PES to PES Dialogue. The European Commission Mutual Learning Programme for Public Employment Services. DG Employment, Social Affairs and Inclusion

Transcription

1 PES to PES Dialogue The European Commission Mutual Learning Programme for Public Employment Services DG Employment, Social Affairs and Inclusion PES PAPER Peer Review Blended service delivery for jobseekers Netherlands, June 2014 German Federal Employment Agency, Germany (May 2014)

2 This publication is commissioned by the European Community Programme for Employment and Social Solidarity ( ). This programme is implemented by the European Commission. It was established to financially support the implementation of the objectives of the European Union in the employment, social affairs and equal opportunities area, and thereby contribute to the achievement of the EU2020 goals in these fields. The seven-year programme targets all stakeholders who can help shape the development of appropriate and effective employment and social legislation and policies, across the EU-28, EFTA-EEA and EU candidate and pre-candidate countries. For more information, please refer to: For more information on the PES to PES Dialogue programme, please refer to: Editor: Susanne Kraatz, DG Employment, Social Affairs and Inclusion, Unit C.3 - Skills, Mobility and Employment Services, European Commission. Author German Federal Employment Agency, Germany In collaboration with ICF GHK and the Budapest Institute Please cite this publication as: European Commission (2014), Blended service delivery for jobseekers, Peer Review Host Country Paper, Brussels, Author: Bundesagentur für Arbeit, Germany The information contained in this publication does not necessarily reflect the position or opinion of the European Commission May 2014

3 Table of Contents 1. Context PES strategy and approach to digitalisation and blended service delivery Measuring effectiveness and client satisfaction of personalised services and the impact of digitalisation Successful practices in delivering and measuring effective personalised services in the context of digitalisation of PES services forjobseekers Conclusions May 2014

4 1. Context 1.1 Impetus for Change Various factors, including the broader changes in society and technology affected the strategic development of e-services in the German PES (Bundesagentur für Arbeit BA). Customer surveys and research showed the following trends in the use of online channels: The importance and spread of the internet and mobile devices is constantly increasing. In consequence, the internet is increasingly accepted as an important channel for public services. On the part of customers, there is a growing demand for digital access alternative or additional to traditional channels. The expansion and development of digital access channels can lead to more efficient service delivery. In addition, the German federal government aims to further expand its e- government and encourages the different public service providers to participate in it. Based on these broader changes, the online strategy was developed in line with the overall strategy "BA2020", where the future service catalogue of the German PES for employee and employer customers and the required resources are written down. Around the four fields of action regarding customers there are two strongly related to digital services: a) "We meet our customers where they are": this field of action refers to the development of a customer oriented multi-channel approach. b) "We support market-oriented customers with new offers": the supply of new counselling services for customers close to the market (e.g. in the field of further education and career development) requires the combination of all channels - face to face, telephone, online - to use the resources efficiently. 1.2 Surrounding labour market context In the years following 2005, the unemployment figures in Germany showed a nearly constant decrease. The number of unemployed persons fell from 5 million to slightly over 3 million in In line with this development the share of hard-toplace unemployed is rising, who need intensive face-to-face support. At the same time, the German PES tries to reach new target groups (e.g. hidden unemployed individuals not registered with the PES, men and women re-entering the labour market after childcare). To cover the needs of all customers without extending personnel resources, a multichannel or blended approach has been established. The aim is to give face-to-face support to all customers who in need it and offer e-services and online selfinformation tools to simple claims and customers who able to use such channels. May

