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Małopolska Szkoła Administracji Publicznej (MSAP UEK)

 Contact details
Contact personMr Michał Możdżeń 
StreetRakowicka 16 
Address 31-510 - Kraków (Poland) 
 Organisation details
Employees (in Depart.)26-50 
Organisation TypeSecondary or higher education establishment 
 Research Focus

 Fields of activities:
» Economics
» Political science
» Public affairs

 Brief description of your activity focus
Małopolska School of Public Administration

 Details about Expertise / Competences / Technologies
Cracow University of Economics (CUE) is the largest school of economics in Poland, and the third biggest
university in Cracow, a major Polish academic centre. The University was the first institution of higher
education in Poland to introduce studies in English in the early 1990s. CUE graduates are among the
successful in Poland in matching their knowledge and skills with the employers needs. For international
students, we offer specially designed programmes in English. The University enjoys a number of
international contacts, as the faculty and student visits abroad for scientific purposes as well as foreign
internships and training programmes are one of the Universitys priorities.
Cracow University of Economics has four Faculties, all of which have full academic rights. These
- Faculty of Economics and International Relations, Faculty of Management, Faculty of Finance and
Faculty of Commodity Science - consists of numerous Chairs and Departments, offers various study
opportunities for students and professionals and conduct basic and applied research.
CUE has about 21 000 students, various study programs in English, about 200 partners all over the
CUE is member of prestigious international organizations (i.e. European University Association, Network
of International Business and Economic Schools etc).

The Malopolska School of Public Administration Cracow University of Economics (MSAP) is a research
educational unit. The School was founded in 1997 by the Senate of the Cracow University of Economics.
The mission of MSAP is to influence the social and economic development of the Malopolska Region as
well as Poland and other European regions through improved public policy practices, strengthened
public administration along with improved competitiveness and innovativeness of local and regional
The most important value championed by MSAP in the process of achievement of such goals is the
awareness of its mission and social responsibility. We ensure that our duties are performed
to high professional and academic standards, and that the effects of our work will satisfy the
expectations of our partners.
MSAP provides educational, research, advisory and publication services. In cooperation with local and
foreign partners it implements application projects that serve to improve the operation of local and
central government administration. Among the most important of its responsibilities are those related
the development and implementation of management improvement programs for public administration,
local and regional development, the setting up of financial institutions that assist in local development,
international cooperation of local authorities as well as communication and citizen participation. The
area of particular importance in the MSAP activities is related to the research on quality of government
and public management as well as to the development of unique approach to the issue of governance
(interactive governance). Within that framework for three years the MSAP have carried out the research
seminar “Good Governance and published the quarterly “Public Management”. The MSAP has managed
to involve important academic milieu specialised in the empirical research on governance as well as in
theoretical consideration of such processes description. The RESCUE team for the project will include
one professor and three PhD academics. Moreover we are going to invite to the team the participants of
the PhD studies at the CUE. The works of the team are going to be co-ordinated by Prof. J. Hausner.
 Research Activities

 Project participation
Project #1
Project TypeFP7
Project TitleCombating inequalities through innovative social practices of, and for, young people in cities across Europe.
Project websitehttp://www1.aston.ac.uk/citispyce/
CoordinatorAston University - Birmingham
Project #2
Project TypeNational
Project TitleInfrastructure of social economy in Malopolska
Project websitewww.msap.ae.krakow.pl/index.php?id=trescx&ajdi=57
CoordinatorLabour cooperative lustration association
Project #3
Project TypeOther (International)
Project TitlePublic polices And Social Enterprises
Project websitehttp://www.pase-project.eu/cms/
CoordinatorRegion Marche, regional authority Italy
Project #4
Project TypeNational
Project TitleIntegrated System of Social Economy Support
AcronymEkonomia Społeczna
Project websitewww.ekonomiaspoleczna.pl
CoordinatorMinistry of Labour and Social Affairs – Human Resource Development Centre
Project #5
Project TypeNational
Project TitleDesigning and Developing Standards of Social Services and Social Integration
Project websitehttp://www.isp.org.pl/?v=page&id=689&c=2&ln=pl
CoordinatorMinistry of Labour and Social Affairs – Human Resource Development Centre
Project #6
Project TypeNational
Project TitleThe Partnership for institutionalising social economy
Project websitehttp://www.es.pozytek.gov.pl/

