Improving Active Labour Market Policies in Spain

5. Assessment and referral of participants

Abstract

This chapter examines how selected ALMPs in Spain conducted assessment of participants profiles and referred them to suitable support services and measures. It begins by discussing the importance of comprehensive assessment methods and tailoring referrals accordingly, and presents the benchmark used for the qualitative assessment. The chapter then reviews the different approaches adopted across programmes to assess participants needs and personalise interventions. It presents good practices that facilitate consistent in-depth assessment leading to robust referrals. The chapter concludes with a set of recommendations for establishing effective assessment and referral protocols in future ALPMs.

5.1. Understanding the criterion and its benchmark for qualitative assessment

Once individuals are engaged in the programme, to conduct a thorough assessment, or profiling, of participants’ profiles and needs and subsequent referral protocol becomes central to providing ALMPs tailored to the needs and circumstances of each participant. A comprehensive assessment of participants’ needs, level of qualifications, skills, socio-demographic background, experiences, interests etc is crucial to ensuring that they receive the appropriate support and are referred to suitable services and measures, thereby enhancing labour market integration.

Assessment processes can vary in the way in which the participants are contacted, the professionals involved, and the tools and mechanisms used. They may involve quantitative and qualitative profiling (Desiere, Langenbucher and Struyven, 2019[18]). Qualitative profiling might include the judgement of professionals (i.e. job counsellors) who assess individuals’ skills and needs based on direct interactions. Quantitative profiling, on the other hand, uses data-driven models to predict labour market disadvantage. A balanced approach that combines data, counsellor insight, and comprehensive profiling strategies, facilitates more effective and targeted support delivery.

Traditionally, professionals like job counsellors have been instrumental in evaluating participants’ employability. However, there is a growing trend towards using digital tools to enhance this assessment. Advanced statistical profiling tools employ techniques such as logistic or probit regressions and machine learning to predict a jobseeker’s likelihood of finding employment. These tools analyse a wide array of data, including socio‑economic characteristics (like age and gender), education, skills, detailed work experience, care responsibilities, health-related factors, access to transportation, motivation levels, and regional labour market trends. However, it’s important to recognise that the tools primarily providing a probability of long-term unemployment, represent just the first step in the assessment process. They should be complemented with other approaches for a more holistic view.

A critical aspect of this assessment is understanding a participant’s skills and competencies to effectively support them in job search, career management, training etc. Skills profiling tools are invaluable as well, ranging from self-reported assessments (e.g. Austria, Estonia) to tests of soft skills (e.g. Germany), knowledge assessments (e.g. France, Catalonia), “serious games”1 (Laumer, Eckhardt and Weitzel, 2012[19]) and comprehensive assessments leading to accreditation (e.g. the Netherlands) (OECD, 2024[20]; Carcillo and Scarpetta, 2024[21]).

If the assessment is conducted comprehensively, incorporating a wide array of factors and tools, the information obtained significantly improves the subsequent referral of beneficiaries to the most suitable services, measures, and support types within the programme. This could involve increasing meeting frequency, adapting training programme levels, providing support to tackle barriers beyond employment, facilitating access to various workshops, and more. Such individualised and targeted approaches in ALMPs can potentially increase their effectiveness.

Box 5.1. Benchmark for excellence: Assessment and referral within ALMPs

A benchmark ALMP possesses a systematic assessment and referral protocol. The programme employs an assessment approach that combines both qualitative and quantitative profiling strategies. Through qualitative profiling, professionals, such as job counsellors, play a pivotal role in assessing individual needs and skills. Quantitative profiling complements this by using advanced digital tools. These profiling tools may leverage logistic or probit regressions and/or machine learning techniques, analysing an extensive array of data, including socio‑economic factors, educational background, work experience, and regional labour market trends.

In addition, a key feature of a benchmark ALMP is its comprehensive skills assessment, which may include self-reported evaluations, tests of soft skills, and knowledge assessments, incorporating innovative methods like “serious games”.

The programme’s referral system is highly personalised, ensuring that each participant is directed to services, measures, and support that are not only included in the programme but can also be adapted to best align with their skills and needs. This could involve increasing meeting frequency, adapting training programme levels, providing support with barriers beyond employment, and facilitating access to various workshops (i.e. CV writing or communication skills), among others.

