38It is therefore necessary to consider whether a measure such as the German system of recruitment vouchers can be justified, in the first place, by the fact that such a system represents a new instrument of the national employment policy which aims to improve workers' recruitment and to reduce unemployment, in the second place, by the fact that its purpose is to protect the national social security system, which can be done only if contributions are paid on a national basis and where contributions would be lost if persons seeking employment were to be recruited in other Member States and, lastly, by the fact that it seeks to protect the national labour market against the loss of qualified workers.
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