Improving Active Labour Market Policies in Spain

7. Case management and follow-up support

Abstract

This chapter examines how case management and follow-up support are provided within the assessed ALMPs in Spain. It begins by discussing the role of these services in improving programme outcomes and promoting sustainable employment, and presents the benchmark used for the qualitative assessment. The chapter assesses the scope and delivery of case management and follow-up support across the programmes and presents good practices based on structured and systematic approaches. The chapter concludes with a set of recommendations for effective case management and follow-up support in future ALMPs.

7.1. Understanding the criterion and its benchmark for qualitative assessment

Effective ALMPs emphasise the importance of both case management during programme participation and follow-up support after their participation in the programme to maximise positive long-term effects (OECD, 2023[12]; OECD, 2021[14]). These services are important for vulnerable groups to reduce the number of dropouts during the programme participation and to ensure stable labour market attachment afterwards.

Case management provides participants with dedicated counsellors (or mentors) who can offer them support and guidance during regular counselling sessions. During these sessions participants discuss their progress, satisfaction with the services and the challenges that they encounter. This provides an opportunity to identify potential problems early on and to offer personalised support to cope with these problems. The frequency of the meetings varies according to the profile of a jobseeker. Vulnerable groups at high risk of dropping out may require frequent face‑to-face sessions, whereas less frequent (online) meetings might be sufficient for those with stronger motivation and attachment to employment. Other ways to keep in touch with participants include phone calls, emails, text messages, chats, satisfaction surveys, etc. Individual Action Plans (IAPs) play a pivotal role in this phase, being tailored to each jobseeker’s unique circumstances and needs, and setting clear mutual obligations for both the jobseeker and the counsellor.

Follow-up support, or post-placement support, is crucial to ensure sustainable integration into the labour market, especially for vulnerable groups (OECD, 2021[11]). This includes continued work-focussed counselling during the initial months of employment, maintaining contact with both the new employee and the employer, and co‑ordinating with other service providers to address evolving needs, such as continuous training, access to childcare, mobility assistance, or support in prolonging employment contracts. Without systematic follow-up support, groups at risk may return to unemployment within a short period of time due to various barriers that they face. Positive effects of in-work follow-up support to ensure sustainable integration have been observed e.g. in Germany (Staible, 2017[25]), France and Denmark (Scharle, Weber and Puchwein Roberts, 2014[26]). Since the beginning of 2021, Estonia has introduced systematic follow-up support to groups at risk of a rapid return to unemployment due to health limitations, lack of work experience, previous long-term unemployment or other employment obstacles (Sotsiaalministeerium, 2020[27]).

Box 7.1. Benchmark for excellence: Case management and follow-up support

A benchmark ALMP incorporates both case management during programme participation and follow-up support after programme completion to ensure its long-term effects. Such support is especially important and beneficial for vulnerable groups and participants at high risk of dropping out from the programme or at high risk of returning to unemployment shortly after a job has been found.

Case management involves assigning dedicated mentors or counsellors to accompany participants during the programme, discuss their progress and identify challenges early on to offer individualised support and solutions. The frequency and nature of these interactions (e.g. whether to offer face‑to-face meetings, online sessions, phone calls, emails, etc.) vary based on the participant’s profile. A key element is the use of tailored Individual Action Plans (IAPs), which establish clear mutual obligations for both the jobseeker and counsellor.

In addition, the benchmark ALMP provides follow-up support after participants have entered the labour market. This includes continued counselling during the initial months of employment, maintaining contact with both the new employee and the employer, and co‑ordinating with other service providers to address evolving needs, such as continuous training, access to childcare, mobility assistance, or support in prolonging employment contracts. It helps retaining vulnerable groups in employment and prevents their return to unemployment after a short period of time.

7.2. Summary of the qualitative assessment results

The assessment found that most programmes included some form of case management and follow-up support, although the specific approaches varied depending on the programme’s focus and the target group. Programmes targeting vulnerable groups, women victims of gender-based violence, and women in rural and urban areas usually included strong case management and follow-up as this was particularly important to ensure programme effectiveness and to help these participants stay engaged and successfully transition into stable employment. Programmes that focussed primarily on training often faced greater challenges in providing case management and post-programme support as their resources were typically directed towards skills development rather than counselling.

7.2.1. Case management

Many of the assessed programmes offered case management as a core component, providing tailored, individualised support by assigning a dedicated counsellor to each participant. The scope and delivery of case management varied across programmes. The most effective approaches were those that incorporated structured, personalised action plans and individual itineraries with clearly defined mutual obligations for both programme participants and their counsellors, serving as a guiding framework for individualised support.

