"Youth Employment Initiative" programme 2015

Transcription

1 STUDY Evaluation of the impact of the European "Youth Employment Initiative" programme 2015 March 2016 Synopsis of the Languedoc-Roussillon region YEI evaluation report This document is a synopsis of the Languedoc-Roussillon region Youth Employment Initiative evaluation report, following on from the initial evaluation work on the implementation of the YEI in France in The Youth Employment Initiative (YEI) was set up by the European Union to combat youth unemployment and to speed up delivery of the European Youth Guarantee. This specific fund receives matching funding from the European Social Fund (ESF) and is intended for Member State regions with youth unemployment rates in excess of 25% as at 31 December It is intended to fund initiatives to help "NEETs", young people Not in Education, Employment or Training.. France received funding of specifically from the YEI fund, with a matching 312 coming from the ESF This package is split between the specific YEI National Operational Programme (65% of the funds), administered by the French General Delegation for Employment and Vocational Training, and 12 ERDF-ESF-YEI multi-funded Regional Operational Programmes (35% of the funds), administered by the Regional Councils of the territories qualifying for YEI funding. In total, 16 territories qualify for YEI funding in France. The YEI in France: 622 YEI + ESF 16 territories in France qualify (13 Regions and 3 Departments) 1 Specific YEI National Operational Programme, administered by the central government 12 multi-funded ERDF-ESF-YEI Regional Operational Programmes, administered by the Regional Councils Languedoc-Roussillon, with a youth (age 15-24) unemployment rate of 38.2% in 2012, is one of the territories that qualifies for the YEI. It is also affected by major problems of school drop-out and the specific circumstances of seasonal employment. In 2014, 13.2% of year olds fell into the young "NEET" category (around 41,800 young people). In total, the Languedoc-Roussillon territory received a package of 44.3 in YEI-ESF funding (specific YEI funding with matching ESF contributions). Of this, 27.4 is administered by the Regional Council and 16.9 by (administrative authority delegated by the government to run the YEI National Operational Programme) in YEI- ESF funding in Languedoc-Roussillon (excluding national YEI operational programme 15.9 funding 27.4 administered YEI-ESF by the funding Regional Council 42% administered by the Regional Council Regional YEI ESF contribution 58% Region ~ YEI-ESF funding administered by YEI 8.5 ESF 8.5 National contribution 1.5 This study is co-financed by the European Social Fund as part of the "Youth Employment Initiative" national operational programme EUROPEAN UNION 1

2 The allocation of the YEI-ESF funding package was being finalised at the end of 2015 To help its many young NEETs swiftly, France undertook to apply the whole YEI package allocated to it before 31 December The Regional Council had completed its allocation of funds at the end of 2015 while more than three quarters of 's YEI-ESF package had been allocated or was being allocated. The Regional Council allocated its YEI-ESF funding package to 5 key types of initiative: Cap Avenir (support for the development of career plans) and Cap Métiers (acquisition of employment skills following validation of the career plan), the Regional Second Chance Colleges, the Regional Qualifications Programme and initiatives to support entrepreneurship and business start-ups (funded through a specific YEI call for projects). For the Region, the aim is to structure an offer which at least partly targets young NEETs, by doing "more" (increasing the number of places on Regional Qualifications Programme schemes and opening a ninth Regional Second Chance College) and "better" (upgrading teaching methodologies and setting up qualification pathways in the Regional Second Chance Colleges and in the Cap Avenir and Cap Métiers schemes). Meanwhile, allocated its YEI-ESF funding package though 3 separate calls for projects: two under the "local initiatives" call (2014 and ), open to all operators in the territory and the third, "identification and support for unqualified school leavers", launched to support the initiatives of the Unqualified School Leaver Monitoring and Support Platform (PSAD). 's choice of programme schemes followed an open approach: given France's commitment to a rapid response, the choice was made to open up the schemes, from the start of the call for projects, to attract a diverse range of types of sponsors and foster the emergence of initiatives in the identification of new young NEETs, not currently known or supported. Languedoc-Roussillon Regional Council programme of schemes Languedoc-Roussillon programme of schemes 46.8 YEI+ ESF (excl. entrepreneurship) 6 YEI+ ESF (excl. initiatives undergoing assessment) 18.8 (40% of the funding package) allocated to the Regional Qualifications Programme 12.1 (26% of the funding package) allocated to Cap Métiers 11.9 (26% of the funding package) allocated to Cap Avenir 4 (8% of the funding package) allocated to Programmes are being implemented following a call for projects on entrepreneurship Total funding allocated to initiatives by the Regional Council as at the end of December 2015 exceeds the initial package ( 46.8 have been allocated, while the YEI-ESF package is 27.4 ) in connection with an "over-allocation" mechanism (some schemes are mixed in terms of their target beneficiaries and therefore require subsequent adjustment in proportion to the profile of the trainees). 3.3 (55% of the funding package) allocated to local youth centre support initiatives 2.5 (42% of the funding package) allocated to identification initiatives and support from other operators (local associations, etc.) 0.1 (2% of the funding package) allocated to initiatives in support of entrepreneurship and business startups ("micro-businesses" scheme, sponsored by several GRETAs (adult education providers). 's initial funding package was of this amount was allocated by the end of 2015 and 7.3 was undergoing assessment (for allocation in 2016). 4 could not be allocated. 2