 International and national projects beyond EU Framework Programme
Project proposal for FP 7 - SSH

Policies to improve the sustainability of employment of marginalised groups
The contemporary labour market, just as the entire economy, is subject to the influence of the same or
very similar factors, mechanisms and incentives of social and economic nature that intensify the dynamics
of change (including institutional change), stimulate a continuous reconfiguration of processes that occur
in the labour market, increased social differentiation related to the social structures and the division of
labour becoming more complicated. These rapid and progressively less predictable transformations that
occur in the labour market cause the emergence of new actors and institutions (e.g. social economy
entities) which, with the support of the state (but quite often autonomous from it), discharge mandates
related to the labour market. It should also be noted that the ‘traditional’ actors in the labour market
(public employment services, trade unions and employer organisations) are, on the one hand, affected by
axiological and instrumental autonomisation and heterogenisation, while on the other hand, the
traditionally understood institutional dissimilarities, duties and resources, tend to fade away. The
previously existing orthodox and binary relationships amongst these actors are gradually being replaced
with complementary and emergent interactions. For this reason, we are witnessing an increasing tendency
to cooperate in order to resolve the ever more complex social and economic problems.

These changes, except for the demand and supply sides of the labour market, also affect what is
traditionally defined as labour market policies. The classical approach provides for virtually exclusive
activities of the state (initiated mostly at the central level) aimed at the achievement of expected
relationships and effects in this area. Decentralisation processes caused that the state began to delegate
some of its mandates to regional and local levels (endowing self-governing authorities with suitable
prerogatives). At the same time, the process of searching for other partners to assist the progressively less
effective state in the implementation of successful labour market policies, including employment agencies,
training institutions, social dialogue institutions, and local partnership institutions. Some of them are linked
with the public sector, but quite a few originate in the societal and private spheres.

The emergence of new institutional actors and their increasing role in the programming and
implementation of labour market policies enabled them to address specific needs and expectations of
social groups, particularly socially marginalised individuals and those threatened with social exclusion.
Appropriate legislative and organisational measures resulted in the implementation of special programmes
geared at the improvement of the situation of disadvantaged groups in the labour market. Despite the
increasing role of other labour market institutions, the principal role is still played by public employment
services. However, the findings of numerous international studies demonstrate that these activities,
measured in terms of sustainable employment of programme beneficiaries, are ineffective or their
effectiveness is seriously limited.

With regard to the above considerations, and in the face of more and more evident weakness of the state
and its agencies in the area of solving problems of unemployment affecting socially marginalised individuals
and those threatened with social exclusion, it is necessary to redefine previous labour market policies, in
terms of how they affect disadvantaged individuals. Special consideration needs to be given to the
structure of the existing institutional system in the labour market in the context of opportunities to
better utilise the potential of its ‘non-traditional’ actors. Changes that affect the contemporary labour
market drive towards increased flexibility, including, first of all, the relationships between employees and
employers (manifested as increasing popularity of temporary job placements, part-time work, definite-time
contracts, telecommuting (telework) etc.). Therefore, comprehensive labour market policies must
recognise the fact that for an increasing proportion of the labour force employment relationships become
less and less permanent. In consequence, it is hard to expect that the current policies towards the
marginalised groups will be successful if they have failed for higher-qualified groups.

The aims of the proposed undertaking are to diagnose and develop the mechanisms and tools needed for
the programming and implementation processes of public labour market policies targeted at socially
marginalised individuals and those threatened with social exclusion. The project is not limited to traditional
passive or typically social tools. It also goes beyond the traditional understanding of active labour market
policies, which, in a number of cases, provide only temporary support to disfavoured groups, and do not
achieve a permanent increase in employment or employability in these segments of the labour force. The
proposed measures will offer a more comprehensive answer to the question whether the recent waves of
financial crisis affected the approach (philosophy) to public policies in the area of employment of
marginalised groups (or, in an extreme case, whether in the face of serious economic and financial turmoil,
the problems of employment promotion of disfavoured groups as part of labour market policies have
become completely ‘marginalised’ themselves?). The project added value constitutes an attempt to develop
development scripts with reference to labour market policies in support of disfavoured groups, which, in
the face of the economic crisis, will certainly be subject to significant modifications. The analysis will also
include the European Employment Strategy with a view to issues related to marginalised groups and the
actual resources and outcomes of subsequent operations in the context of economic and financial
turbulence of some European economies and the European Union as a whole.

