GUIDANCE AND OUTREACH FOR INACTIVE AND UNEMPLOYED

GUIDANCE AND OUTREACH FOR INACTIVE AND UNEMPLOYED

SLOVENIA

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Please cite this publication as: Šlander M.; Sanmartin Jaramillo N.; (2018). Guidance and outreach for inactive and unemployed – Slovenia. Cedefop ReferNet thematic perspectives series. http://libserver.cedefop.europa.eu/vetelib/2018/guidance_outreach_Slovenia_Cedefop_ReferNet.pdf

Authors: Metka Šlander, Natalia Sanmartin Jaramillo, Teja Žagar, Darko Mali Reviewed by Cedefop © Center RS za poklicno izobraževanje (Cedefop ReferNet Slovenia), 2018 Reproduction is authorised, provided the source is acknowledged. The thematic perspectives series complements the general information on vocational education and training (VET) systems provided in ‘VET in Europe’ reports. The themes presented in the series feature high on the European agenda. Thematic perspectives provide national overviews of specific themes in a common format and offer comparative dimension across the EU Member States, Iceland and Norway. Thematic perspectives are available at: http://www.cedefop.europa.eu/en/events-and-projects/networks/refernet/thematic-perspectives This thematic perspective was prepared based on data/information from 2017. The opinions expressed here do not necessarily reflect those of Cedefop. Thematic perspectives are co-financed by the European Union and ReferNet national partners. ReferNet is a network of institutions across Europe representing the 28 Member States, plus Iceland and Norway. The network provides Cedefop with information and analysis on national vocational education and training (VET). ReferNet also disseminates information on European VET and Cedefop’s work to stakeholders in the EU Member States, Iceland and Norway. http://www.cedefop.europa.eu/en/events-and-projects/networks/refernet

/cedefop @cedefop refernet

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Guidance and outreach for inactive and unemployed

Many countries across the European Union (EU) have high levels of unemployment and of inactive adults. These phenomena are frequently associated with low levels of qualification and insufficient basic skills. They may also reflect lack of adjustment between skills demanded in the labour market and skills developed in formal education and training. In both cases up-skilling and re-skilling solutions could be explored to increase the employability of adults.

The national reports developed by ReferNet partners reflect efforts done by Member States to reach vulnerable groups affected by unemployment and inactivity and help them reengage in learning and employment. The reports refer, in particular, to measures which may include young adults not in employment, education or training (NEET) and adults undergoing long term unemployment (LTU), given their persistence in many countries and the high challenges these groups face.

The policy strategies and initiatives in focus shed light over ways to support the most vulnerable to find learning and qualifying solutions. Career guidance and counselling support to people with decaying skills, low levels of motivation and insufficient basic skills are addressed. Its instrumental role in providing information, identifying skills needs, clarifying career options and developing positive attitudes towards learning is made clear.

Whenever possible, outreach measures were described, addressing the ones who fall out of the scope of standard policies to support registered unemployed or recent education drop-outs. Many reports entertain an important discussion on the entitlement to social protection and its effectiveness in addressing the challenges of all demographic groups.

Lastly, Cedefop trusts that these reports will provide an important characterisation of current opportunities and challenges across the EU in establishing appropriate upskilling pathways for adults. Current European policy initiatives urge MS to integrate skills assessment measures with flexible learning and validation solution, where guidance services and outreach will necessarily play a key role.

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Table of contents

Table of contents .................................................................................................. 3

CHAPTER 1. Indicators .................................................................................. 4

1.1. NEETs .................................................................................................. 4

1.2. Long-term unemployed ......................................................................... 8

CHAPTER 2. National strategies .................................................................. 13

2.1. Strategies aimed at NEETs ................................................................ 13 2.1.1. National Programme for Youth 2013-2020 .............................. 13 2.1.2. Youth guarantee implementation plan 2016-2020 ................... 13

2.2. Strategies aimed at LTU’s .................................................................. 14 2.2.1. Slovenia’s Development Strategy............................................ 14 2.2.2. Guidelines for the implementation of the Active

employment policy 2016-2020 ................................................ 14 2.2.3. Resolution on the Master Plan for Adult Education in

the Republic of Slovenia for 2013-2020 .................................. 15 2.2.4. The National Social Protection Program 2013-2020 ................ 15 2.2.5. Strategy for the development of social entrepreneurship

2013-2016 ............................................................................... 15

CHAPTER 3. Example 1: ‘Training at a workplace’ programme for unemployed persons ................................................................................... 17

3.1. General information ............................................................................ 17

3.2. Employers .......................................................................................... 18

3.3. Participants ........................................................................................ 20

CHAPTER 4. Example 2: PUM-O programme – Project Learning for Young Adults ............................................................................................... 22

4.1. Summary ............................................................................................ 22

4.2. General description of PUM-O ............................................................ 24

4.3. Objectives and scope of PUM-O ........................................................ 26

4.4. Monitoring PUM-O and achievement of goals .................................... 27

4.5. Evaluation of participants’ learning achievements .............................. 28

4.6. Completion of the PUM-O programme ............................................... 28

Bibliography ....................................................................................................... 30

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CHAPTER 1. Indicators

1.1. NEETs In 2016, the annual average share of NEETs in Slovenia (in the age

category 20-34) was 13.4%, 4.9 pp below the European Union (28) average. This is due to the high participation of young people in upper secondary and tertiary education. This value peaked in 2014 (15.9%) with its recent lowest point in 2008, when it reached 8.4% (with an EU average of 16.5%). In the past two years, the share has been slowly decreasing as well as trends in the EU (Figures 1 and 2). This trend is attributable to the recovery of the labour market and better employment prospects, measures to promote the employment of young people, and demographic reasons (smaller generations of young people on the labour market).