Most programmes adapted their communication methods, frequency of sessions and content to meet participants’ needs, ensure engagement and reduce the risk of dropout. This flexibility made support more accessible and relevant to individual circumstances. Many programmes allowed participants to choose between face‑to-face and online sessions, accommodating those with transport difficulties or caring responsibilities. For individuals without access to digital tools, telephone‑based communication was also often available. Some programmes implemented intensive case management for particularly vulnerable groups, offering frequent two‑way communication to facilitate early detection of needs and timely intervention. In these cases, participants received individual tutoring sessions with almost daily contact via email, telephone or WhatsApp to ensure continuous support and responsiveness.

Some programmes set minimum requirements for case management, such as minimum number of hours or frequency of meetings, to ensure consistent and adequate support. These measures helped to guarantee that all participants received a baseline level of assistance, preventing disparities in support and reinforcing a structured approach to guidance.

Involving multidisciplinary teams further strengthened case management. In many programmes, the teams included employment counsellors and social workers to address diverse barriers to employment and provide expertise beyond traditional job search assistance. Selected programmes took a more comprehensive approach and assigned each participant a dedicated counsellor supported by a larger multidisciplinary team of professionals from a range of fields, including psychology, education, legal services, social work, job prospecting, training and entrepreneurship. This approach effectively combined the advantages of building a trusting relationship with a single contact person and access to specialist expertise when needed, increasing the overall effectiveness of case management. This approach was particularly beneficial for vulnerable groups who often faced complex, multidimensional challenges.

7.2.2. Follow-up support

Some programmes integrated follow-up support as a core component, ensuring systematic and scheduled contacts between the service provider and the participant. This was often the case in programmes targeting women victims of gender-based violence, where a commitment to hiring and insertion of women into work was part of the programme’s components. The follow-up typically involved regular check-ins through various means, such as telephone, email, face‑to-face meetings, company visits or videoconferencing to ensure a smooth transition into employment and facilitate adaptation to work environment. Alternatively, when follow-up was not an integral part of the programme, participants were sometimes referred back to the PES after the end of the programme to provide continued support beyond the programme period. In these cases, ensuring that both PES staff and service providers had access to a common platform that contains participant information proved valuable.

In some cases, follow-up support included tailored actions adapted to the participant’s employment status. For those who had not yet found a job, individual career counselling sessions were provided, focussing on strengthening job search skills, updating CVs, providing career advice, identifying job opportunities, submitting applications and preparing for interviews. For those who had secured employment, ongoing support was provided on job-related tasks and functions, work organisation, communicating with employers, navigating employee portals, and understanding employee rights and responsibilities.

In addition to following up with participants, some programmes also established follow-up contacts with employers to understand and address the challenges they faced in integrating new employees into the workplace and to provide guidance on adapting the work environment. This approach was particularly useful when mediation was required as it helped participants and employers to find common ground when difficulties, conflicts or misunderstandings arose in the workplace.

Some programmes set minimum requirements for follow-up support, such as the number and frequency of contacts. For example, a good practice was to establish a structured system (e.g. a dedicated document) with a timeline of minimum contact points to record all follow-up activities conducted by the service provider with both the participant and the employer. This included recording information such as means of contact, duration, the participant’s work situation, well-being and proposed actions for ongoing support. This approach ensured a consistent standard of follow-up support for all participants and facilitated systematic monitoring of outcomes.

7.3. Good practices identified

The programmes presented in Box on good practices 12 and Box on good practices 13 illustrate structured and systematic approaches to the provision of case management and follow-up support. The programme for vulnerable groups in Asturias offers intensive case management, delivered by two professionals specialising in social and employment interventions, and provides follow-up support adapted to participants’ employment status. The programme for women victims of gender-based violence in Madrid demonstrates the use of a dedicated follow-up document that establishes a clear framework and minimum standards for monitoring and supporting participants’ labour market integration. Both examples highlight the value of case management and follow-up support in improving programme outcomes and supporting job retention.

Box on good practices 12. Case management and follow-up support for vulnerable groups in Asturias

The programme for vulnerable groups in Asturias provides a systematic framework for case management, offering comprehensive support both during participants’ personalised employment pathways and after they have secured a job. This approach ensures intensive case management tailored to individual needs, while also supporting participants to remain in the labour market.

Case Management

Participants are assigned mentors according to the programme’s technical guidelines. The mentors consist of two specialised professionals: one focussing on social intervention to provide ongoing support to participants, and another specialising in employment intervention, responsible for engaging with companies and facilitating job placements.

Throughout the personalised employment pathways, the programme ensures comprehensive support through two main components:

• Individual tutoring and follow-up: Weekly individual sessions are held to provide guidance and monitor progress. Flexibility is built into the frequency of these sessions to adapt the pace of the programme to the participant’s needs, while ensuring a minimum number of sessions during the first two months. This approach strikes a balance between tailoring the programme to individual needs and ensuring all participants receive consistent levels of support.

• Group workshops: These sessions focus on personal recovery and the development of personal, social, communication, and professional skills essential for employment. At least two group sessions are held weekly, depending on the phase of the participant’s employment pathway.