5.2. Summary of the qualitative assessment results

5.2.1. Assessment protocol

Most of the assessed programmes included an initial diagnostic phase, using a variety of assessment tools to gain a comprehensive understanding of each participant’s needs from the outset. While the primary focus was often on employability, many programmes took a broader approach, considering a range of areas that influence labour market integration, such as family responsibilities, psychological support needs, financial situation, etc. This holistic assessment ensured that participants receive tailored support that addresses both work-related and personal challenges.

Some programmes incorporated assessments after the first set of interventions or implemented continuous evaluation. This approach allowed for a more dynamic understanding of participants’ evolving needs, provided greater flexibility and enabled ongoing monitoring of progress. Such iterative assessments helped to adjust support as needed, ensuring that it remains relevant and effective throughout the participant’s journey.

Across the studied programmes, assessments often integrated a wide range of data sources to build a comprehensive profile of each participant. These data typically included socio‑economic characteristics, educational background, work experience, local labour market trends, housing and health status, psychological support needs, family circumstances and personal interests. By consolidating this structured information into a single profile, programmes created an accurate and multi-dimensional snapshot of the participant’s situation, facilitating more targeted and effective interventions.

In contrast, programmes with a primary focus on training tended to have limited or no assessment beyond an initial selection process. In such cases, assessment was usually aimed at checking eligibility criteria for participation. Some training programmes designed the selection process to target a relatively narrow and homogeneous group of participants with similar skills and needs. Although this approach reduces the scope for tailoring interventions to individual circumstances, it does simplify and streamline the enrolment process.

5.2.2. Skills assessment methods

The studied programmes used a variety of assessment tools to gain a comprehensive understanding of participants’ skills. These included self-assessment tools, standardised tests, semi-structured interviews conducted by professional counsellors and digital tools. Combining digital tools with the expertise and professional judgement of counsellors enhanced the accuracy and depth of the assessment, leading to more robust and tailored results.

To ensure consistency and reliability for all participants, many programmes used a common framework or minimum guidelines defining the key areas to be assessed and the methods to be used for conducting assessments. In this context, the integration of digital tools played an important role in standardising the assessment process, minimising errors and reducing potential bias due to subjective judgement. Digital platforms helped to create structured assessments, ensuring that all participants were assessed according to the same criteria and methodology.

The effectiveness of the assessment was often enhanced by the involvement of specialised service providers with extensive experience of working with specific target groups. These providers used tested methods tailored to the needs of particular populations, ensuring that the assessments were relevant and appropriate. Some programmes provided training for those carrying out the assessments to ensure that they followed established guidelines effectively and accurately. Several programmes highlighted the importance of continuously refining assessment tools to ensure that lessons learned from past experience contribute to the development of more effective methods and lead to the most impactful outcomes.

5.2.3. Referral protocol

In most programmes, the results of the assessments were directly linked to tailored interventions designed to meet the specific needs and skills of each participant. These interventions were structured as personalised itineraries or action plans, which set out clear expectations, objectives and the steps needed to improve employability. Participants were referred to tailored actions which included different types of training, professional development alternatives or support pathways with different levels of intensity.

The programmes often incorporated clear guidelines to ensure a direct and structured link between assessment results and personalised interventions. In some cases, digital tools – whether regional, national (such as Send@) or a combination of both – were used to streamline referrals, improve efficiency and ensure consistency in matching participants with appropriate opportunities.

In comparison, programmes that focussed primarily on training often adopted a more uniform approach, offering standard courses to all participants with minimal tailoring to individual needs. While this approach may have limited personalisation, it ensured consistency in training quality, simplified delivery and allowed for scalability. When training was delivered in small face‑to-face groups, facilitators had some flexibility to adapt materials to better match participants’ skills and learning needs, allowing for some personalisation even within more standardised training settings.