Figure 1

Source: Eurostat, 2017

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Figure 1: NEETs in EU (20-34), 2016 (%)

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Figure 2

Source: Eurostat, 2017

In 2016, the share of men NEETs in the EU was 14.0% and women 22.7%

in the age category 20-34. In Slovenia, in this age category, the difference between men and women NEETs is not so big as in the EU; 15.2% of women and 11.7% of men were neither in employment nor in education and training in 2016 (annual average), but it's bigger than at the beginning of the crisis. The smallest difference between gender in this age group was in 2010 (1.7 pp) and highest in 2014 (6.2 pp). The average 10-year difference in share between men and women is 3.6 pp (Figure 3). Women tend to face more problems in the transition from education to employment than men, which is attributable to worse employment prospects for young people graduating from social sciences, where women predominate, and restrictions on employment in the public sector during the crisis, where women make up a larger share of the workforce than men.<0}

16.7 16.5 18.5 19.1 19.3 19.9 20.1 19.4 18.9 18.3

9.1 8.4

10.5 11.1 11.1

13.5 15.4 15.9

14.4 13.4

5.0

10.0

15.0

20.0

25.0

2007 2008 2009 2010 2011 2012 2013 2014 2015 2016

Figure 2: NEET rates in EU28 and Slovenia (20-34; 2007-2016); %

European Union (28 countries) Slovenia

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Figure 3

Source: Eurostat, 2017

According to ISCED 2011 level groups, the highest share of NEETs in

Slovenia are young people with upper secondary and post-secondary non-tertiary education level (ISCED 3-4) where 7.1% are neither in employment nor in training (8.3% in the EU). The highest share (9.5%) was in 2013. Compared to the EU, the group of low educated (ISCED levels 0-2) is the smallest – 2.6% of them were NEETs in Slovenia in 2016 compared to 6.6% in the EU. The low share in ISCED level group 2-0 is a result of a high participation rate of young people in upper secondary education. The average share of NEETs in 2016 aged from 20 to 34 with higher education (ISCED 5-8), is 3.7% (3.4% in the EU). Young people are facing difficulties when transitioning from tertiary education to employment. If we look at the 10-year trend (Figure 4), we can see that share of NEETs in ISCED level group 2-0 does not vary so much as shares in other two ISCED groups.

6.9 7.1

9.3 10.3 10.2

11.6 13.0 12.9 12.5

11.7 11.4 9.9

11.9 12.0 12.0

15.5

18.0 19.1

16.6 15.2

0.0

5.0

10.0

15.0

20.0

2007 2008 2009 2010 2011 2012 2013 2014 2015 2016

Figure 3: NEETs in Slovenia by gender (20-34; 2007-2016); %

Males Females

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Figure 4

Source: Eurostat, 2017

In the past three years the annual average share of youth (aged 20-34)

NEETs with the upper secondary and post-secondary non-tertiary education level (ISCED 3-4) is decreasing mostly due to a decrease of NEETs with vocational education (Figure 5).

Figure 5

Source: Eurostat, 2017

2.1

5.4

1.6 2.1

4.8

1.6 2.3

6.3

1.9 2.5

6.5

2.1 2.1

6.8

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7.8

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9.5

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ISCED 0-2 ISCED 3-4 ISCED 5-8

Figure 4: NEETs in Slovenia by ISCED level groups (20-34; 2007-2016); %

2007 2008 2009 2010 2011 2012 2013 2014 2015 2016

1.5

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ISCED 3-4 (general) ISCED 3-4 (vocational)

Figure 5: NEETs in Slovenia in ISCED levels 3 and 4 (20-34; 2014-2016); %

2014 2015 2016

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1.2. Long-term unemployed The long-term unemployed (LTU) are people who have been unemployed

for more than 12 months. In the first quarter of 2017 in Slovenia, 45.5% of the unemployed are LTU, which is 0.5 pp above the European Union (28) average (Figure 6).

Figure 6

Source: Eurostat, 2017

As a consequence of low employment demand, the share of long-term

unemployed persons in total unemployment (share of LTU) has risen sharply during the crisis, and was also higher than the European Union (28) average. Since 2013, every second unemployed person has been unemployed for more than a year.

Figure 7

Source: Eurostat, 2017

LTU in Slovenia from 2007 to 2016 by ISCED 2011 level groups is shown in

Figure 8, where data was collected at the end of each year. The largest share of LTU are people with basic education (ISCED 0-2), although the share dropped from 40% to 33% in the past 10 years. The share of LTU with Vocational, Technical and General upper secondary education (ISCED 3) has been stable

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42.8 44.3 47.1

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51.0 54.5

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2007 2008 2009 2010 2011 2012 2013 2014 2015 2016

Figure 7: Long-term unemployed in unemployment in EU28 and Slovenia (2007-2016); %

European Union (28 countries) Slovenia

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around 23% during the last decade. The share of LTU with Short vocational upper secondary education (ISCED 3) has slightly dropped over the years from 7% at the end of 2007 to 5.8% at the end of 2016. If we combine all LTU with ISCED 3 level of education, they represent more than 50% of all LTU in Slovenia. However, the share of LTU with Higher education (ISCED 5-8) has grown from 8.2% at the end of 2007 to 14.9% at the end of 2016.

