STUDY Evaluation of the impact of the European "Youth Employment Initiative" programme 2015 April 2016 Synopsis of the regional YEI evaluation report for Haute-Garonne This document is a synopsis of the regional Youth Employment Initiative evaluation report for Haute-Garonne, following on from the initial evaluation work on the implementation of the YEI in France in 2015. 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%. It is intended to fund initiatives to help "NEETs", young people Not in Education, Employment or Training.. France received funding of 310.2 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 Haute-Garonne, with a youth (age 15-24) unemployment rate of 28.9%, compared to the national average of 31.6%, is eligible for YEI funds. The activity rate of young people is lower than the national rate (39.2% vs 43.6%). This is partly related to the significant number of students. Territory has relatively high levels of youth education (30% of young people completed their studies in 2012 had a university degree (22% in metropolitan France). In 2014, 20,200 young people aged 15-24 fell into the young "NEET" category (around In total, the Haute-Garonne territory received a package of 9.3 in YEI-ESF funding (specific YEI funding with matching ESF contributions). Of this, 5.1 is administered by the Regional Council and 4.2 by Direccte (administrative authority delegated by the government to run the YEI National Operational Programme). 9.3 in YEI-ESF funding in Haute-Garonne 55% Region 15.9 funding 5.1 administered YEI-ESF by the funding Regional Council 4.2 YEI-ESF funding 45% Direccte administered by the Reg. Council administered by Direccte Regional National YEI ESF YEI ESF contribution contribution 2.5 2.5 ~ 2.5 2.1 2.1 0.4 This study is co-financed by the European Social Fund as part of the "Youth Employment Initiative" national operational programme EUROPEAN UNION 1
The YEI-ESF funds were applied rapidly to programmes by the Regional Council and by Direccte To help its many young NEETs swiftly, France undertook to apply the whole YEI package allocated to it before 31 December 2015. In Haute-Garonne, the Regional Council and Direccte used the YEI-ESF funds to programmes quickly (respectively 100% and 86% of the package by 31/12/2015). This rapid use of the funds reflects, in particular, the choice of schemes that have been funded as part of the YEI. The Regional Council, allocated the YEI-ESF funding package to the regional training programme (PRF), particularly to two schemes with the potential for work with many young NEETS: The "Guidance and employability pathway" (POI) providing remedial learning for enrolment on a pre-qualification or qualification pathway. A scheme leading to accreditation in order to gradually structure access to pre-qualification and qualification. People completing the POI have priority access to this programme. Direccte allocated the YEI-ESF funds through 2 separate calls for projects for operators in the territory: One on enhanced support for young people - "Proposal for "self-help" support pathway". The second "Proposal for "Apprenticeship Success" pathway", which proved unsuccessful. Haute-Garonne Regional Council programme of schemes Haute-Garonne Direccte programme of schemes PRF 5.1 YEI+ESF 3.6 YEI+ESF 13 operations funded in total 1,200 NEETs targeted > 30 different actions 1.3 (36% of the funding package) allocated to local youth centres 2.3 (56% of the funding package) to fund other operators 2
YEI funding was used primarily for two priorities: access to qualification for NEETs and promotion of enhanced support What "volume" effect can we expect from the YEI? About 20,200 young people aged between 15 and 24 may be considered to have fallen within the "NEET" category in 2014 in Haute- Garonne. 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 Haute-Garonne, the Regional Council aims to reach 1,200 young NEETs with its Operational Programme. It is difficult to assess the ambition of this objective due to lack of accurate historical references on the number of NEETs on initiatives funded under the regional training programme and lack of data on the number of young NEETs enrolling on these initiatives in 2015. 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 Direccte, the only data available are for the targets set by the operators for each funded project. The funded initiatives aim to reach about 3,926 NEETs. At the end of 2015, 1,338 participants had been recorded as being covered by schemes, mainly schemes run by Local Youth Centres. At this stage, it is difficult to estimate to what extent each operator has reached its target. For local youth centres, the risk appears to more controlled, particularly because they can combine IEJ support with CIVIS (Social Integration Agreement) for the same young person. Other schemes have started up, often rather belatedly. These initiatives are sometimes in competition with those sponsored by local youth centres or face the risk of saturation given the volume of services that can be offered to young NEETs in the territory. What effect does the YEI have on widening the variety of initiatives and on innovation? Operators (excluding