During the specific training phase, additional follow-up is conducted through weekly contacts with training centres. This close monitoring ensures consistent oversight of attendance, progress, challenges, and the needs of the participants.

Follow-Up Support

The follow-up support actions take place after the completion of the personalised employment pathways and are adapted to the participant’s employment status:

• For those who have not yet found employment: Individualised career counselling sessions are offered, focussing on strengthening job-search skills, updating CVs, providing career advice, analysing job opportunities, sending applications, preparing for job interviews, and more

• For those who have secured employment: Ongoing follow-up and support are provided at the workplace, addressing job-related tasks and functions, work organisation, communication with employers, navigating employee portals, and informing participants about their rights and obligations as workers

• Intermediation with employers: The programme maintains regular communication (biweekly or monthly) with the employers to ensure that participants are adapting well to their new roles. Support is provided to resolve any issues related to tasks, company protocols, and workplace communication. This proactive approach also helps prevent potential conflicts and ensures smoother integration into the workplace.

Source: Authors from information collected through questionnaires and consultations.

Box on good practices 13. Follow-up framework for women victims of gender-based violence in Madrid

The Madrid programme for women victims of sexual and gender-based violence includes a continuous, adaptive follow-up support framework tailored to the circumstances of each participant. This framework ensures a structured timeline for minimum contact points and uses a Follow-Up Document to keep a record of interactions and provide structure to the follow-up process.

Once participants are employed, continuous support and follow-up are provided to facilitate employment retention. The programme includes a document called the “Accredited Document of Follow-Up for Employment Integration” (Documento Acreditativo de Acompañamiento a la Inserción), which records the follow-up activities conducted by the service providers with both the participant and the employer, particularly when job placement was secured through mediation or a commitment by the employer. Follow-up is scheduled at one month, three months, and six months after employment. This document includes:

• Records of all calls made.

• Updates on the participant’s well-being and work situation.

• Duration of the follow-up.

• Proposed actions for ongoing support.

The primary means of communication for follow-ups are phone calls and emails, given that participants may have limited availability while working.

In addition to these scheduled follow-ups, additional follow-ups are conducted as needed, both with participants and employers. If challenges arise during the integration process, corrective measures are implemented to help ensure the participant remains in employment. These measures can include providing the participant with information, psychological support, and guidance, as well as helping them develop workplace skills.

This framework guarantees a minimum standard of follow-up for all participants, ensuring that everyone has access to this service. The Follow-Up Document provides structure and clear minimum criteria, resulting in a comprehensive approach to monitoring and supporting participants. Moreover, maintaining regular contact with both the participant and the employer helps to resolve potential conflicts and address emerging needs, further promoting long-term employment retention.

Source: Authors from information collected through questionnaires and consultations.

7.4. Policy directions: Avenues for effective case management and follow-up support in future ALMP

To maximise the benefits of programme participation, reduce dropout rates and support sustainable integration into the labour market, future ALMPs should build on the provisions established under Employment Law 3/2023 and Royal Decree 438/2024 on the Common Portfolio of Services (Cartera Común de Servicios del Sistema Nacional de Empleo).

7.4.1. Integrate case management as a core programme component

• Assign a dedicated counsellor or mentor to each participant to provide tailored support through regular counselling sessions, with the frequency and mode of interaction adapted to individual needs. This requires ensuring sufficient human resources and maintaining manageable caseloads so that counsellors can deliver personalised guidance effectively.

• Use personalised action plans or individual itineraries to establish clear mutual commitments between programme participants and counsellors, building on the existing Activity Agreement (Acuerdo de Actividad) as the formal framework to define rights and obligations, ensuring structured guidance and accountability.

• Define minimum standards for case management within each programme, such as mandatory hours and frequency of meetings, to ensure consistent and adequate support for all participants.

• Involve multidisciplinary teams early in the case management process, for jobseekers facing multiple barriers to employment, to support the dedicated counsellor in providing comprehensive and specialised support. These teams may include professionals from psychology, education, legal services, social work, job prospecting, training and entrepreneurship, to jointly assess individual situations and design support plans that address multidimensional needs and complex barriers to employment.

7.4.2. Ensure robust follow-up support after programme completion

• Implement systematic follow-up mechanisms of at least six months to maintain regular contact with participants after the end of the programme, to ensure a smooth transition into employment and to support job retention.

• Establish minimum standards for follow-up support within each programme, including a defined frequency and number of post-programme meetings, to ensure consistency across participants and to enable effective monitoring of outcomes.

• Establish follow-up with employers to proactively address work-related challenges and provide mediation for conflict resolution, thereby supporting successful integration and job stability.

• Provide continued access to key support services in line with Article 25 of Royal Decree 694/2017, such as counselling, additional training, childcare support or transport assistance, during the follow-up period, to address emerging needs and strengthen employment sustainability.