Several factors played a role in the increase of the share of LTU of Highly educated workers: (a) a large outflow from the labour force into inactivity by workers with ISCED 3-

5 and especially ISCED 0-2 education due to people being laid off, retirement and faster ageing of the population at the beginning of the crisis;

(b) continuation of trend of increased educational attainment and increased share of the Highly educated in the population;

(c) a relatively stronger increase in employment opportunities for ISCED 3-5 and ISCED 0-2 educated, due to the structure of employment recovery, which has been mostly concentrated in labour intensive activities;

(d) hiring restrictions in the public sector, which employ mostly Higher educated, although these have been relaxed since 2016.

Despite the increase in the share of ISCED 5-8 workers in LTU, workers with ISCED 0-2 and ISCED 3-5 education were hit relatively harder by the crisis, as their overall unemployment rates rose more than those with Higher education.

Figure 8

Source: Employment Service of Slovenia, 2017

39.4% 40.9% 39.3% 37.3%

34.8% 34.6% 32.7% 32.3% 32.0% 33.4%

7.0% 7.2% 7.4% 7.2% 6.4% 6.8% 6.5% 6.0% 5.9% 5.8%

22.8% 23.2% 23.6% 24.1% 24.6% 24.5% 24.5% 23.7% 23.0% 22.5%

22.6% 21.0% 21.6% 22.5% 23.7% 22.8% 23.9% 24.5% 25.1% 23.4%

8.2% 7.6% 8.2% 9.0% 10.5% 11.4% 12.5% 13.5% 14.0%

14.9%

0.0%5.0%

10.0%15.0%20.0%25.0%30.0%35.0%40.0%45.0%

2007 2008 2009 2010 2011 2012 2013 2014 2015 2016

Figure 8: Long-term unemployed in Slovenia by ISCED level groups (2007-2016); %

ISCED 0-2 ISCED 3 - short vocational upper secondary

ISCED 3 - vocational upper secondary ISCED 3 - technical and general upper secondary

ISCED 5-8

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LTU in Slovenia from 2007 to 2016 by ISCED 1997 fields of education is

shown in Figure 9, where data was collected at the end of each year. For clearer presentation of data, we are only comparing percentages in years 2007 and 2016. As we can see, the highest share (around 40%) of LTU finished general programmes, followed by 24% of LTU who finished educational programmes in Engineering, manufacturing and construction, and 20% who finished educational programmes in Social sciences, business and law. Around 5-6% of LTU finished educational programmes in Services. LTU in Slovenia from 2007 to 2016, who have education in other fields, represent annually around 0-3% of all LTU in unemployment.

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Figure 9. Field of education of the long-term unemployed persons, Slovenia, 2007-2016 (end-of-year situation) in%

Source: Employment Service of Slovenia, 2017

In 2016 (annual average) the highest share of LTU is amongst age group

50-64 (66.5%); 63.6% of men and 70.4% of women. The lowest share (44.3%) is among young people, aged 15-24, where there are 43.6% of men and 45.3% of women. In the age group 25-49, the share of LTU is 51.1%, where the share of women is smaller (49.3%) than men (53.1%) (Figure 10).

43.3% 44.5% 42.8% 41.3% 39.0% 38.5% 36.8% 37.4% 37.7% 38.1%

1.4% 1.4% 1.4% 1.2% 1.5% 1.9% 1.8% 2.0% 1.9% 2.2%

1.9% 1.6% 1.6% 1.7% 1.9% 1.9% 2.0% 2.5% 2.6% 3.0%

19.0% 18.2% 18.7% 18.9% 20.3% 20.2% 20.8% 21.4% 21.8% 21.1%

0.3% 0.3% 0.4% 0.5% 0.5% 0.6% 0.7% 0.8% 1.0% 1.0%

24.0% 24.5% 25.4% 26.8% 27.1% 27.0% 27.3% 25.5% 24.7% 24.7%

2.5% 2.3% 2.4% 2.2% 2.0% 2.2% 2.2% 2.1% 2.2% 2.2% 1.6% 1.3% 1.3% 1.3% 1.3% 1.5% 1.7% 2.0% 2.0% 1.9%

0.1% 0.1% 0.1% 0.1% 0.3% 0.3% 0.5% 0.1% 0.0% 0.0%

0%

10%

20%

30%

40%

50%

60%

70%

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100%

2007 2008 2009 2010 2011 2012 2013 2014 2015 20169 NOT KNOWN OR UNSPECIFIED BY BROAD FIELD 8 SERVICES

7 HEALTH AND WELFARE 6 AGRICULTURE

5 ENGINEERING, MANUFACTURING AND CONSTRUCTION 4 SCIENCE

3 SOCIAL SCIENCES, BUSINESS AND LAW 2 HUMANITIES AND ARTS

1 EDUCATION 0 GENERAL PROGRAMMES

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Figure 10

Source: Eurostat

43.6

53.1

63.6

45.3 49.3

70.4

44.3 51.1

66.5

0.0

10.0

20.0

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40.0

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70.0

80.0

From 15 to 24 years From 25 to 49 years From 50 to 64 years

Figure 10: Long-term unemployed in Slovenia by gender and age, 2016 (%)

Males Females Total

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CHAPTER 2. National strategies

2.1. Strategies aimed at NEETs

2.1.1. National Programme for Youth 2013-2020 The Resolution underlying the National programme for youth has been

adopted for a period of 9 years. It contains general areas e.g. Education, Employment and Entrepreneurship; areas are further developed into specific aims. Aims have a set benchmark, expected development effect and priorities. Priorities have a responsible institution, participating institutions, indicators, a financial plan, and a deadline.