Local Youth Centres) involved in YEI initiatives in Haute-Garonne 12 territories Quangos/unqualifi ed school leaver agencies/education Offices The mobilised partners Businesses 4 territories The young NEETs targeted by the YEI in Haute-Garonne Regional operational programme Direccte initiatives 1200 young NEETs targeted N/A participants 3,926 young NEETs targeted 1,338 participants The Regional Council, did not allocate the YEI funds based on targets for innovation or implementation of new initiatives. It chose to secure the programmes schemes by mobilising the initiatives of the regional training programme. Direccte introduced more innovations in its programme funding in Haute-Garonne. In practice, new operators whether in the area of ESF or in initiatives on access to employment or qualification - are effectively mobilized. These operators also offer innovation in terms of new initiatives that can enrich the territorial package of services for young people or in terms of changes in their own area of work. However, it appears that some organisations operating under the YEI programme in other territories are not operating in Haute-Garonne, in particular those working in the field of identification, local social organisations and the County Council. Public/private industry organisations are not involved, either in apprenticeships (the call for projects in this area was unproductive) or in entrepreneurship (no specific call for projects in this area). 3
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 planned tailored pathways and prioritises qualitative support in both its schemes funded by YEI under the regional training programme. For Direccte, almost all of the package has gone to support initiatives, when Local Youth Centre and other operator initiatives are all combined. By contrast, initiatives for identifying young NEETs have received less funding (local area social organisations, which could identify new young NEETs not yet receiving support, have not been involved). What effect does YEI funding have on setting up "pathways"? In fact, the two schemes selected by the Regional Council for YEI funds include the pathway idea as each of them targets access to a qualification after overcoming different obstacles and any remedial work required. Transition is provided between the two types of pathway, those completing the "Guidance and employability pathway" have priority entry to the accreditation course. Direccte, unlike in other territories (e.g. Champagne-Ardennes), did not undertake any analysis and construction between operators early in integration pathways (whether they are funded by the Regional Council or by Direccte). However, Direccte sought to promote networking between actors to enable them to provide young people with better guidance on completion of the service delivery, through the establishment of a YEI technical committee involving all operators, which meets regularly. Moreover, Direccte and the Regional Council disseminated very clear messages on the possibilities for "combination of schemes" unlike in other territories. The rule enabling people to benefit from several YEI funded schemes, provided that their goals are not the same, seems relatively well adopted by the different players consulted. The notion of pathway in Haute-Garonne ultimately seems more implicit that explicit. The management authorities have not formally provided for the construction of pathways between operators (which obviously does not exclude pathways provided by the same operator). The YEI primarily provides "better" and "more" support for young people who are already known and reinforces existing partnerships What effect does YEI funding have on young NEETs receiving support? In Haute-Garonne, the data available on young people reached through the YEI only relate to initiatives funded by Direccte (data entered in the "Ma démarche FSE" monitoring program). The initial data from "Ma Démarche FSE" give the first indications on the profiles of the individuals reached through the YEI. Based on 1,338 participants involved in schemes at 31/12/2015 falling within the remit of the decentralised initiatives in Haute-Garonne, it would seem that the young NEETs who benefited from initiatives financed by the YEI have fewer qualifications than the average for participants in YEI funded national operational programmes. More of them also experience housing problems or live in households with nobody in employment. They also are somewhat less likely to have official recognition of a disability. The same was observed for the profiles of those targeted by local youth centres in 2014. The two local youth centres of the department initially supported 8,412 young people. Of these, respectively, 53% and 53.56% had qualification level V and below (ISCED 0-2). In the YEI funded decentralised actions of the national operational programme, 61.2% participants have qualification level V or below. 4
