EL Greece
ES Spain
FR France
HR Croatia
IT Italy
CY Cyprus
LV Latvia
LT Lithuania
LU Luxembourg
HU Hungary
MT Malta
NL Netherlands
AT Austria
PL Poland
PT Portugal
RO Romania
SI Slovenia
SK Slovak Republic
FI Finland
SE Sweden
UK United Kingdom
IS Iceland
NO Norway
LI Liechtenstein
CH Switzerland

June 2014 23
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Annex 3 PD U2 Questionnaire
1. Reporting state:

2. Reporting institution (please provide full contact details):

3. Export of unemployment benefits from your Member State in accordance with Article 64
of Regulation (EC) No 883/2004 (please complete the table below):
22
Reference period ( ): ……………………….
Length of
No of PD U2 or SED Reintegration in the labour Return to
23 Export prolongations 24 export
U008 issued ( ) market ( ) competent MS
period
No of PD No of PD No of No of No of persons of which: No of persons Average
U2 or U2 of SED requests for prolongations who found work No of persons who returned and length of the
SED U008 prolongation granted in another MS who found work in registered with export
U0008 issued for of export during the export another MS the employment period
3
issued more than beyond the period ( ) during the services in your during which
for up to three minimum prolonged export MS before the the benefits
3 months months (25) period of 3 period (if end of the export were paid
months 3 period
applicable) ( )
T
o
t
a
l 0 0 0 0 0 0 0

Additional comments:
(data sources, data limitations etc.)

4. Export of unemployment benefits to your Member State in accordance with Article 64 of

Regulation (EC) No 883/2004 (please complete the table below):

Reference period: ……………………….

3
Registrations Reintegration in the labour market ( )

No of persons who No of persons who found of which:

registered as a jobseeker work in your MS during
3
on the basis of PD U2 or on the export period ( ) No of persons who found work
the basis of SED U008 (26) in your MS during the
prolonged export period (if
3
applicable) ( )

T
o
t
a
l 0 0 0

22
Please provide data concerning documents or decisions issued within the reference period.
23
Please count only one document per individual case. If you issue both PD U2 and SED U008 in an
individual case, count only one of these documents per case. Do not count documents that have been
revised or corrected.
24
Please answer this question whenever possible.
25
Please count here documents issued by the institutions directly for a longer than the minimum
period of three months (without recourse to a prolongation procedure).
26
If both PD U2 or SED U008 were issued in an individual case, please count only one of these documents
per case.

June 2014 24
 Employment, Social Affairs and Inclusion
Export of unemployment benefits

Additional comments:
(data sources, data limitations etc.)

5. Have you carried out any information campaigns or awareness-raising events on

the EU rules on export of unemployment benefits in your country? If yes, which
ones and for which target groups (citizens, employment services, etc.)?

6. Have you carried out an assessment, survey or study at national level on the export
of unemployment benefits in the past? If yes, please refer to or present the results.

7. Does your Member State have criteria for assessing requests for prolongation of the
period of export? If yes, what are they? If not, on what basis do you assess the
requests for prolongation?

8. What is your Member State's experience of the practical implementation of the

rules on export of unemployment benefits?

9. Have you any reports on cases of inappropriate use of a Portable Document U2 in

relation to your Member State? If possible, please provide quantitative or anecdotal
evidence, or refer to national court cases.

10. What are the national procedures in your Member State for dealing with complaints
of unemployed persons concerning the export of unemployment benefits27?

27
These can concern complaints regarding the various steps of the procedure (for example: a refusal to
authorise the export, a refusal to prolong the export period, delays in the payments of benefits, etc.).

June 2014 25