The resolution is accompanied by implementation plans (adopted by the Government of the Republic of Slovenia) which implement the general areas for two-year periods. The implementation plan follows the areas, aims, and priorities, with added measures/instruments to each priority. The measures have a set description, indicators and budget.

For example: (a) Area: Education; (b) Aim: Improvement on international (study) mobility of youth; (c) Priority: Improve quality promotion and support for international study and

mobility; (d) Measure: Learning Network on Transnational Mobility Measures for

Disadvantaged Youth and Young Adults (TLN Mobility).

2.1.2. Youth guarantee implementation plan 2016-2020 In line with the Recommendation for the establishment of a Youth Guarantee

adopted by the Council of the European Union in April 2013, programs involving young people aged 15-24 should be implemented. Since Slovenia has a significant share of the unemployed aged 25 to 29 (because of large enrolment in tertiary education), the youth guarantee extends the target group of young people up to 29. Besides quick transition to the labour market, the main aim of the 2016-2020 plan are long term unemployed youth and also second timers - those who did not find employment despite participating in the youth guarantee programme.

A special measure aimed at disseminating information on the Youth Guarantee is being prepared. The objective is to ensure that all stakeholders on the labour market have the necessary information in order to reach all NEETs

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especially the ones who are not registered unemployed with the Employment Service of Slovenia.

2.2. Strategies aimed at LTU’s

2.2.1. Slovenia’s Development Strategy In 2015, the Government of the Republic of Slovenia began the preparation

process for the new umbrella strategic document called Slovenia’s Development Strategy (SDS), as the previous strategy expired in 2013. The Government office for Development and European Cohesion Policy has been tasked with preparation of the strategy, in cooperation with Institute for Macroeconomic Analysis and Development and the Ministry of Finance. Representatives of other public institutions and ministries like the Ministry of Public Administrations and the Statistical Office of the Republic of Slovenia are also involved.

The process of the preparation of the SDS has three phases. The first phase has been the shaping of the Vision of Slovenia 2050; the first draft has been published in February 2016. It will be followed by preparation of a strategic document, defining Slovenia’s key development areas until 2030. The last step will be preparation of a 5-year medium term action plan, comparing and connecting the strategic priorities and goals with the government development policies. The key purpose will be to identify the areas where new structural reforms are needed.

The new SDS will also take into account the Sustainable Development Goals prepared by the UN World Summit. OECD is also involved into preparation of SDS with its information and experience in strategic planning and economic analysis.

2.2.2. Guidelines for the implementation of the Active employment policy 2016-2020

Active Employment Policy (AEP) consists of a series of labour market measures aimed at increasing employability. Unemployed and other jobseekers have a right and obligation to participate in AEP. The Labour Market Regulation Act sets the Guidelines for the implementation of the AEP, which are passed by the Government in the cooperation with the social partners. Along with the periodic Implementation plans and the Catalogues of measures, they form the basis for implementation of the AEP. One of the AEP priorities of the 2016-2020 implementation period is decreasing the number of LTU by facilitating and motivating them to be active and enter the labour market as soon as possible.

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2.2.3. Resolution on the Master Plan for Adult Education in the Republic of Slovenia for 2013-2020

ReNPIO 2013-2020 is a strategic development document with which the Government determines the public interest in the field of adult education. ReNPIO defines the national educational policy for adult education, and at the same time forms the basis for concrete national-level planning in the form of annual adult education programs adopted by the Government for each year. It represents the instrument of systemic regulation in adult education and supplements the Law on Adult Education

The implementation of ReNPIO is under the responsibility of the ministries of education and of labour which are jointly responsible for adult education. It is financed by national funds, supplemented by the European Social Fund. The target groups are unemployed, dropouts and low educated individuals.

The Annual Adult Education Programme 2017 includes measures like “counselling” workshops aimed at LTUs who need help regarding motivation and activation, support in changing attitudes that hinder their active job search and overcoming obstacles. The purpose of the workshop is to help participants identify their position in the labour market, to inform them about the limiting beliefs and attitudes they have to finding a job.

2.2.4. The National Social Protection Program 2013-2020 The National Social Protection Program for the period 2013-2020 refers to the development of the social security system during that period. To this end, it defines the basic starting points for the development of the system, the objectives and strategy for the development of social care, defines the network of public services of social welfare services and social welfare programs, and defines the method of their implementation and monitoring, as well as the responsibility of individual actors at different levels.

The Resolution is put into practice via the Implementation plan 2016-2018, which contains measures for achieving goals of the Resolution along with deadlines, responsibilities, sources of financing and indicators for monitoring. One of the key challenges is facilitating employment of vulnerable groups (over 50 years old, special needs, long term unemployed). Another priority is encouraging, motivating and activating the unemployed absent from the labour market for a long time as well as improving their abilities and competences.