As at 31 December 2015, the employability outcomes looked positive, compared to the targets of the national operational programmes. This data is only very partial at this stage (267 leavers out of 1,338 participants, or 20% of leavers at the end of December 2015). In Haute-Garonne, 43% of young NEETs leaving a YEI funded initiative under the decentralised initiative found a job, or resumed training or studies at the end of the scheme (4% found permanent employment, 16% other types of employment and 23% were in training or resumed their studies). This rate of positive outcomes on leaving is broadly higher than the targets set by the YEI funded national operational programme and is close to the results observed nationally for all of the operational programme (42% of positive outcomes on leaving at end December 2015). Outcome on leaving targets set by the national operational programme The initial results of initiatives financed by Direccte Leavers at 31/12/2015 from Direccte schemes 300 000 young people Sample of 1338 participants What effect does YEI funding have on local partnerships? In terms of local governance of employment and youth policies, the YEI provided an opportunity to set up the first departmental level meetings involving several institutional players (Direccte, Regional Council, Department, Employment Service) and operators involved through the YEI (operators funded by Direccte). While these initial meetings, and the territorial coordination that was developed as a result of them, would benefit from enhancement, they are only a first step towards governance of a youth employment policy. In Haute-Garonne (as in other eligible territories), the Regional Council and Direccte have established "dividing lines" to demarcate each of their remits. These dividing lines are primarily a form of separation that provide a 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. 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. 5
Recommendations for the future of YEI schemes in Haute-Garonne Subject Organisation responsible Recommendation details Programme implementation approach Direccte, The Regional Council and CREFOP regional employment, training and guidance units Direccte, The Regional Council Direccte, The Regional Council Regional Council French General Delegation for Employment and Vocational Training, ARF French regions association, and the Regional Council Carry out a more detailed investigation of areas to be served: As to the region's young NEETs so as to identify and understand their needs better As to the support available in the territories and any gaps in it Finalise the programme package by investing in initiatives enabling expected impacts to be maximised and a response to employment challenges to be provided: Develop initiative for identification of target groups to rebalance the package of YEI funded services and enrich the work of the different operators. Involve social support organisations, entrepreneurship support networks and the economic world, etc. (for potential renewal of approaches) Adopt a more concerted approach in preparing the delivery of YEI schemes: Central government-regional plan of action, joint public relations initiatives, joint calls for proposals, etc. Promote joint steering of YEI funds between the ESF service, the youth/ employment service and the territorial unit for Direccte. Promote the implementation of joint responses, incorporated into calls for proposals (calls for proposals could give encouragement, in their selection criteria, to a multi-disciplinary response and to setting up integrated approaches) Adopt an even more proactive approach to sourcing and supporting new partners based on a more detailed evaluation of the areas to be served Specific call for projects taking account of the delays inherent in this type of approach Provide new data fields in the monitoring software (number of participants targeted, actual expenses) and possibly the types of initiative in which each young person was involved (group workshops, one-to-one interviews, role-playing, etc.) for purposes of a counterfactual evaluation in 2018 Look carefully into sharing resources and data between the national and regional operational programmes Timescales for achieving results Short-term (from 2016 for improving implementation and results) Medium-term (if YEI funding is renewed) Regional Council Establish links between the current information systems to enable reliable and consolidated data for YEI to be produced Monitoring the impacts and the results Facilitate the implementation of Synergie to produce reliable YEI data Look carefully into the actual consumption of packages including critical actions (actions in the "initiatives" category) based on existing bodies (Monitoring Committees) and the profile of the target group Direccte, the Regional Council and the operators Carry out an assessment of the YEI and approach of the work implemented by the GIP quango (DIRECCTE) Produce an inventory for the Regional Council on the actual use of places on the schemes targeted Management and delivery Direccte, the Regional Council and the operators Highlight existing technical meetings with operators for better coordination of the different services packages and promotion of the development of pathways between operators. 6
NATIONAL OPERATIONAL PROGRAMME INITIATIVE ON EMPLOYING YOUNG PEOPLE IN METROPOLITAN FRANCE AND THE FRENCH OVERSEAS TERRITORIES (YEI) 7