The overall aims of the project include the description, analysis and diagnosis of recommended public
policy instruments strengthening the institutions of the labour market environment targeted at socially
marginalised individuals and those threatened with social exclusion, as well as recommendations
concerning the legal and institutional solutions concerning the creation of new assistance institutions
(including para-financial ones) dealing with this issue. Both aspects will be supported by an in-depth
diagnosis of the potential and limitations of those affected by the public labour market policies and the
entities that constitute their implementation system. Special attention will be paid to the problems of co-
ordination of employment-stimulating activities at the national, regional and local levels among different
groups of public and non-public actors.

Beneficiaries of project activities have been placed within the framework of a three-stage public policies
process defined in the planned undertaking as dimensions. The first dimension involves decision-making
with appropriate diagnostic activities leading to recommendations. The study will involve central
authorities responsible for formulating labour market policies, their expectations of the implementation
system and mechanisms as applied to beneficiaries – socially marginalised individuals and those threatened
with social exclusion. The in-depth diagnosis will thus involve the broadly understood decision-making
mechanism, including the premises on the basis of which political and administrative decision-makers at the
central level lead to certain practical solutions. The key aspect of this dimension will refer to a causal
analysis of reasons behind the undertaking of specific activities as well as an evaluation of subsequent

Another stage of the diagnostic process focuses on the above-mentioned implementation mechanism of
labour market policies often defined as the labour market environment institutions. The project defines
them in the broadest possible terms, i.e. it does not limit them to public employment services. The
diagnosis of labour market environment institutions will take into account all kinds of public, civic, private,
financial and para-financial entities that participate in the process of implementing labour market policies
with reference to their potential and the utilisation of effective mechanisms regulating the labour market,
which are designed at central, regional or local levels with the participation of political authorities. Such a
diagnosis and the evaluation of relationships that hold along the axis decision-makers – implementation
system – broader context of the labour market should facilitate the development of more realistic policies,
increase the effectiveness of policies targeting disfavoured groups, and also contribute to the utilisation of
innovative solutions applied in this area in international practice. The inclusion of innovative instruments,
with a social focus, but not only, will constitute an important project added value in view of inevitable
changes demanded by the global economic (and social) context from actors on the political scene in
individual countries. One may thus formulate an inclusive definition of implementation that includes
traditional implementation activities and autonomous actions conducted by the broader labour market
environment, which will constitute the second dimension of the project.

Within the evaluation dimension, most activities will focus on the description of methods and outcomes of
periodic public policy evaluations and their potential to modify the objectives adopted by the creators of
these policies as well as means to achieve them. The diagnosis thus obtained will permit us to evaluate the
impact of such activities on the kind and scope of changes introduced into current policies as well as their
impact on new initiatives affecting the labour market. Evaluation will thus be conceived on two planes – 1.
the evaluation of decision-makers’ approach and activities of the labour market environment and 2. as a
source of data that helps these entities to make what they consider to be the right decisions.

Within every dimension involving analytic and diagnostic activities, the key reference point will be provided
by the target group of labour market policies, which, in the case of the proposed project, are marginalised
individuals and those threatened with exclusion from the labour market. Activities undertaken to date must
be deemed insufficient, moreover, the now prevailing tendency towards increased savings and efficiency
(that affects both the spheres of enterprises and public policies) caused by the recent financial crisis
forces us to develop and implement innovative solutions based on reliable diagnostic premises. Accordingly,
it is necessary to formulate a diagnosis of the actual situation of disfavoured groups in the contemporary
labour market that will focus on factors, which have so far been taken into account very reluctantly,
inconsequentially or inaccurately. Responsibility for such a state of affairs rests with political and
administrative decision-makers as well as the implementation arrangement of labour market policies, hence
the need for knowledge and information that makes it possible to respond to the challenges inherent in
formulating effective labour market policies in a participatory manner. Without question, for the intended
beneficiaries of the project (i.e. marginalised individuals and those threatened with exclusion from the
labour market) such a factor is participation. The design and implementation of labour market policies with
the greatest possible involvement of individuals who want it to succeed may substantially increase both the
efficiency and effectiveness of the expected outcomes. The in-depth diagnostic and analytical process
must involve the participatory potential of disfavoured groups in an objectivised manner, free from
prejudice and stereotypes both among decision-makers and the society at large. The planned analysis will
embrace the forms of such participation, its quality and effects. Naturally, we are aware of the limitations
that make such an undertaking difficult. For obvious reasons, such participation cannot be direct. First of
all, the interests of these groups will be represented by e.g. non-government organisations, social
economy entities, organisations of the unemployed etc. A complementary activity at a later stage of the
project will determine the extent to which the institutions representing those excluded actually
represent their interests directly rather than strengthen their own potential, bargaining position,
decision-making power, access to resources, projects and also their profile amongst similar organisations.

