Access to Employment Context Report Cyprus. ESF Expert Evaluation Network. page 1

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1 Access to Employment Context Report Cyprus ESF Expert Network page 1

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3 Author: Yannis Sofianopoulos In the framework of the ESF Expert Network managed by: Metis GmbH Donau-City-Straße 6 A-1220 Vienna and Training and Employment Research Unit (TERU) University of Glasgow, Adam Smith Building UK-Glasgow G12 8RT The views expressed in this report are those of the authors and do not necessarily reflect the official opinion of the European Commission. All errors or omissions remain the responsibility of the authors. Access to Employment Context Report Cyprus ESF Expert Network page 3

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5 A2E Context Report - CY Contents Brief Introductory Note Analysis of Interventions Research Summary Synthetic Text Success Factors, Good Practice Data Sources, Quality and Reliability Research Summaries of the indicators of the Operational Programmes Sustainable Development and Competitiveness and Employment, Human Capital and Social Cohesion Annual Implementation Report (2010) of the Operational Programme Employment, Human Capital and Social Cohesion Synthetic Text Research Approaches and Methodologies Research Summaries of the indicators of the Operational Programmes Sustainable Development and Competitiveness and Employment, Human Capital and Social Cohesion Annual Implementation Report of the Operational Programme Employment, Human Capital and Social Cohesion Synthetic Text Annex I Annex II Annex III page 3

6 Tables, Figures and Maps Table 1. Current implementation... 7 page 4

7 A2E Context Report - CY Brief Introductory Note The present report provides information on the interventions related to "Access to Employment" (A2E), as contained in the Cypriot OP Employment, Human Capital and Social Cohesion (EHCSC), which has a total budget of M and is co-funded by the ESF (M 119.8). Thus, the EU contribution amounts to 80% of the total budget. It includes the following priority axes: Development and adaptability of human resources (64% of total budget). Enlargement of labour market and social cohesion (33% of total budget). Technical assistance (3% of total budget). According to the OP s earmarking allocations of funds, the activities contributing to Access to Employment (A2E) are the following: 64- Development of Special Employment Services; 65- Modernisation and institutional enhancement of the Labour Market; 66- Active Labour Measures; 69- Measures on Access to Employment for women; 71- Social Inclusion actions focused on employment. The data and other qualitative information available to the researcher have been rather insufficient, in fact limited to only two documents which are available: 1. of the indicators of the Operational Programmes Sustainable Development and Competitiveness and Employment, Human Capital and Social Cohesion 2. Annual Implementation Report 2010 of the Operational Programme Employment, Human Capital and Social Cohesion There has also been one additional evaluation exercise carried out which is related to the Communication Plan of the OP. However, this does not provide specific information on the A2E issues. In addition to the above (1) and (2), the On-going Study on the OP EHCSC is under finalization. The first and partial draft document was finally delivered at the end of May 2012 while the integrated and corrected draft is due at the end of June. It is also worth mentioning that within the process of the on-going evaluation, two more specialised reports will be produced; one on the effectiveness of the Active Labour Measures and one on the Effects of the ESF interventions in Employment in Cyprus. In the absence of the on-going evaluation deliverable, the most suitable document available for intervention analysis is the Annual Implementation Report 2010, as well as the OP document. page 5

8 1 Analysis of Interventions 1.1 Research Summary The information available on the interventions on A2E derives from the text of the OP EHCSC as well as the Annual Implementation Report According to the OP EHCSC , Priority Axis 2 Enhance the Labour Market and Social Cohesion, the following four specific objectives set the strategic framework for the implementation of activities in A2E: Enhance the labour market and women s employment Enhance the labour market and the employment of young people Enhance and increase the labour market institutions Increase the number of economically active people from vulnerable social groups The total public cost of the Priority Axis 2 is estimated to , out of which (70%) is the ESF contribution. Detailed description of interventions According to the description of Priority Axis 2 of the Operational Programme Employment, Human Capital and Social Cohesion the interventions that contribute to A2E are the following: Training programmes for obtaining the necessary qualifications and skills for women who wish to join / rejoin the labour market; Placing women in business to gain work experience; Development and implementation of grant-aided support projects for women who wish to participate in the labour market and face difficulties due to dependent care; Activities that promote and support the implementation of flexible forms of employment; Training programmes for developing the knowledge and skills of unemployed people aged according to labour market needs, including general skills and ICT skills, job search, communication, etc; Training programmes to improve the employability of the unemployed aged over 30; Placing unemployed people aged years in business, in order to gain the necessary work experience; Ensure full and effective geographic network coverage of the PES; Integrated approach to link supply and demand that will be fully consistent with the needs of the unemployed, vulnerable groups, people with disabilities and businesses. Harmonisation and continuous quality improvement of the services provided by PES; Strengthening the technical and administrative capacity of the PES for the continuous monitoring and evaluation of employment policies; Ensuring the necessary skills and expertise required, as well as continuous specialized training required for the efficient operation of the PES; page 6