5 2. PES strategy and approach to digitalisation and blended service delivery 2.1 Recent changes in the digital agenda In the development of the digital agenda the BA follows a multi-topic approach, with different levels of development for the different topics. The topics that were in trial at the Peer Review in Antwerp in 2011 have been implemented in all local agencies now, namely: Online tool for entering CV and job history by employee customers themselves ( Data Self Entry ): customers can make use of computers displayed in the agencies or enter the data at home via internet. Increase in the use of the online jobseeking notification: employees can register as jobseekers (necessary for receiving unemployment benefits) online. Increase in the use of the common employer and candidate accounts: for communication between jobseeker and potential employers. Implementation of online-customer/online-collaboration: use of the online channel as the only channel of communication for selected customers (basically customers without need for other support and ready-to-place, with good ITskills and the required IT-endowment) and a defined time period (typically three month). Additionally, counselling and placement activities as well as support for employers are still supplied face-to-face. With the "Contact Plus" project, the BA initially followed the introduction of a passive or voluntary multi-channel strategy, in which the customer selects the desired access channel him/herself. With the project "BA online 2020 the BA prepares for the change from a passive to an active channel controlling. Starting from the actual share of the online channel, the different existing online offers and those in development were analysed and gaps in the online services have been identified. Based on this, eleven initiatives were chosen for implementation in the next six years. Examples are the implementation of online notification (already active), the possibility of online dialogue between customer and caseworker (piloted in the international recruitment) and several developments for the website, like video support for the vacancy portal JOBBÖRSE. 2.2 Evidence-base used for development As mentioned above, the development of e-services is based on the overall "BA 2020"strategy in conjunction with the strategy "BA online 2020". BA undertook various studies and surveys, which provided the basis for developing digital access channels: Comparisons and exchanges with other European PES (like the P2P Peer Review in Antwerp in 2011) provided insights that were used for the development of the BA s own services. It has been shown that despite the different starting positions of the other PES, the German PES faced the lowest values in the use of existing and comparable online access channels. PES staff working with customers were interviewed about which of their customer groups they think are able to use the existing and future online channels. In addition, staff were also ed about their own online affinity. May

6 Customers were asked about their needs and preferences in access to public services (internet, telephone, face-to-face) with various concerns (news, advice, information, appointment, payment of benefits, counselling etc). It turned out that customers primarily want to handle administrative activities online, but prefer counselling to take place face-to-face. The balance between staff and customer survey revealed a significant discrepancy between how confident the staff were in online capabilities of their customers, and the self-assessment of customers on this issue. 2.3 Core elements, success factors, challenges to organise and implement recent changes Key success factors were: The testing and piloting of different approaches revealed insightful findings that could be considered in the implementation. A good and adequately trained preparation team for the development of different approaches and for accompanying pilots was crucial for successful implementation. A key factor in the composition of the team was to incorporate staff from local employment agencies, not only from the Research &Development unit at the Headquarters. Detailed implementation documents supported a successful implementation. As part of comprehensive staff training, managers and employees were prepared on site. Major challenges in the development and implementation were: Data protection requirements narrow the scope for the development. Long IT development cycles make a timely implementation difficult. Employees and managers had and still have to be convinced of the aims and benefits of the project extensively. The training effort was significant and during the training some staff had to be replaced. The establishment of workplaces for data self-input was associated with a high amount of work. Even after the nationwide implementation, technical and substantive developments are required, which are associated with high personnel expenses. The size and regional structure of the PES causes friction in the collaboration between the different levels. For example, after development and piloting the responsibility for the nationwide implementation was settled at the respective Regional Directorates. This required a coordination process which is labour- and time-consuming. 2.4 Personalised services: components / elements of the blended e-service A multi-channel strategy has been developed, which describes the access routes to services. In addition, a target image for the BA was defined within the project BA2020, highlighting which channels the BA prefers for delivering its various services. Based on earlier trends, there will be a focus on the development of more online services. May