3 The YEI has enabled funds to be allocated to initiatives operating at all stages of employment pathways, from identification of young NEETs to access to qualification What "volume" effect can be expected from the YEI? About 41,800 young people aged between 15 and 24 may be considered to have fallen within the "NEET" category in 2014 in Languedoc-Roussillon. The figures include both young people who fell temporarily into the NEET category (young people with qualifications, for example, who were awaiting their first job) and other more marginalised young people, who have been NEETs for much longer (for example young people leaving school without qualifications, who struggle to gain a foothold in the jobs market). The population of young NEETs is in fact continuously renewing itself and the available data gives a snapshot only at one particular moment in time. It does not take account of the flow of young people who are entering and leaving this "NEET" category. In Languedoc-Roussillon, the Regional Council aims to reach 11,564 young NEETs with its Operational Programme. At 31 December 2015, the roll-out of the Regional Council's YEI funded schemes was well under way: 5,397 participants were enrolled in the initiatives, almost half of the target. Young NEETs targeted by the YEI in Languedoc-Roussillon Regional operational programme initiatives The YEI National Operational Programme sets a target of 300,000 young NEETs to be reached by YEI funded schemes. This target has not been broken down by area. For, there was no consolidated data at the end of 2015 on the number of young NEETs targeted by YEI funded operations. Initial data on participation in the initiatives are, however, available.. At the end of 2015, 2,809 participants had been recorded as being covered by schemes, mainly run by Local Youth Centres (78% of the 2,809 data entries). At this stage, it is difficult to estimate the extent to which each operator has reached its target. For local youth centres, analysis of the first entries for suggests that the risk of underperformance is somewhat limited. However, with the arrival of the Youth Guarantee, local youth centres have been able to raise questions about their capacity to manage large numbers of young NEETs in this context of proliferating programme schemes. For other operators, the risk of under-performance is also due to competition between operations. What effect does the YEI have on widening the variety of initiatives and on innovation? 11,564 young NEETs targeted 5,397 participants N/A young NEETs targeted 2,809 participants Operators (excluding Local Youth Centres) involved in YEI initiatives in Languedoc-Roussillon 6 territories Local area social support organisations 12 territories Quangos/unqualified school leaver agencies/education Offices 2nd chance colleges 6 territories The mobilised partners For the Regional Council, YEI funding is primarily a means of enabling the deployment of the innovative Cap Avenir and Cap Métiers schemes. These schemes are the result of an experiment aiming to establish more flexible and secure pathways towards qualification. Additional funding has also contributed to an upgrade in support methods in the Regional Second Chance Colleges and the implementation of new initiatives in support of entrepreneurship and business startups for young NEETs. The programme schemes in Languedoc-Roussillon differ from other territories in their attraction of new operators, particularly in the area of identification of young NEETs. This is the only territory that has worked with the Regional Directorates for Youth, Sports and Social Cohesion (DRJSCS) as a way of reaching a network of local associations. has also relied on specialised firms, both to engage new operators (organisation of regional meetings) and to assist them in safeguarding the implementation of their project (several funded operators are in fact EU funding "newbies"). 3

