Improving Active Labour Market Policies in Spain

10. Criteria specific to the objectives of the recovery and resilience plan

Abstract

This chapter examines how selected ALMPs in Spain contribute to the four transversal objectives of the recovery and resilience plan (RRP): green transition, digital transformation, social and territorial cohesion and gender equality. It begins by emphasising the importance of translating broad policy goals into concrete measurable targets to ensure coherent implementation. The chapter reviews the various ways how the assessed programmes address the RRP objectives and presents a good practice that demonstrates a particularly strong focus on well-defined targets. The chapter concludes with recommendations for strengthening the contribution of future ALMPs to overarching policy priorities.

10.1. Understanding the criterion and its benchmark for qualitative assessment

The RRP is aimed at accelerating and smoothing the transition towards a greener environmentally sustainable economy, maximising the benefits of digital transformation, and reducing social, territorial and gender gaps. Spain has a high share of the population with insufficient digital skills and a shortage of workers with specialist digital skills, which hampers the adoption of digital technologies across various sectors of society and limits the potential for economic growth through digital investments. Climate change and meeting ambitious environmental targets will have major economic effects and will foreseeably acerbate already pronounced regional and social disparities. Equipping the labour force with the skills needed for the green transition would facilitate adaptation and support Spain’s achievement of its climate goals (Bank of Spain, 2022[36]; OECD, 2023[37]).

Spain’s RRP is structured along four transversal objectives that guide the ALMPs implemented as part of the investments under Components 23 and 19. These objectives are:

• Green transition: ALMPs should be designed to promote employment in environmentally sustainable sectors and the creation of green jobs, with a focus on the provision of training for skills relevant to a greener economy.

• Digital transformation: ALMPs should aim to increase the level of digital skills of various population groups, improving digital literacy and providing training to support digital transformation.

• Social and territorial cohesion: ALMPs should be targeted at reducing territorial and social gaps in the labour market and mitigating the social impact of the recent crises. This includes implementing programmes in deprived areas (e.g. in regions facing high unemployment or other challenging economic conditions), targeting various vulnerable groups (e.g. youth, long-term unemployed, ethnic minorities, etc.), prioritising transformation in economic sectors under pressure, etc.

• Gender equality: ALMPs should focus on empowering women, removing gender-based disparities in the labour market and ensuring equal access to employment.

Some of the 38 ALMPs considered in the assessment in this project aim at addressing several of these objectives at the same time, while others focus on one objective only and for selected beneficiaries. Whatever a particular aim of a specific policy is, it is important to monitor whether the design and the implementation of the policy is coherent with the overarching RRP objectives. It is important that the services provided by PES are in line with the objectives, i.e. they target population groups, regions, sectors, jobs, skills that contribute to meeting some or all of the objectives of the RRP.

While the RRP objectives are defined in broad terms at the national level, for monitoring purposes it is important to translate these objectives into “targets” that can be represented and assessed by statistical data (European Commission, 2021[5]). It is important to set the targets in co‑operation with regional/local PES considering local economic and labour market circumstances. Targets should be clear, specific, measurable, time bound, ambitious and realistic. To monitor the coherence of the policies with the objectives, it is important to design efficient ways to share information, e.g. to report on the relevant statistical data in a fixed and easily comprehensible format at regular time intervals.

Box 10.1. Benchmark for excellence: Criteria specific to the RRP objectives

The RRP is aimed at accelerating and smoothing the transition towards a greener environmentally sustainable economy, maximising the benefits of digital transformation, and reducing social, territorial and gender gaps. In the context of the RRP, the objectives that guide the implementation of the ALMPs are:

• Green transition: ALMPs should be designed to promote employment in environmentally sustainable sectors and the creation of green jobs, with a focus on the provision of training for skills relevant to a greener economy.

• Digital transformation: ALMPs should aim to increase the level of digital skills of various population groups, improving digital literacy and providing training to support digital transformation.

• Social and territorial cohesion: ALMPs should be targeted at reducing territorial and social gaps in the labour market and mitigating the social impact of the recent crises. This includes implementing programmes in deprived areas (e.g. in regions facing high unemployment or other challenging economic conditions), targeting various vulnerable groups (e.g. youth, long-term unemployed, ethnic minorities, etc.), prioritising transformation in economic sectors under pressure, etc.

• Gender equality: ALMPs should focus on empowering women, removing gender-based disparities in the labour market and ensuring equal access to employment.

The benchmark ALPM operates in line with one or several1 of the overarching RRP objectives by targeting population groups, regions, sectors, jobs, skills that contribute to meeting these objectives. The objectives are translated into clearly defined targets. These targets are specific, measurable, time bound, ambitious and realistic. They are monitored by sharing relevant statistical data in a fixed and easily comprehensible format at regular time intervals.

1. While it is not mandatory for an ALMP to address all four objectives to attain the highest score, it is essential to illustrate a focussed commitment to a specific objective. The ALMP should demonstrate how the chosen objective is actively pursued through relevant initiatives and monitored meticulously with well-defined processes and targets.

10.2. Summary of the qualitative assessment results

While not all 38 programmes addressed all four RRP objectives, most showed a strong commitment to at least one of them. Programmes often combined several objectives, for example, linking digital transformation with social inclusion or gender equality. Although targets were frequently expressed in general terms, focussing on the number of participants, some programmes included more specific outcome‑oriented elements, such as insertion rates. Overall, the programmes demonstrated a structured and coherent approach in line with the priorities of the RRP.