9 A2E Context Report - CY Expansion and constant improvement of methodological tools for monitoring the supply and demand of qualifications and skills in the labour market; Strengthening cooperation between the PES with local administrations and social partners. According to the list of beneficiaries published on the official site of the Cypriot Structural Funds Agency, three major projects with a total budget of M are targeted to the increase of the labour force and women s employment; a grant scheme of a total 2.4 M and more than 199 contracts with local SMEs is targeted to the creation of job opportunities with the use of flexible forms of employment; one major project of a total 8 M is dedicated to the improvement of employability of the unemployed; a grant scheme of over than 1115 contracts and to a total of 5.95 M is dedicated to the creation of job opportunities for inactive or / and unemployed people; one project of a total 7 M for the enhancement of Public Employment Services; four projects of a total of M on the increase of economical active and employed people from vulnerable groups; a grant scheme on access to employment for people with disabilities with more than 72 contracts of a total of 1.3 M ; and finally, a grant scheme with 856 contracts of a total of 8.43 M targeting access to employment for vulnerable social groups. The following table presents a very draft calculation of investments based on the contracts that the OP EHCSC has listed to the relevant document. This information however is not available in the AIR Table 1. Current implementation Earmarking code 2011 * situation contracted projects 64- Development of Special Employment Services 65- Modernisation and institutional enhancement of the Labour Market Total allocation of funds EU contribution ** % % 66- Active Labour Measures % % 69- Measures on the Access to Employment for women 71- Social Inclusion actions focused on employment % % Total % * Commitments; beneficiaries list from MA site, as for end 2011; data from a published excel document on the following path: Έργων ** Data from the official OP HRD Document The current situation in Cyprus as reported in the Annual Implementation Report 2010 (cut-off date ), is that more than 2,979 people have actively participated in page 7

10 activities funded by ESF and falling under A2E; most of them had been unemployed (2,379). Out of the total, 1,468 participants concluded the activities; out of these 1,048 are women. Most of those who benefited are unemployed (954) and most of them are women. According to the AIR 2010, the results so far of the implementation of the Operational Programme are equally poor. The Cypriot authorities have achieved a job placement rate of the people served by the PES network of only 5.9%; while the final target is 16.5% (35% of the final target). Even lower is the job placement rate of young people (15-24 years) served by the network of PES which is 8.5% while the final target is 50% of the young population (17% of the final target). As far as it concerns the rest of the listed result indicators on: Percentage of new registered unemployed who are offered an opportunity in the form of job placement, training or work experience within 6 months, Percentage of inactive female population remaining in the labour market 6 months after completion of vocational training and acquisition of work experience Percentage of vulnerable people remaining in employment 6 months after discontinuation of the grant, the AIR does not provide information on implementation achievements. 1.2 Synthetic Text According to the information provided in the Annual Implementation Report 2010, and the references made on indicators in the relevant tables (pages 57-58), it is obvious that the EHCSC Operational Programme in Cyprus is intending to create a favourable environment for access to employment especially through their Public Employment Services. However, and up to the cut-off date of the annual report ( ), it is clear that the achievements are still poor. Furthermore the AIR does not provide specific information on the majority of the indicators listed in the tables. The details of the outcomes of the implementation so far are: Only one third of the targeted number of women have benefited from training and work experience while the final target of the Operational Programme is estimated at 1,500. Considering the fact that the final target is comparatively low in relation to the total number of the target group (94,000), it seems that the target is achievable in the time frame of the programming period. Significantly lower is the achievement of the interventions with regard to unemployed people benefiting from training and work experience which is estimated at one fifth of the total target group (467 out of 2,150). However, and for the same reasons as analysed above, the target remains feasible and should be achieved by the end of the programming period. Concerning the indicators on: the creation of New Public Employment Offices, socially vulnerable groups included in training, socially vulnerable groups in work experience programmes and people with disabilities who benefited from promotional jobs, the AIR does not provide information on implementation. page 8