4 What effect does YEI funding have on the support of young NEETs? With its "dedicated" FTE funding, the YEI aims to fund enhanced support initiatives, fostering a closer relationship between the adviser and the young person, and providing a greater number of training alternatives (one-to-one sessions, group training, placements in businesses, etc.). The Regional Council has also allocated YEI funding to Regional Second Chance Colleges, to enable educational support approaches to be upgraded. To date, has allocated more than half of its funding package to support initiatives sponsored by local youth centres. A significant part of the funding (43% of the package allocated by the end of 2015) was also used to target identification-support initiatives, sponsored by local support organisations (associations, National Centre for Information on the Rights of Women and Families). What effect does YEI funding have on setting up "pathways"? For the Regional Council, allocation of the YEI funding package followed a "pathway" approach. In response to the high rate of drop-out from the pathways initiatives developed under its previous employability action plan, the Region overhauled its prequalification schemes. From 2012 to 2014 it piloted the "Cap métiers d avenir" scheme in 7 of its territories in order to establish more flexible pathways to qualification. Local Monitoring Committees (CLS) were also set up to bring together educators and training organisations to work towards stabilising the different stages of participant pathways (group validation of approaches, anticipation of drop-outs). The YEI came on stream at the same time as the positive results of this pilot and the desire of the Region to reorganize its scheme for access to qualification (see diagram below). Additional funding enabled the deployment, from 1 January 2015, of the new schemes - Cap Avenir and Cap Métiers (developed based on the previous pilot) - as well as the Local Monitoring Committees for the whole territory. Funds were also used for an in-depth review of educational support methods. For, the involvement of specific operators working in the "identification" component responds to a desire to channel the pathway towards traditional services for unsupported young NEETs: in theory, the identification of young people by local support organisations should enable a first level of support to be "locked down", so that they can then be referred to the public employment service. In practice, there can be competition between operators: the tight schedule did not allow for a detailed diagnosis of complementarity of initiatives while investment in the identification component through the mobilisation of new operators also presupposes a stage of coordination and organisation of the services offered, for which there was little time. The pathway approach in the Regional Council's new access to qualifications and employment scheme Mobilisation of operators by Identification-support initiatives Support initiatives Call for projects, identification and support of unqualified school leavers Academic quango - PSAD monitoring platform Call for projects "local initiatives" Youth and sports associations, urban policy, National Centre for Information on the Rights of Women Call for projects - "local initiatives" Local youth centres, adult education providers 4

5 A desire to enhance and diversify local partnerships to reach "new" young people and safeguard their pathways What effect does YEI funding have on young NEETs receiving support? In Languedoc-Roussillon, the data available on young people reached through the YEI only relate to initiatives funded by (data entered in the "Ma démarche FSE" monitoring program). A profile analysis of 2,809 participants shows that young NEETs targeted by YEI funded initiatives are less qualified than average participants on the national YEI Operational Programme. They are also slightly more likely to experience housing difficulties and to be officially recognised a disabled. It is also noteworthy that initiatives funded by should make it possible to engage young people who would otherwise be overlooked by the public employment service. The first results on outcomes should be interpreted with caution (only 677 outcomes for 2,809 participants - most initiatives are ongoing). These first results show that 36% of young NEETs leaving an initiative funded by YEI through found a job or resumed training or studies at the end of their involvement on the scheme (18% found permanent employment, 10% other types of employment and 8% were in training or had resumed their studies) The initial results of initiatives financed by Outcome on leaving targets set by the national operational programme Leavers at 31/12/2015 from schemes 300,000 young NEETs 2,809 participants What effect does YEI funding have on local partnerships? The impact of YEI funding on local partnerships is difficult to evaluate at this stage. The Regional Council wanted to enhance local partnerships between training organisations by encouraging them to respond in groups on the Cap Avenir and Cap Métiers schemes. Local partnerships are also enhanced within the Local Monitoring Committees which oversee the monitoring and safeguarding of the pathways of the participants in the various qualification preparation initiatives (Cap Avenir, Cap Métiers, Regional Second Chance Colleges, etc.). wanted to offer a joined up support service through the network of local youth centres, by financing operators to refer the young people to ordinary support services. In fact, the YEI funded initiatives relate primarily to "add-on" interventions, where coordination and complementarity with other existing schemes are not always obvious. The local situation differs markedly from one department to another, with "good practice" in terms of coordination (sharing of lists, public policies, etc.) frequently the result of pre-existing partnerships. For other sponsors, there may be competition between different schemes. Indeed, as in most territories qualifying for YEI funding, territorial coordination and management of services are among the areas for development to encourage the engagement of new sponsors and ensure good understanding of YEI funding and the interlinking of the operations. In Languedoc-Roussillon (as in other eligible territories), the Regional Council and therefore established "dividing lines" to demarcate each of their remits. These dividing lines are primarily a form of separation that provide a 5