7 In the future, all customers will have personal access to all PES services. The use of digital services is and will always be voluntary. Counselling will remain personal a requirement expressed by a majority of customers. Personal counselling will however be complemented by digital, supportive channels (e.g. chat, videochat). The digital delivery requires that customers are technically equipped and bring corresponding online-affinity. The latter also applies to staff members, who will be specially trained in digital counselling. Placement processes are generally done face-to-face, but assisted by digital tools in writing and telephone. These include: a) In writing sending applications for job placement correspondence with clients in job placement s b) Digital online jobseeking notification self-data-input exchange on a common candidate account preparation of application documents including application assistance sending and receiving proposals for mediation correspondence with clients in placement process c) By phone exchange on placement s possibly simple counselling concerns General information requirements of customers are predominantly met by various websites of the BA (arbeitsagentur.de, Kurs.net,...). Ultimately, the selected type of exchange channel depends on customer preference and is agreed in contact with the customer. 2.5 Main lessons learnt associated with recent developments of personalised services in the context of increasing digitalisation Overall, the BA rates the development and implementation of digital services as positive. The same applies to the combined use of various access options. For digital services to be implemented successfully, it is important that managers and employees involved are well prepared and trained so that they develop an understanding of the goals that are associated with the implementation; a well-developed and clear translation of the advantages for employees and customers is available; customers needs are continuously monitored and the necessary conclusions are drawn; modifications of the target and control system are identified and addressed; and May

8 integration of end-to-end processes without media breaks is reached. 2.6 Key staffing and management considerations a) Requirements for employees Placement and counselling professionals need to know about all the access channels available and must be able to serve these. The following is therefore required of all placement and counselling professionals: Consulting expertise (User) knowledge of available services and digitalised content Affinity with available IT Confidence in the ability of customers Willingness to adapt to new processes Sales orientation with the introduction of new products New requirements arise from the integration of online processes in the staff s area of responsibility. Thus, new skills are required, which must be covered by accompanying qualification measures. b) Management view: The processes have to be constantly and systematically monitored, measured and analysed. The knowledge gained about success factors and sources of failure has to be incorporated into further development and process optimisation. The online processes and their consequences for the business model, the system of objectives and the underlying controlling system have to be considered reasonably. In the selection of staff members the above mentioned requirement criteria must be met. The training contents have to be adjusted to the requirements mentioned above. May

9 2.7 Overview PES services provision for jobseekers in the context of digitalisation Aspects of the client/suppor t journey When For whom Digital Telephone Face to face Blended Initial registration At least 3 months prior to unemployment Unemployed (=unemployment notification) customers who have already been dismissed, other jobseekers (=jobseeker notification), Yes, for jobseeker notification Yes, for jobseeker notification Yes, for jobseeker notification, unemploymen t notification and advice seeking notification When jobseeking notification online is used, the activation of the account via PIN letter is done. Furthermore, the unemployment notification must be made up in person for legal reasons Profiling Assessment unemployed In some cases (participation in profiling with selfentering data (e.g knowledge, CV) In some cases (data entry of components of the profiling (eg knowledge, CV) Yes Required components for profiling such as the CV or the existing knowledge can be captured by phone, entered by the customer digitally itself or in consultation. Most of the profiling work is done face to face Help with CV preparation Review of application documents in counselling session unemployed, Yes Yes (seldom) Yes The customer can deposit its application including CV in the common account and use the May

10 (initial and follow meetings) and online application assistance Job matching continuously unemployed online application assistance Yes Yes Yes Depending on the individual case, all channels are possible, but should normally be made in personal counselling Employment Counselling needed unemployed, Yes, depending on the specific on the specific s Yes Depending on the individual case, all channels are possible, but should normally be made in personal counselling Career guidance/couns elling / coaching needed unemployed, Yes, depending on the specific on the specific Yes The topic basically requires a face-to-face exchange. But individual s can be exchanged in writing, by telephone or digital. Required information can be accessed online Preparation of IAP needed unemployed No on the specific Yes The creation and updating of IAP is generally in faceto-face. Additional s about the findings can be discussed by phone May