2.2.5. Strategy for the development of social entrepreneurship 2013-2016 The Social Entrepreneurship Act determines the definition, objectives and

principles of social entrepreneurship, its activities, and the conditions for obtaining the social enterprise status, reasons for losing the status. Based on the

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Social Business Act, the Government of the Republic of Slovenia adopted the Strategy for the Development of Social Entrepreneurship for the period 2013-2016, which contains strategic development goals for social entrepreneurship. These goals represented the basis for the preparation of Activity programmes for the implementation of the strategy in an individual calendar year or planning period. LTU was the target group in many activities in the Activity programme 2014/2015. The programme included for example activity called “Organisation of learning workshops in type B social companies” (1). The purpose of the activity was to train unemployed persons to improve employment opportunities, increase their competitiveness in the labour market and to acquire and strengthen skills.

(1) Type B means that the company constantly employs the most vulnerable groups on

the labor market.

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CHAPTER 3. Example 1: ‘Training at a workplace’ programme for unemployed persons

3.1. General information The Employment Service of Slovenia (ESS) is responsible for the

implementation of the ‘Training at a workplace’, which is implemented in the scope of the Operational programme for the implementation of the EU Cohesion policy 2014-2020. The programme runs continuously, but it is regularly adapted to the current demands of the labour market. In 2010-2015, 27.000 participants trained with more than 16.500 employers. During training or after its completion more than 70% of the participants found employment, almost 40% at the employer where they were trained.

The programme is co-financed by the European Social Fund (ESF) and for the 2016/2017 period, EUR 8.794.391,00 million has been allocated for its implementation. In the 2016/17 period, the programme ran from 24.3.2016 until 31.5.2017. A new call is expected to be issued in the summer. The aim was to enable the unemployed training at an employer in order to gain new knowledge, experience and improve employability. The employers on the other hand had an opportunity to familiarise themselves with the candidates and train them to suit a particular task before employing them.

The target group were persons registered unemployed with the ESS who were: (a) aged 50 or more and registered as unemployed for at least 3 months; (b) aged 30 or more and registered as unemployed for at least 12 months; (c) aged 30 or more with finished or unfinished primary school at the most, and

registered as unemployed for at least three months.

The ESS communicated with the candidates by email and on the Poiščidelo.si web portal (2). The ESS also took advantage of various employer events like fairs to promote the programme. Communications with employers were also conducted by email and on the dedicated ESS portal (3). In order to access both portals, registration must be completed.

(2) Find employment: https://www.poiscidelo.si/. (3) Portal for the employers: https://www.zadelodajalce.si/.

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The aim of the programme was to: (a) provide training to the 4525 unemployed persons from the target groups (b) create or improve employability (c) improve competitiveness in the labour market

There were two and three-month trainings, the shorter was for simple, less demanding jobs, the latter for demanding and more demanding jobs4. The three-month training could be shortened to two months if the ESS approved and the employer prepared a suitable work plan or the particular person already possessed a high level of skills and qualifications.

During the training course, the participant was allocated a mentor and spent 40 hours a week (full time) at the company. The training sessions could only be conducted between 6.00 am and 10.00 pm. Work outside regular hours was permitted in exceptional circumstances, if required. The two months could be shortened only if the company employed the participant.

The participants received EUR 3 per hour spent on training for trainings lasting more than 100 hours, as well as a transportation allowance of EUR 0.13 per kilometre when the distance between the residence and the company is more than one kilometre. If the person was already receiving unemployment allowance from the ESS than the amount per hour was reduced by half. The ESS constantly monitored the participants' activity through registers of attendance, and the training organizers prepared reports, which were used in further ESS work with the unemployed. During the training sessions, the participants were given the option to turn to the ESS if the employers failed to fulfil their obligations. The ESS also offered a wide range of advice on where and how to look for employment, how to establish contact with employers, etc. The ESS also monitored participants through online surveys, through which the participants had an opportunity to express their satisfaction or troubles during training.

3.2. Employers Employers applied to the public call issued by the ESS and sent their

proposed training programmes. A number of criteria had to be fulfilled, including:

(a) The employer must be a legal or natural person

(4) Demanding and less demanding jobs are classified into tariff groups, which are

defined in the legislation and collective agreements.

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(b) The employer must have employed at least one person at least 3 months prior to sending the application

(c) The employer is not in bankruptcy or in a liquidation procedure (d) The employer has paid all taxes and other obligatory state contributions (e) The employer pays its wages and social security contributions on time

The ESS checked whether the employer had satisfied all the conditions and whether the programme offered was suitable. If everything was in order, a contract was entered into with them. If several training courses were on offer, they could start at different times, but could only run during the validity of the contract. By signing a contract, the employer agreed to include one or more unemployed persons in his work process. The employer also agreed that the ESS could monitor the implementation of the programme by accessing its official registers as well as the registers of the Financial Administration of the Republic of Slovenia.

After signing the contract, the employer had to cover all the costs associated with the training: (a) mentor; (b) prior medical exam; (c) insurance against disability or death as a consequence of accident at work; (d) work equipment, whenever necessary.

Training sessions could only commence in a company when the candidate had passed the medical examination and the employer had insured them for disability.

The employer received a grant of EUR 370 for a two-moth training and EUR 493 for a three-month training, which is the estimated value of the company’s expenses. The difference between the expected and actual costs was borne by the company. If the company decided to employ the trainee before the end of the training course, then the employer was entitled to a proportionate reimbursement of the training costs in the amount of EUR 370, regardless of the planned duration. If the training course finished early upon the proposal of the participant, the employer was entitled to a proportionate reimbursement of the training costs only up to EUR 370.