11 A2E Context Report - CY 2 Success Factors, Good Practice There is no available information yet on success factors and good practices coming up from the AIR According to the general regulation 1083/2006 (art 67 par 2), the key elements of the AIR must include all necessary managerial information on implementation but not references on good practices or success factors. Usually this is subject of the evaluation exercise and more information shall be provided only by the evaluation report as expected later in June page 9

12 3 Data Sources, Quality and Reliability 3.1 Research Summaries Information provided in this report was extracted from extensive internet research on the Cypriot websites of the Cyprus Planning Bureau, the State s single Managing Authority for the two Cypriot Operational Programmes for Sustainable Development and Competitiveness and Employment, Human Capital and Social Cohesion ( and Further to the above, there was also extended phone-based consultation and exchange of s with the competent staff of the Planning Bureau and in particular with the Unit of the OP EHC & SC Managing Authority. The following is the picture by each available document of the indicators of the Operational Programmes Sustainable Development and Competitiveness and Employment, Human Capital and Social Cohesion Nr 1 is a technical support evaluation study on the indicators suitable for the management of the two Operational Programmes in Cyprus. The general objective of the evaluation is the optimization of the monitoring system of indicators included in the Operational Programmes of NSRF. The data used for carrying out the evaluation is mainly qualitative that has been available through consultation and in house examination of the managing system including the Managing Authority s officials, intermediate bodies, the statistics bureau and main beneficiaries Annual Implementation Report (2010) of the Operational Programme Employment, Human Capital and Social Cohesion According to article 67 of the General Regulation 1083/2006, the Annual Implementation Report (AIR) is an obligatory report that the Managing Authority prepares based on the implementation (qualitative and quantitative) data available from the Management Information System (MIS). The standardized template of the AIR, which is described thoroughly in article 40 (Annex XVIII) of the regulation (EC) 1828/2006, offers specific chapters that deal with A2E issues with respect to the implementation achieved in the year of reference. The data available for the AIR is managed through the MIS and interventions on A2E can be distinguished in the relevant chapters (both by specific target analysis and as a contribution to the European Employment Strategy) 3.2 Synthetic Text As mentioned in the previous part of this report, there are two technical evaluation reports available that contain partial information on A2E interventions funded under the ESF in Cyprus. However, the information available in these studies is not suitable for reaching conclusions on the results of A2E interventions in Cyprus. This is mainly because they are technical support studies dealing with specific issues, namely (a) the indicators; and (b) the communication approach of both Operational Programmes. The forthcoming on-going evaluation, the first draft of which is due in May 2012, will provide more coherent and suitable data on A2E interventions of the Structural Funds page 10

13 A2E Context Report - CY in Cyprus. Moreover, the two planned thematic evaluations on the effectiveness of interventions and on the effects of employment will presumably provide more information on the issue. The type of data available is that collected in the Management Information System of the Structural Funds in Cyprus; the MIS is collecting data directly from the beneficiaries and the recipients. A first degree analysis is provided in the AIR-2010 where the MA examines the issue of A2E in specific sections of the report. However, the information provided by the AIR follows the specifications of the article 67 of the General Regulation 1083/2006, which requires managerial information on the implementation of interventions and not at the project level. Apart from the data available in the AIR, the data available in the two existing evaluations are secondary and to some extent irrelevant to assess the contribution to A2E activities. It is hoped that the on-going evaluation will produce a more coherent set of data. On the other hand, the AIR-2010 is offering some data at the level of indicators. The data are available and to some extent accessible from the MIS. page 11