11 Updating of IAP needed unemployed No on the specific Yes The creation and updating of IAP is generally face-toface. Additional s about the findings can be discussed by phone Interview preparation needed unemployed, Yes, depending on the specific on the individual s Yes The topic basically requires a face-to-face exchange. Single issues can be exchanged in writing, by telephone or digital. Required information can be accessed online Offer of measures needed unemployed, (without benefit) No No Yes The discussion and the offer of labour market measures are generally left for the personal counselling. Additional s can be made by telephone, in writing or digitally and be clarified. Follow up (e.g. monitoring of job applications, participation in measures needed unemployed, (if interested) Yes, depending on the specific on the specific Yes Generally face-to-face, but: For customers with whom an online service has been agreed for a period of 3 months, there is the (agreed) exchange on the common jobseeker May

12 account. Individual issues of overseeing the implementation (eg, to the agreed job applications) may, in writing or by telephone (if so agreed). Referral (to other agencies where suitable) needed unemployed, (if interested) Yes, depending on the specific on the specific Yes Depending on the individual case, all channels are possible, but should normally be made in personal counselling Post-placement follow up support needed / to notification unemployed, (if interested) Yes, depending on the specific on the specific Ja Depending on the individual case, all channels are possible, but should normally be given in personal counselling Other services (please specify) Cooperation with employers needed / to notification employers Yes, depending on the specific on the specific Ja Depending on the individual case, all channels are possible, but should normally be given in personal counselling May

13 3. Measuring effectiveness and client satisfaction of personalised services and the impact of digitalisation 3.1 Overall approach to evaluation Currently, the BA is going to implement a concept to increase the usage rates of access channels. The aim is initially a purely quantitative one. In order to collect the starting base and monitoring the development of the local usage rates, there are various technical facilities on site. The ten Regional Directorates, which are in charge of implementing the online services in the local agencies, are responsible for developing an approach and tools for measuring success at the regional and local level, and to provide the information to their respective local agencies. On the basis of such an overall concept, the local department-specific results shall be systematically merged. The evaluation results of the local agencies will be established as a regular agenda item in the performance dialogues between the Regional Directorates and the management of the local agencies. In addition, user behaviour of customers and employees is monitored centrally via a newly established IT-tool. 3.2 Measuring client satisfaction with regards to different channels, blended service delivery The BA follows different approaches to measure customer satisfaction and incorporates it in further development: Regular telephone surveys of customer satisfaction, conducted by the Centre for Customer and Staff Surveys, Special customer surveys for acceptance and optimisation of the different IT platforms, for example, the JOBBÖRSE Individual case-related complaints or positive statements of customers are periodically evaluated Feedback regarding the online channels which counselling officers get from customers in direct face-to-face contact 3.3 Using the information to adapt services for jobseekers, the level of personalisation and the blend of e-services The knowledge gained is centrally evaluated and incorporated into further development. A concrete example is the development of the online strategy by the BA, which is to be implemented by 2020 through a programme. At the same time there is transfer of information to the local agencies in case of detected irregularities or errors so that, where appropriate, they may also react on the spot. May

14 4. Successful practices in delivering and measuring effective personalised services in the context of digitalisation of PES services for jobseekers 4.1 Successful practice for implementation of new online (selfhelp) services, new combination of online / telephone/ faceto-face services Overall, relationships between online use and resulting (faster / better / more sustainable) impacts, effects and success compared to other channels have not yet been evaluated in the BA. In general, each channel has its specific advantages and disadvantages. As an example for a successful implementation, below is the implementation of a "Videochat" for international recruitment activities. May