However, employers were not entitled to the aforementioned grant if: (a) the company belonged to certain categories of the Standard Classification of

Institutional sectors5 such as public non-financial corporations, public investment funds, etc.

5 http://www.stat.si/dokument/5546/SKISmetodologijaESR2010.pdf.

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(b) the training course was cancelled because the participant had not passed the medical exam

In those cases, the company was entitled only to a full refund for the cost of the medical exam.

Under the professional guidance of a mentor, the participant performed the tasks set out in the training programme. One mentor could oversee up to five participants. The mentors were required to carry out at least 30 hours of mentorship per participant per month.

The number of employees had to be proportional to the number of people undergoing training in a company. For example, those who were self-employed and employers with 1 to 5 employees could have 1 unemployed person, whereas companies with over 500 employees could have 30 unemployed persons. Employers who reached the trainee limit could apply again, but there were certain restrictions regarding how many participants from the previous training course they employed.

Upon the conclusion of each training session, the employers submitted the claim along with: (a) the specification of the costs; (b) the participant's attendance list and a list of the mentor's hours for each

training month; (c) the copy of the medical certificate; (d) a report on the participant's success, along with a description of the skills

and knowledge gained.

If the employer did not fulfil the conditions regarding mentors, work hours, health and safety at work the ESS could withdraw from the contract fully or partly and fine the employer up to EUR 100 per participant.

3.3. Participants Since the Training at a workplace programme falls within the framework of

the Active Employment Policy (AEP), the candidates therefore have to satisfy the general AEP conditions for inclusion in the programme, namely: (a) They are registered as unemployed with the ESS (b) They are job seekers at risk of becoming unemployed and are registered

with the ESS.

Candidates must also belong to the target group of the individual programme.

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The procedure for inclusion in the AEP measures is the following: First step: Counselling session A personal counsellor and the candidate determine whether participation in

the AEP programme would be fruitful and whether it would increase employability. The candidate himself or the ESS can recommend participation in one of the AEP programmes.

Second step: Suitability assessment for the inclusion of a particular candidate

Here the counsellor checks whether the programme selected would really be beneficial for a candidate. This decision is made based on the needs of the candidates and whether they belong to the target group of the particular programme. The other deciding factors are: the situation in the labour market; the personal, professional and other abilities of the candidate; the wishes of the candidate regarding the programme type; social or health issues; financial options; and the actual prospects of the candidate finding employment after finishing the programme.

Third step: Preparation of the career plan The counsellor presents the suitability assessment to the candidate. If the

candidate agrees with its contents and decides to participate in the programme, this is incorporated into a career plan, which is prepared by the ESS. The career plan is a written agreement between the participant and the institution detailing the timeline of the participant's activities regarding his or her search for employment; by signing a career plan, the counsellor and the candidate confirm their obligations.

Fourth step: Signing a contract and inclusion in the programme A candidate becomes a participant in the AEP programme when a contract

is signed, which contains details of the rights, obligations, responsibilities, financing as well as control over the implementation of the programme.

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CHAPTER 4. Example 2: PUM-O programme – Project Learning for Young Adults (6)

4.1. Summary Project Learning for Young Adults (Projektno učenje za mlajše odrasle –

PUM-O) is implemented, coordinated and administered by the Slovenian Ministry of Labour, Family, Social Affairs and Equal Opportunities. The programme takes into account the Operational Programme for the implementation of the EU Cohesion Policy for the period 2014-2020 and falls under the ninth priority axis "Promoting social inclusion and countering poverty”. It targets young adults (15-26 year olds) at risk of dropping out and early school leavers threatened with long-term unemployment. The objective of the programme is to provide guidance to young people looking to enter the labour market.

PUM-O’s main objective is to facilitate participants’ entry into the labour market. It is an upgraded version of Project Learning for Young Adults (PUM), the main whose objective was to help young people gain experience and knowledge and successfully continue their education.

As such, PUM-O allows participants to set career goals based on their career plans, as well as to gain skills and experience relevant to the labour market. In this regard, the emphasis is devoted to acquiring knowledge and skills that enable sustainable employability, and in this spirit the programme is not directed only at training sessions for short-term employment, but also to improve the participant's key and professional competences, such as a sense of self-initiative and entrepreneurship in various areas of their lives.

The cornerstone of the PUM-O programme is systematic integration and cooperation with various stakeholders that assist the participant in the pursuit of a career plan. The programme therefore includes a series of training sessions for NEETs, which are aimed at socializing and collaborating with peers, helping them spend their time creatively, assisting them with career decisions, as well as preparing them for their reintegration into the education or employment sectors.

In contrast to PUM, PUM-O expands the target group: PUM-O targets unemployed people under 26 (without basic profession) and also students who

(6) www.ess.gov.si/iskalci_zaposlitve/programi/usposabljanje_in

_izobrazevanje/pum-o.

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are at risk of dropping out. PUM-O resorts to mentors, who help participants through the periodic supervision and monitoring of their personal career plans.

Since the Employment Service of Slovenia (ESS) is in possession of the labour market data required, it determines the eligibility of the PUM-O programme for potential participants. It also carries out consultancy work or career counselling for active employment. Job counsellors at the ESS may include a PUM-O participant. However, the process can also be reversed: for example, a PUM-O mentor can refer a young person to the ESS to be included in the programme, but people need to register at ESS before they can participate. Therefore, job counsellors in the ESS and mentors in the PUM-O programme jointly collaborate with the participants to form a professional team and create a career plan and help individuals pursue it. It is recommended that other stakeholders are also involved (e.g. counsellors in schools, counsellors at the centre for social work, mentors in the workplace, doctors, therapists and other people related to participants).