6 benchmark for the agencies involved in the programmes (to ensure that each agency finances projects in its area of expertise and that duplicate funding is avoided). However, this demarcation is not sufficient to ensure full coordination between the initiatives on the ground. The Regional Council and therefore went further, by organising specific events on YEI funding: a briefing morning with Central Government and Region instructors on ESF and YEI funded programmes to assist them in analysing applications, the organisation of presentation events for the new ESF-ERDF-YEI programmes and a workshop on the YEI to provide technical support for operators in structuring their projects ('s specialised provider attended this workshop). These exchange forums were, however, all "technical" occasions, focusing on understanding European programmes and securing projects. Recommendations for the future of YEI schemes in Languedoc-Roussillon Timescales for achieving results Subject Organisation responsible Recommendation details Short-term (from 2016 for improving implementation and results) Medium-term (if YEI funding is renewed) 1/ Carry out a more detailed investigation of the following: Programme funding, coordination and deployment approach Regional Council, and Regional Committees for Employment, Training and Career Guidance Regional Council, Young NEETs in the region for better identification / understanding of their needs: assess the different components of the NEET population ("transitional" NEETs, unqualified school leavers, unskilled young people, etc.), identify their needs and the priority targets of these "sub-categories". Support services in the territory: the organisations providing services, existing initiatives, strengths and weaknesses of current services, potential imbalances in supply between departments, etc. This diagnosis could include facilitating: The definition of targets and a classification of priority actions. Identification and mobilisation of new partners. 2 / Adopt a more coordinated approach to the preparation and implementation of the YEI, for example by shared calls for projects (for common areas of action).. 3/ Continue to structure territorial coordination around the YEI at sub-regional and regional level, by arranging more regular joint meetings with all operators to ensure that initiatives are coordinated and pathways implemented. 4/ Promote the implementation of pathways, for example by facilitating the development of joint responses between operators, from calls for projects (the selection criteria of calls for projects could encourage a multi-disciplinary response and the establishment of integrated approaches). 5/ Closely monitor the actual use of funding packages by: Piloting impacts and results Regional Council, and operators French General Delegation for Employment and Vocational Training, ARF French regions association and the Regional Council Making use of existing bodies (Monitoring Committees). Paying particular attention to the profile of the target group (impact of initiatives of local operators on engaging "new" young people). Taking account of initiatives funded by the different operational programmes (OP): national YEI OP - central and decentralised components - and regional OP. 6 / Anticipate data collection for the 2018 evaluation: By identifying the data required and the available sources. By preparing the data collection. By continuing discussions on pooling of data collection tools ("Ma démarche FSE" and "Synergie"). By providing new data fields in the monitoring tools (number of participants targeted, actual expenditures and, possibly, type of initiatives undertaken with each young person: group workshops, one-to-one interviews, role-playing, etc.). 6

7 EVALUATION OF THE IMPACT OF THE EUROPEAN "YOUTH EMPLOYMENT INITIATIVE" PROGRAMME