15 Start and end date of implementation Description Outputs and outcomes of Type of assessment used to identify the outputs and outcomes Videochat for the international personal service Started piloting: 07/2013 Ended piloting: 06/2014 Introduction in 07/2014 is planned Support for international placement work (recruitment of foreign professionals) using video chat technology. Applicants for professional posts can now be profiled and counselled accordingly in their home country. Through the use of video technology "Lync" placement officers and customers are able to work together on the customer s JOBBÖRSE account to exchange documents more quickly and thus complete the customer's profile more quickly. Thereby, the applicant is "placeable" more quickly and thus the video chat implicitly leads to faster integration in the German labour market. This is supported by the fact that employers gain better facilities for pre-selection of candidates by visual impressions of the candidates. From the pilot, over 600 videochats took place. There is not yet quantitative evidence over outputs and outcomes available. In customer und staff surveys which were conducted during the pilot, the following advantages of the video chat were identified: - Availability of faster processes - Faster integration of customers - Faster completion of profiles and application documents; - Better facilities for pre-selection of candidates for employers by visual impression of the customer. Overall, the surveys showed a high customer- as well as staff-satisfaction with the new instrument. Staff members emphasised the usefulness of the new channel especially for profiling the soft skills of the candidates. Results (videochat offered and conducted) were determined manually as part of the testing. After nationwide implementation (07/2014), electronic collection of data will be provided. Key challenges Technical availability Online-affinity of customers Key conditions for success Process has to be orientated towards customers demands Intensive presentation of benefits at hand needed, especially for staff members May

16 5. Conclusions 5.1 Main challenges in relation to delivering effective, personalised services to jobseekers that are supported by digital channels During introduction and implementation, managers and staff need to be convinced in the usefulness of e-services - and they have to be able to relay this conviction to the customer. The transmission of the beneficial use of online services to the customers is one of the key success factors for the implementation process. Appropriate marketing activities (eg flyers) can support the implementation process and help to establish the new service. The digital collaboration (i.e. contacts and communication only online for a certain time period) should be offered only to those customers who have the appropriate qualifications and the necessary technical requirements. The quality and usability of digital services have to be reviewed continuously in order to adjust the current processes and requirements. Additionally, the following aspects represent other success factors: Holistic view of new online services based on defined business processes Continuity and media break-free digital processes Integration of online processes in the internal processing Optimal support of customers when using those services Optimisation of the target and control system 5.2 Main challenges in relation to measuring effectiveness of - and client satisfaction with personalised services supported by digital channels In case of voluntary use of digital channels by the customer it cannot always be differentiated whether the measured effects result from the channel at hand or from certain customer characteristics. In the case of blended services, the difficulty arises of attributing effects to specific services (face-to-face or digital). This applies to both effectiveness and customer satisfaction. If - as described - no unique assignment is possible, the measured effects may not be useful for optimisation or development. It is therefore essential to develop appropriate measurement methods / subjects to allow unambiguous assignment. 5.3 Conclusions on what works best in relation to the delivery of effective personalised services for jobseekers in the context of digitalisation Staff and customers should be involved early in the development of the online services to meet the needs of both groups. External factors (e.g. technological developments) have to be reviewed regularly for services to adapt to new trends in digital services. For example: with the increasing dispersion of smartphones, the BA developed an App for the web-based "JOBBÖRSE". May

17 The digital services have to be embedded in the business processes consequently, the processes have to be designed end-to-end. 5.4 In the Peer Review discussions, on which of the following topics would you most like to focus and what would you most like to learn from others? Topics Importance of the topic What would you most like to learn from others in the topic(s) you are most interested in? Targeted use of self-help online tools including interactive elements 2 How to find the right target group for online tools? Role of face-to-face services as part of blended service delivery (implications of increasing automatisation) 4 How far can we go in online counselling? I. e, which topics, which groups of customers, at which state of the implementation process PES management and staffing changes to implement and move towards blended, personalised services 3 What are successful measures to convince staff members in using e-services? Is it possible to create blended staff, i.e. caseworker who are able to deliver services online as well as face to face, or should we rely on specialized face-to-face caseworkers and online specialists? Approaches to measuring effectiveness and client satisfaction of different service channels / blended service delivery 5 Is it possible to create valid quantitative measures for the effectiveness of different service channels in comparison and if so, how? May