This has probably had to do with both the substance of the policies applied (which tend to promote incremental institutional changes, or different allocations of resources) and the way in which the issue is debated, which is typical of a culture of public discussion that is insufficiently developed, with an excess of partisanship and mimicry, and a lack of articulation and mutual attention among those who talk.
Such a debate makes it difficult to formulate and implement sensible public policies on such a complex and sensitive issue as employment in general, and youth employment in particular; policies that require the support of (a large part of) the citizenry. Citizens need to be involved in the debate and, ultimately, to reach a certain consensus or a spirit of compromise in order to find solutions, which, in turn, are understood not as dogmas or mere acts of political will, but as experiments that can be rectified in the light of experience.