They all meet with the participant periodically. The purpose of these meetings is to monitor and, if necessary, modify each participant’s personal development plan. The mentors serve as coordinators for this cooperation. Every four months, the mentor organizes a meeting with the whole team (mentors, ESS advisers and other professionals from other institutions that participants may refer to in order to meet the objectives in their development plan). The purpose of these meetings is to analyse the work carried out in the previous period by evaluating the progress of every individual and to plan further steps. From the participants’ perspective, this approach makes it easier to provide real and motivated steps for their career plan and, ultimately, to have greater success in achieving their goals and increasing their employability.

As mentioned, the previous PUM programme was upgraded to PUM-O. The main changes are as follows: (a) Goal shifting: The main aim of PUM-O is to help participants enter the labour

market. Previously under PUM, the main goal had been the acquisition of the knowledge and experiences required to continue formal education.

(b) Extended target group: The programme is now also aimed at pupils who are at risk dropping out of school (before under PUM, only NEET).

(c) Inter-agency cooperation: The experience gained in PUM revealed that the integration of NEET into education and training should be derived from the educational needs and interests of the individual; the development of competences resulting from these personal needs should also be developed through cross-sector interinstitutional cooperation. Therefore, a professional team of employment mentors and ESS counsellors was set up in PUM-O so

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that they, together with participants, could plan and help them pursue a career plan.

4.2. General description of PUM-O The programme supports the Europe 2020 strategy and in particular the

“European platform against poverty and social Exclusion” and “An agenda for new skills and new jobs” initiatives. It aims to tackle youth unemployment and increase youth employability by supporting vulnerable young people into education or employment.

In general, the profile of NEETs (young people not in employment, education or training) in Slovenia is defined by the following features: (a) the proportion of NEETs is below the EU-28 average; (b) they have more work experience than the EU-28 average; (c) they are medium-skilled when compared to the rest of the EU-28; (d) there are more women than the EU-28 average.

The PUM-O programme is co-financed by the European Social Fund (ESF) and it covers the programme costs, allowance for activity and reimbursement of travel expenses for its participants. Its main purpose is to help participants develop the interests, key professional competencies and personality traits that will improve their performance in the labour market and in social life. The programme allows participants to develop key career competences and skills, especially the ability to “learn how to learn” and a sense of initiative and entrepreneurship. PUM-O is also improving its initial education and vocational competencies, not least in the development of the competences required in the labour market for the future, i.e. those competencies that will allow for sustainable employability. These are the ten skills included in the programme: (a) To foster a sense of comprehension (understanding different terms and

expressions); (b) To develop social intelligence (the ability to connect with others − social

networking); (c) To enhance innovative and tailored thinking (to search for original solutions

and responses to unexpected situations); (d) To promote intercultural competences (the ability to work in culturally diverse

situations); (e) To improve the ability of abstraction (translation of data into abstract

concepts); (f) To increase modern media literacy (critically evaluating and developing

different contents);

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(g) To develop a sense of interdisciplinarity (understanding basic concepts of various disciplines);

(h) To formulate strategic thinking (imagining and developing tasks and workflow);

(i) To understand how to manage data soundly (extraction and filtering of data); (j) To enhance virtual cooperation (working with virtual teams).

Note should be made that virtually all multidimensional competencies are addressed; in addition to cognitive skills, account is taken of the emotional (affective) and motivational dimensions. In terms of the learning needs of the participants, the first stage of the PUM-O focuses on the emotions and motivations of the individual by awakening their need to learn. The objective here is to restore their need to learn and their excitement about doing so, which in turn will lead to the search for and creation of a professional identity. It is imperative that the learning experience is a positive one, but that hard work is invested. Participants must therefore call on all their reserves of effort, perseverance and diligence to overcome the challenges they face.

In order to turn the corner and regain motivation, the participant must take the time to recognize and identify any fundamental problems involved, most of which usually derive from the lifestyles and circumstances of the participants (e.g. family situation, poverty level, education, etc.). These issues can only be identified and resolved through the networking of various institutions and other stakeholders. Therefore, PUM-O serves as a meeting point where the mentors in the programme coordinate this integration.

The target group of PUM-O includes young adults aged 15 to 26 who: (a) have the status of unemployed persons, and/or; (b) are not in education or have experienced difficulties resulting in them

dropping out of education, and/or; (c) are not employed or do not have a job. (d) To participate, individuals need to be registered at ESS as jobseekers. (e) More specifically the target group of participants presents the following

characteristics: (f) they find themselves in an undefined intermediate social space without a

socially recognized status; (g) they are socially excluded and associated with personality, behavioural,

social or other difficulties; (h) they need incentives to enhance the healthy development of their identities

and core capabilities; (i) they often lack basic vocational or technical education or they are

overqualified, resulting in long-term unemployment;

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(j) they have either never been employed, have sporadic and short-term work experience or are first-time jobseekers;

(k) they have lost their student or apprentice status.

In 2017, twelve organisations operate as service-providers of the programme. Some are part of the “Peoples University”, “Workers University” or a Catholic organisation, and others are private non-profit organisations.