5.3. Good practices identified

The two programmes presented in Box on good practices 7 and Box on good practices 8 illustrate effective approaches to the assessment and referral of participants. The programme in Navarra ensures consistent and fair assessment process and evidence‑based referral, focussing on the multidimensional needs of vulnerable participants. Murcia’s programme demonstrates how digital tools can facilitate comprehensive assessment and referral based on clear standardised criteria. Both examples emphasise the importance of thorough assessment and personalised referral in tailoring services to the specific needs and circumstances of participants. In addition, the Box on good practices 9 highlights the use of the digital tool Send@ as part of the referral protocol in several regions, reinforcing evidence‑based referral in the design of individualised itineraries.

Box on good practices 7. Comprehensive assessment and referral in Navarra

The approach in Navarra’s programme for vulnerable groups stands out due to its comprehensive assessment protocol, which incorporates a multidimensional perspective on labour market exclusion; its systematic skills assessment through the use of digital tools; and the way in which referrals are defined.

Assessment Protocol

Navarra’s initial assessment adopts a holistic view of labour market exclusion, considering not only employment-related factors but also social and personal needs, such as housing, health, and psychological support. The rationale behind this approach is that vulnerable individuals often face low motivation and deficiencies in transversal skills, which can lead to the chronic nature of their vulnerability. In addition to possible reductions in self-esteem, their social networks may weaken or become severely limited, further reducing their employment opportunities.

In Navarra’s approach, addressing these multidimensional needs is essential before employment-specific actions can be effectively implemented. This holistic consideration ensures that participants are better prepared and supported in their journey towards employment.

Skills Assessment

The programme utilises the digital tool ORIENTASARE for a diagnostic that focusses on five key areas: employment, social skills, training, motivation, and job search. This tool takes into account not only the labour-related aspects but also social and personal dimensions, providing a well-rounded assessment of employability.

All staff from service providers working in this programme use the ORIENTASARE tool and diagnostic process, ensuring consistency and fairness in the assessment of all participants. This standardisation is crucial in guaranteeing equal opportunities, as it ensures that every participant in the programme is evaluated using the same criteria and process.

Referral Protocol

Following the diagnostic, both ORIENTASARE and Send@ (see Box on good practices 9) are employed to help job counsellors establish personalised pathways. These digital tools enable counsellors to identify actions that have previously been effective for individuals with similar needs. This evidence‑based approach can be highly beneficial, as it allows for the development of tailored itineraries that address each participant’s specific requirements.

Every itinerary includes at least the following components (Article 14.3 of RD 438/2024):

1. The identification of professional employment or entrepreneurship alternatives based on an analysis of employment opportunities in Spain, the European Union, and internationally, that match the individual’s professional profile.

2. The identification of a training pathway, if necessary, according to the person’s profile, which includes the proposal of training actions and/or the accreditation of work experience or non-formal training that is suitable for improving skills and professional qualifications.

3. The identification of active job search activities that the individual, according to their profile, will be required to undertake.

These minimum requirements ensure that key areas are always addressed, and each component is tailored to the individual’s personal circumstances.

Source: Authors from information collected through questionnaires and consultations.

Box on good practices 8. Use of digital tools for assessment and referral in the programme for women victims of gender-based violence, human trafficking or sexual exploitation in Murcia

Murcia’s programme for women victims of gender-based violence, human trafficking or sexual exploitation employs a wide range of digital tools that facilitate an exhaustive assessment and referral process based on clear-cut criteria. Furthermore, the use of these tools is a requirement for entities acting as service providers within the programme, ensuring that all participants undergo the same process for assessment and referral. Among the most important tools used in the programme are POL and Send@. POL, the Plataforma de Orientación Laboral (Employment Guidance Platform) of SEF (the regional PES of Murcia), is a digital tool that provides a comprehensive framework for employability assessment, covering a broad range of areas. These include:

• Initial Evaluation Tool: A semi-structured interview tool that assesses personal factors, transversal skills, professional competencies, and the participant’s professional profile

• Self-Evaluation Facilitator System (SFI): A self-assessment tool that helps participants evaluate their readiness and capabilities for labour market integration

• Job Search Behaviour Inventory (ICBE): A tool that assesses the job search behaviours of participants

• Perceived Control Expectations in Job Search (ECP-BE): A questionnaire that measures participants’ perceived control over their job search outcomes

• Job Search Assistance Questionnaire (CABE): A questionnaire designed to assist in identifying areas where participants may need additional support in their job search efforts

The comprehensive range of elements in the initial assessment, including personal factors, is crucial for a group such as victims of violence, as their specific personal situations, which can significantly impact employability, are taken into account. Moreover, the broad array of tools and resources related to employment included in POL enables the development of a highly individualised diagnostic that considers multiple dimensions of each participant’s situation. This thorough approach is key to creating effective and personalised pathways for labour market integration.

