The unemployment rate in Germany declined from 6.9% in November to 6.8% in December 2011. The average number of unemployed workers in Germany averaged less than three million for 2011, the lowest level since 1991. Changes in the German labor markets with the Hartz reforms under the previous Social Democratic government to introduce more flexibility and increase incentives to look for work have helped reduce unemployment. The German "Kurzarbeit" program of retaining workers in a downturn has helped reduced unemployment. Other changes include the expansion of the low wage sector.