14 4 Research Approaches and Methodologies 4.1 Research Summaries of the indicators of the Operational Programmes Sustainable Development and Competitiveness and Employment, Human Capital and Social Cohesion For carrying out the evaluation, a large amount of data has been collected and reviewed by the project team, for both programming periods, namely: Programming documents. Ex-ante evaluations. Annual Implementation Reports. Relevant information concerning the quantification of indicators (definition of baseline and target values). Moreover, the relevant EU working documents and guides on indicators have been taken into account. From methodological point of view and in addition to the above, the evaluators carried out structured interviews based on an adequate questionnaire in order to gain a deeper insight into the relevant issues for the indicators and also to take into account the personal views of the staff involved in the definition and monitoring of indicators. Interviews were carried out with the relevant staff of the Planning Bureau, the Intermediate Bodies and key Beneficiaries. Based on the questionnaires collected and reviewed, useful conclusions have been drawn concerning: Adequacy and reliability of indicators. Credibility of data. Monitoring procedures. Training of staff. The indicators have been evaluated against the SMART principle. However, one of the findings of the evaluation highlights that the indicators of the OP cannot measure directly and exclusively the progress on the Lisbon strategy indicators since they are more general and are not influenced only by the intervention of the OPs but also by the overall development of Cypriot economy. Thus, the contribution of the OPs towards the achievement of the Lisbon strategy cannot be directly assessed. Therefore, it is proposed to the Managing Authority to carry out thematic evaluations for assessing more accurately the impacts of the OPs on the key Lisbon strategy priorities (e.g. active labour policies) Annual Implementation Report of the Operational Programme Employment, Human Capital and Social Cohesion Chapter 4 of the AIR contains information on the implementation achieved in the reference year 2010, according to each specific strategic target of the OP. Moreover, chapter 5 of the AIR contains information on the contribution of the ESF interventions to the European Employment Strategy. page 12

15 A2E Context Report - CY According to the latest available data from the AIR-2010, the percentage of the OP s contribution to the EU priorities related to Development & Employment equals to 89% of its total budget, out of which more than 31.6 M are earmarked for interventions on A2E. 4.2 Synthetic Text Both of the existing evaluations are technical support studies dealing with specific issues on management and implementation (namely indicators and communication plan implementation). For that reason the issue of A2E is only indirectly approached. However, the AIR focuses on the issue of A2E either through the specific analysis of targets (Chapter 4) or through the analysis of the contribution of the interventions to the European Employment Strategy. The data used for both approaches is primary information available through the MIS and the process of getting information from the beneficiaries. The range of research methodologies is wide and ranges from secondary data analysis and administrative consultation ( Nr 1) to interviews and surveys to target groups and samples of the target group and best practice analysis ( Nr 2). The AIR is based mainly to the standard administrative and financial data available to the MIS. Nevertheless, in the forthcoming evaluation report the following key methodological aspects will be considered: of the current strategy of the OP. of the Programme s continued consistency with national policies and the Community strategic guidelines. of current results of the OP and the achievement of objectives. Thorough examination of the physical integration of the OP at the end of the programming period, detection of discrepancies and corrective action recommendations. of the effectiveness of enforcement mechanisms of the Operational Programmes. page 13

16 Annex I This annex provides the analysis of the relevance and effectiveness of ESF interventions based on the information provided in the AIR The evaluations (on going and thematic) are still either not completed or under initial stages, respectively. Therefore, the data are not yet available. Effectiveness of ESF interventions A2E Aggregate Level Development of Special Employment Services Modernisation and institutional enhancement of the Labour Market Active Labour Measures Measures on the Access to Employment for women Social Inclusion actions focused on employment Total Public Cost Number of final recipients Number of final recipients achieving an employment result Number of final recipients achieving other hard result 1 * NA NA NA NA * NA NA NA NA * NA NA NA NA * NA NA NA NA * NA NA NA NA * NA NA NA NA women 2379 NA NA NA NA Young unemployed Inactive labour force Long term unemployed 642 NA NA NA NA 606 NA NA NA NA 217 NA NA NA NA * Data from the OP HRD in E.C. contribution ** For the NA data, information can be obtained only after special query to the MIS (column 2) or/and will be found in the on going evaluation at a later stage. Number of final recipients achieving soft result 2 1 i.e. qualification, progress into other training or education 2 i.e. some form of increased personal capacity or other progress towards employment not covered by hard results page 14