It is indispensable to appropriately diagnose the utility of methods employed to include the broadest
possible group of actors in the process of design and implementation of public policies in the area of
employment of marginalised groups. This participatory element is not limited exclusively to the
beneficiaries of policies aimed at increasing employment amongst marginalised groups, but requires a broad
spectrum of social actors to strengthen the participatory dimension of the proposed solutions.

The methodology of the diagnostic process

Important note: the analysis must include a minimum of 10 countries. It is suggested that priority should be
given to solutions adopted by the Scandinavian countries and by those that successfully
deregulated/liberalised their labour markets. (A diagnosis in form of a work package for each country may
take into account all the areas of project interest described above).

In each of the above-mentioned project areas, especially within the diagnostic dimension, the quality of
data and the way it is collected is extremely important (what data and to what extent are used in the
decision-making process concerning the shape of public policies that contain the ‘employment
component;’ which data are used to design public interventions including the level of unemployment, its
length, duration of unemployment, level of remuneration, staff and employer rotation, the level of human
capital available amongst the unemployed and inactive in the labour market (including their educational
status); which data are used at the stages of implementation and monitoring of public policies; whether
the implementation stage is characterised by ‘the dislocation of objectives’ or other standard
bureaucratic behaviours; how the target groups are treated in their relationships with the labour market
environment and its institutions.

The analysis will involve entities that implement the labour market policy and will take into account socially
marginalised individuals and those threatened with exclusion from the labour market, offering an overview
of possible solutions observed in international practice. A coherent presentation of problems inherent in
the operating systems of institutions and organisations with different competences, their potential as well
as legal and institutional base will likely pose a challenge to the study.

A crucial element of research diagnosing the mechanisms of implementation of labour market policies will
focus on the quality of legal provisions, including an analysis of rationale behind drafts of bills that refer en
bloc or in part to increasing employment in marginalised groups.

The planned analyses will involve 10 selected EU member states. They have been selected, first of all, on
the basis of their adopted models of labour market policies appearing in their social policy doctrines and in
relevant literature. For example, in the case of the Scandinavian (Nordic) model, we propose to include
the examples from Denmark and Sweden, the corporatist model should be represented by France and
Germany, the Mediterranean model by Italy and Spain, and the liberal Anglo-Saxon model by Irish and
British expertise. Additionally, two case studies from Central and Eastern Europe will be provided, for
example Poland and Slovakia, or other EU member states from the area.

Project structure by object-action complexes:

Decision-making Action (implementation + independent activities) Evaluation, data analysis
Same for European, national and regional levels
• availability and quality of information underlying the strategic diagnosis
• identification of problems, challenges and objectives
• formulation of criteria underlying the choice of solutions
• devising public policy options
• analysis, forecasting and estimation of future consequences of specific options
• comparison of options and choice of a recommended policy
• consultation and co-ordination of public policies
• deciding as to the choice of a public policy
• nature and principles governing the implementation process
• actors involved in the implementation process and their resources
• institutional and functional arrangements of the implementation process
• instruments used in the implementation process
• implementation models
• barriers to implementation and ways of overcoming them
• evaluation methods
• evaluation products
• importance of evaluation at the decision-making stage
• importance of evaluation at the action stage
• perceived quality of evaluation
• co-ordination with other levels
• adoption of practical solutions applied in other countries
• inclusion of the target group of beneficiaries in the process
• quality of participation
• acting on comments and observations

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