The information gathered through the POL system is then used to refer participants to specific services via Send@, an app developed by SEPE (see Box on good practices 9). This tool has been integrated into POL, allowing employment counsellors to use an itinerary search engine to find the best-suited pathways for participants.

Source: Authors from information collected through questionnaires and consultations.

Box on good practices 9. Use of the tool Send@ for designing individualised itineraries for vulnerable groups (as in Navarra and Extremadura) and women victims of gender-based violence (as in Murcia)

Send@, a tool for the design of individual itineraries developed by SEPE, is used as part of referral protocols in a number of regions. Examples include Navarra and Extremadura in their programmes for vulnerable groups; and Murcia in the programme for women victims of gender-based violence.

Send@ provides tailored labour market insights on job search and employment opportunities, which employment counsellors rely on when advising jobseekers on their pathways to labour market integration. The app offers guidance on occupations with better employment prospects and identifies potential ALMPs, particularly training programmes, that can enhance the participants’ employment prospects. In the context of creating individualised itineraries, Send@ allows counsellors to identify pathways that have been effective for individuals with similar profiles, thereby supporting an evidence‑based approach to itinerary design.

An impact evaluation of Send@ (OECD, 2023[22]) has shown that this tool leads to quicker transitions from unemployment to higher-quality jobs. Individuals counselled using Send@ are not only more likely to gain employment and secure permanent contracts, but they also experience improvements in their career trajectories. Moreover, jobseekers who receive guidance through Send@ tend to secure better-quality occupations relative to their initial target occupations compared to similar jobseekers who were not counselled using this tool.

Source: Authors from information collected through questionnaires and consultations; OECD (2023[22]), Impact Evaluation of the Digital Tool for Employment Counsellors in Spain: SEND@: Report on the Design and Implementation of an Impact Evaluation of the Digital Counselling Tool for Spain’s Public Employment Services, https://doi.org/10.1787/fe1ec3c3-en.

5.4. Policy directions: Avenues for effective assessment and referral of participants in future ALMP

5.4.1. Establish a systematic, well-structured and fair assessment of all programme participants

• Use a variety of well-structured qualitative and quantitative assessment methods, combining self-assessment tools and standardised tests with the expertise of professional job counsellors and the advantages of digital tools that make use of a wide range of data and advanced analytical methods.

• Ensure that PES and service providers have access to the same assessment tools (and training to use these tools) to guarantee consistency, fairness and equal opportunities in the assessment of all participants, while minimising potential bias due to personal preferences or error.

• Where possible, adopt a continuous assessment approach, carrying out assessments at different points in time during programme participation, to gain more accurate insights into the evolving needs of participants and to track their progress over time.

• Use feedback collected from participants, service providers and other relevant stakeholders, including academia, to refine assessment tools and adapt them to different participant profiles.

• Going beyond the currently used traditional methods, explore innovative assessment approaches, such as the integration of “serious games” and other interactive digital tools to assess skills and competences in engaging and realistic environments.

5.4.2. Design a highly personalised referral system for tailored support

• Use comprehensive assessment results to design referrals tailored to the specific needs and competencies of individuals, including adapting training levels, providing support to tackle barriers beyond employment, and facilitating access to relevant workshops and support services.

• Apply tested evidence‑based referral tools. Explore the feasibility of expanding and refining the functionalities of SEPE’s digital tool for employment counsellors, Send@, to identify interventions that have been shown to be effective in the past for participants exhibiting similar characteristics and aspirations, ensuring that referrals are data-driven, maximise the likelihood of success and mitigate the risks of reproducing past biases.

Note

← 1.  Serious Games are games that are explicitly designed for non-entertainment purposes (Serrano-Laguna et al., 2017[38]). They are multimedia tools, and their versatility allow them to be used in different domains including assessing and promoting skill acquisition.