Umschulungsbereitschaft von Geringqualifizierten und finanzielle Anreize

Abstract

"Technological change, increasing digitalisation and demographic shifts are bringing about significant transformations in the world of work. This makes continuous training and lifelong learning increasingly important. Training measures can increase the employability of individuals without vocational qualifications, thereby improving their chances in the labour market. Nevertheless, low‑skilled workers remain underrepresented in company‑sponsored training, but also in programmes subsidized by the Federal Employment Agency (FEA). Retraining programmes, which are subsidised further training programmes leading to a vocational qualification, are an important form of further training offering low‑skilled workers the opportunity to obtain a vocational qualification. This report is based on an ad hoc survey conducted as part of the IAB Online Panel Survey ”Working and Living in Germany” (IAB‑OPAL), to which low‑skilled individuals aged between 25 and 60 were invited, regardless of their employment status. About 61 percent of the participants indicated that they received citizen’s benefit. The survey first asked whether individuals without a vocational qualification know that retraining can be funded by the FEA. Knowledge of the further training bonus introduced in 2016 and the further training allowance introduced in 2023 was also surveyed. Other topics covered included respondents’ willingness to participate in retraining, the criteria they consider important for the attractiveness of retraining, and the reasons why they would reject such further training. To gain insight into the expected benefits of retraining, respondents were asked to estimate their potential income increase resulting from completing a retraining programme. Finally, a vignette study examined some of the factors influencing the probability of participating in retraining. The results show that only about 62 per cent of respondents were aware that retraining courses are funded by employment agencies and jobcenters. Of those receiving citizen’s benefit, only around half knew about this general funding option. A relatively small minority of respondents had heard of the further training bonus and allowance. Nevertheless, respondents expressed a high willingness to participate in retraining. Important criteria of further training programmes for low‑skilled respondents were a training occupation that is a good fit for the individual and the prospect of better labour market opportunities. While the majority of participants rated the two incentive payments (the further training bonus and allowance) as (somewhat) important, they were least often considered to be very important compared to all other indicated attractiveness criteria. However, according to the survey responses, these financial incentives play a more important role for citizens’ benefit recipients than for people outside the citizens’ benefit system. Frequently cited reasons for rejecting possible retraining included having to forgo a regular income during retraining and its uncertain financial return. Compared to people not receiving citizens’ benefit, citizens’ benefit recipients more frequently cited care responsibilities and health problems as barriers to further training. Uncertainty about the profitability of further training was reflected in respondents’ estimates of the change in their income after completing retraining. Around 27 per cent of respondents expected no change in income, while around 18 per cent expected an increase of only up to 100 euros per month. Compared to people without this benefit, individuals receiving citizens’ benefit support were much less likely to expect no increase in income; however, the majority also estimated their potential earnings gain to be low. As the multivariate analyses based on the vignette study show, better earning prospects significantly increased the self‑assessed probability of participation. The further training bonus and allowance also positively influenced the intention to participate. Conversely, longer commuting times to the training institution significantly reduced the self‑assessed probability of participation. Support in finding care for children and persons in need of care also increased the stated probability of participation. The report provides some insights as to which structural factors and training conditions influence the willingness of low‑skilled workers to undertake further training. The survey found that many low‑skilled workers face multiple barriers, meaning needs‑based counselling is necessary to find a further training programme that is suitable for individuals’ circumstances and life situation. For instance, many respondents seemed unaware of the financial benefits of vocational qualifications and the necessity of further training. A significant proportion of respondents expected no or only a slight improvement in income from retraining; did not want to repeatedly start something new; or believed that their existing qualifications were (rather) sufficient. At the same time, better opportunities in the labour market and higher earning potential were frequently indicated as attractiveness criteria for retraining. However, only part of those surveyed seem to expect such improvements from subsidised retraining that would also outweigh their subjective costs of further training. Furthermore, only part of the respondents were aware of the general funding opportunities for retraining, and only a small proportion had heard of the further training bonus and allowance. The most frequently cited barrier to retraining was not being able to forgo a proper income for so long. Providing better information about the incentive payments for further training could counteract this to some extent. People receiving a citizen’s benefit frequently cited care responsibilities and/or health issues as barriers to further training. Formats such as virtual/hybrid further training or part‑time measures could offer a remedy here, as they potentially allow for a better reconciliation of training and caregiving responsibilities, and may be more manageable in the event of health problems. If longer retraining is not feasible despite an interest in further training, participation in shorter, non‑degree‑oriented measures or partial qualifications could be an alternative." (Author's abstract, IAB-Doku) ((en))

Cite article

Artmann, E. (2026): Umschulungsbereitschaft von Geringqualifizierten und finanzielle Anreize. (IAB-Forschungsbericht 01/2026), Nürnberg, 40 p. DOI:10.48720/IAB.FB.2601