Because it doesn't take into account the millions of people who have simply given up searching for a job, thus having removed themselves from the workforce. Nor does it include millions more people who are underemployed (example: a waiter at a restaurant who has a degree in engineering).
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It only counts those who are actually receiving unemployment benefits.
It does not include those who:
Are not eligible for benefits (for example you have to work a certain period of time to be eligible)
Have given up looking for work
Benefits have run out (I think the limit is 26 weeks in America)
Cannot find work and are receiving extra training/education
Have disabilities and are entitled to disability benefits but could work certain jobs
Are working (or not) illegally
Because it doesn't take into account the millions of people who have simply given up searching for a job, thus having removed themselves from the workforce. Nor does it include millions more people who are underemployed (example: a waiter at a restaurant who has a degree in engineering).