17 A2E Context Report - CY Annex II of the indicators of the Operational Programmes Sustainable Development and Competitiveness and Employment, Human Capital and Social Cohesion In relation to research of A2E, what were the different types of data used (i.e. final recipient contact data, micro-data financial data, activity data, result data) What sources for each type of data (e.g. admin data, final recipient survey data) Were the data obtained from programme level, project level, provider level? Can data relating to A2E be reasonably isolated from other activities / groups? What obstacles to accessing data were noted (e.g. capacity of systems for data gathering, cost, providers co-operation)? Final Recipient Contact Data 3 Financial Data 4 Output Data 5 Results Data Based on Monitoring 6 Results Data Based on Research 7 For evaluating the coherence and relevance of the indicators in use for A2E, the evaluators have taken under consideration opinions and qualitative information from the MA and the Recipients admin data admin data admin data & MIS reports where necessary programme level programme level programme level programme level programme level The research presents the entire list of indicators used in both programming periods. The A2E indicators are reasonably isolated and methodologically analysed What issues with data quality were noted? Where survey based, what was the A2E final recipient sample size? - 3 Where appropriate, the researchers were able to access the contact data required in order to carry out effective final recipient research. 4 i.e. data on the financial inputs to the interventions covered by the evaluation, AIR or other report. 5 i.e. data relating to the number of final recipients participating in different A2E interventions. 6 i.e. data relating to the numbers of A2E final recipients who obtained a positive result (e.g. a job, went onto further training, etc) following participation in A2E interventions obtained from project monitoring data. 7 i.e. data relating to the numbers of A2E final recipients who obtained a positive result (e.g. a job, went onto further training, etc) following participation in A2E interventions obtained through research among final recipients. page 15

18 Annual Implementation Report (2010) of the Operational Programme Employment, Human Capital and Social Cohesion In relation to research of A2E, what were the different types of data used (i.e. final recipient contact data, micro-data financial data, activity data, result data) What sources for each type of data (e.g. admin data, final recipient survey data) Were the data obtained from programme level, project level, provider level? Can data relating to A2E be reasonably isolated from other activities / groups? What obstacles to accessing data were noted (e.g. capacity of systems for data gathering, cost, providers co-operation)? What issues with data quality were noted? Where survey based, what was the A2E final recipient sample size? Final Recipient Contact Data 8 Financial Data 9 Output Data 10 Results Data Based on Monitoring 11 project level provider cooperation Results Data Based on Research 12 admin data admin data admin data admin data programme level project level project level Yes Yes Yes Yes - provider cooperation capacity of systems for data gathering project level capacity of systems for data gathering - 8 Where appropriate, the researchers were able to access the contact data required in order to carry out effective final recipient research. 9 i.e. data on the financial inputs to the interventions covered by the evaluation, AIR or other report. 10 i.e. data relating to the number of final recipients participating in different A2E interventions. 11 i.e. data relating to the numbers of A2E final recipients who obtained a positive result (e.g. a job, went onto further training, etc) following participation in A2E interventions obtained from project monitoring data. 12 i.e. data relating to the numbers of A2E final recipients who obtained a positive result (e.g. a job, went onto further training, etc) following participation in A2E interventions obtained through research among final recipients. page 16

19 A2E Context Report - CY Annex III Research approaches and methodologies of the of the indicators / analysis of Management and Implementati on Processes / analysis of Results Using Monitoring Data 13 of Results based on final recipient Case Study / Focus Group 14 of Results based upon sample final recipient research 15 Theory Based Impact Counterfactual Impact Other Impact Research specifically focusing on A2E interventions and target groups Research specifically focusing on subset of A2E interventions and target groups Research focused on target group, a subset of which includes A2E final recipients. Research which focuses on intervention type where subset of the target group are A2E final recipients. 13 i.e. evaluation / analysis that is based upon administrative resources rather than research. 14 i.e. evaluation based upon very small scale final recipient research and useful for investigating qualitative issues (may form part of a more broadly-based evaluation). 15 i.e. evaluation research through representative final recipient survey examining the gross results. page 17

20 Research approaches and methodologies of the Annual Implementation Report 2010 / analysis of Management and Implementati on Processes / analysis of Results Using Monitoring Data 16 of Results based on final recipient Case Study / Focus Group 17 of Results based upon sample final recipient research 18 Theory Based Impact Counterfactual Impact Other Impact Research specifically focusing on A2E interventions and target groups Research specifically focusing on subset of A2E interventions and target groups Research focused on target group, a subset of which includes A2E final recipients. Research which focuses on intervention type where subset of the target group are A2E final recipients. 16 i.e. evaluation / analysis that is based upon administrative resources rather than research. 17 i.e. evaluation based upon very small scale final recipient research and useful for investigating qualitative issues (may form part of a more broadly-based evaluation). 18 i.e. evaluation research through representative final recipient survey examining the gross results. page 18