The advisors/mentors working in the organisation undergo a training programme that is organized by the Slovenian Institute for Adult Education (SIAE). The programme is coordinated at the national level by the central department of the SIAE, and at the local level by local providers such as social services, social work centres and schools. The second collaboration (with youth organizations, clubs, etc.) is carried out by providers themselves.

As mentioned, the mentors participate in a basic training course organized by the abovementioned SIAE, referred to above, which also takes care of the content design of the training programme. Prior to the training session, each mentor candidate undergoes an introductory interview. They then take part in the training course. In principle, candidates without basic training cannot be employed as mentors by contractors.

4.3. Objectives and scope of PUM-O The basic purpose of PUM-O is to develop the potential of vulnerable young

adults in order to assist with their assimilation into formal education; this is achieved by helping them develop a professional identity and ensuring their successful integration into the labour market and society generally. The programme pursues the following main objectives: (a) Development of a professional identity, a sense of initiative and

entrepreneurship for the purpose of approaching or entering the labour market;

(b) Developing capacities for learning and developing basic skills; (c) Creating a personal identity and promoting the concepts of social reciprocity

and collaboration.

PUM-O is carried out year-round for a period of 10 months; participants have the option to increase or reduce this term on a case-by-case basis (depending on the needs identified in the career plan or external circumstances affecting the achievement of the set objectives).

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4.4. Monitoring PUM-O and achievement of goals The integration of participants in the programme is carried out on a voluntary

basis and takes place through various channels. For instance, the ESS publishes announcements on its website (and a Facebook page) https://www.ess.gov.si/skalnik_zaposlitve/programi/usobabljanje_in_izobrazevanje/pum-o, where basic information about PUM-O is published. In order to raise awareness about the PUM-O programme, ESS has prepared and used information leaflets used by job counsellors. In addition, there are posters displayed at the premises of the ESS (central services, regional offices and employment offices). If necessary, group or individual presentations on PUM-O are organized at the ESS. Moreover, all providers publish information about the programme on their websites and regularly publish information about the programme on social media, local newspapers, radio, youth centres, etc. In addition, the Institute for Adult Education has a special website that has been partially adapted for young people. Examples of such pages include www.mlad.si and www.junakizaposlovanja.si. This Institute also makes announcements on a dedicated Facebook page for that purpose. Candidates for the programme may express their interest in the programme itself, or they can be included by a counsellor working with ESS, school counsellors or other counsellors. Potential participants may also be referenced by other local stakeholders, such as NGO’s, but their participation demands that they register at the ESS. Upon entering the programme, the mentors proceed to deliver an introductory discussion with participants, which determines their motives for entering and expectations.

This introductory talk serves as the starting point for assessing whether PUM-O is suitable for the candidate. After the conversation, a trial period may begin, which can last for a week, in which the participant and mentor decide whether participation in the programme is required. If this is agreed, the candidate and the mentor work together to prepare a personal career plan that defines the purpose of the candidate's participation (vision), as well as any targets set. Together with their mentors, they assess the plan and identify the timeframe and deadlines for its implementation.

Any revisions or modifications to the plan need to be agreed by all the stakeholders. All of the above therefore serves as the basis for the contract that is to be signed by all stakeholders. A similar negotiation process starts at any subsequent level of learning/training, especially when other stakeholders are involved (e.g. external trainers in companies).

Both the participant and mentor periodically monitor the implementation of the plan, while other counsellors assisting the participant in the programme may also occasionally contribute. Mentors and counsellors are kept informed of the

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participant’s progress and, together with them, the participants discuss any changes to the plan.

4.5. Evaluation of participants’ learning achievements All learning achievements need to be firstly identified in the participants’

personal career plan, which is monitored and evaluated. For instance, achievements can be “proved” through various supporting documents, such as: the opinions of trainers and other experts on the participants’ qualifications for a job; photos and other documents; performances, activities and certificates of participation in learning activities, etc. These documents are kept in the participants’ portfolio and can be used for a variety of recognition processes, including the following: (a) reintegration into formal education programmes in the process of

recognising informal training and education in educational organizations; (b) integration into the labour market directly with employers; (c) for the process of verifying and validating national vocational qualifications; (d) in other methods of evaluation and recognition of knowledge under the

responsibility of the Slovenian National Examinations Centre.

4.6. Completion of the PUM-O programme The programme is usually completed after 10 months, with the possibility of

extending to a maximum of 12 months. It can also be completed earlier as mentioned above. Participants are required to complete the programme when they have achieved all or most of their individual goals. They should prepare a summary folder (portfolio) with evidence of their achievements. If not, the conditions for completion of the programme fall under the principle of voluntary participation, which in extreme cases allows participants to leave the programme at any time. An unemployed participant may withdraw from the PUM-O programme with the consent of the ESS, but not in cases where the participant is involved in any programme under the Slovenian Active Employment Policy.

If the reasons for their exclusion from the programme are well-reasoned, the ultimate decision to exclude lies with an expert team of the programme’s mentors. When the person is unemployed or looking for a job, the team consists of the mentors in the PUM-O programme and the ESS counsellors. If the participant falls under another status, the team will consist of the representatives of those institutions that included participants in the programme in the first place,

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irrespective of the duration of the exclusion. As a rule, the decision is taken on the basis of the normative acts and applicable rules in place, and in accordance with an ethical code of conduct adopted by the expert team.

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