10.2.1. Green transition

Green transition was typically not the primary focus of the assessed ALMPs, but it was addressed through a number of supporting policy elements. From the outset, all activities included in the RRP were required to comply with certain principles, such as the “do no significant harm” rule, which prohibits activities that could harm the environment, and “green labelling” to facilitate the allocation of resources to environmental initiatives. The promotion of green skills and jobs was often integrated into the programmes as part of training packages. Many programmes offered training modules on environmental awareness to promote environmental responsibility or provided training to acquire skills for green jobs in areas such as photovoltaic panel installation, forestry, gardening, cleaning, circular economy, sustainable waste management and energy-efficient renovation. In some cases, programmes explicitly reserved a certain share of training content (25‑35%) for climate‑related skills.

10.2.2. Digital transformation

Digital transformation was systematically addressed in all of the assessed programmes. This objective was incorporated in a variety of ways: starting from “digital labelling”, as required by the RRP principles to facilitate the allocation of resources to digital transformation initiatives, and finishing with the implementation of programmes explicitly dedicated to the development of digital skills, such as digital training for women in the agricultural sector and training for digital transformation. Even programmes that did not have digital goals as a primary objective often targeted populations with low levels of digital literacy and thus included basic digital skills training as an important component. In addition, some programmes also offered specialised courses to acquire advanced digital skills, including office software, accounting, graphic design, document digitisation, AI-activities and ICT networks. As with green skills, some programmes explicitly dedicate a certain share of their training content (25‑35%) to the development of digital skills.

10.2.3. Social and territorial cohesion

Social and territorial cohesion was strongly embedded across all the assessed programmes. It was the central objective of the programmes targeting vulnerable groups, such as young people, women, the long-term unemployed, people with disabilities, migrants, and people with very low education levels. Another way of addressing this objective was to implement initiatives in disadvantaged areas facing high unemployment, depopulation or other challenging economic conditions. A good practice to ensure coherence with this objective was to channel a certain part of funding directly to projects in small municipalities, thereby helping to bridge territorial disparities. When it was not possible to work in remote locations, some programmes helped to overcome territorial barriers by providing online training to make the programmes accessible to all participants regardless of their geographical location.

10.2.4. Gender equality

Gender equality was explicitly addressed in several ALMPs targeting women, such as programmes for women victims of gender-based violence, women in rural and urban areas, and digital training for women in the agricultural sector. These programmes focussed on improving women’s employability and supporting their integration into the labour market, thereby actively contributing to gender equality, reducing gender gaps and empowering women. Other programmes, while not specifically targeting women, included certain categories of women as priority groups, for example women with low levels of education in disadvantaged areas. Few programmes set explicit targets to ensure equal representation of women among participants.

10.3. Good practices identified

The programme presented in Box on good practices 18 illustrates a targeted approach to advancing key objectives of the RRP. Implemented across several regions under a common detailed legal framework, the support programme for women in rural and urban areas sets specific, measurable, time‑bound, ambitious and realistic targets to ensure alignment of the programme with the overarching policy objectives.

Box on good practices 18. Addressing the transversal objectives of the Recovery and Resilience Plan through focussed commitment to well-defined targets: Support for women in rural and urban areas in Andalucía, La Rioja, Madrid, Valencia y Ceuta

The programme “Support for Women in Rural and Urban Areas”, implemented in the regions of Andalucía, La Rioja, Madrid, Valencia and in Ceuta, by means of Order TES/1 121/2021 of 11 October, exemplifies a targeted approach to address key objectives of the Recovery and Resilience Plan (RRP) such as green transition, digital transformation, social and territorial cohesion, and gender equality.

The programme provides comprehensive support to the targeted women by offering a personalised and individualised itineraries of career guidance, advice, training, acquisition of transversal skills and competencies, facilitation of job insertion and employment tailored to the profiles of the participating women. This holistic support not only enhances their skills and qualifications but also boosts their confidence and readiness for the job market. The focus on green and digital skills ensures that participants are equipped for future job markets, contributing to both environmental sustainability and technological advancement. By targeting women in rural and urban areas, particularly those in municipalities with less than 5 000 inhabitants, the programme addresses regional disparities and promotes social cohesion. This targeted approach helps bridge the gender gap in employment, supports the revitalisation of rural areas, and contributes to the overall economic and social development of these regions.

The detailed legal framework ensures that the programmes under this investment commit to the overarching objectives by setting specific, measurable, time‑bound, ambitious and realistic targets. This approach enhances accountability and transparency, as progress can be systematically tracked and evaluated.

Specific well-defined targets:

• Targeting women: At least 22 240 women are expected to complete the programme out of 27 800 women registered at the start of its implementation.

• Promoting green skills and jobs: 35% of the participants of the programme complete an individualised itinerary oriented to the development of green skills and jobs. Such itineraries may include, for example, renewable energy, water and waste treatment, respectful forestry and agriculture, and circular economy.

• Enhancing digital literacy: 35% of the participants of the programme complete an individualised itinerary oriented to the development of digital skills and jobs. These itineraries may cover the digitalisation of services, online commercial activities and areas related to technology.

• Focusing on small municipalities: The programme prioritises women residing in municipalities with less than 5 000 inhabitants. At least a third of the investment is directed to these areas.*

• Achieving desired employment impact: At least 20% of women participating in the individualised itineraries are expected to achieve professional integration, either as employees or self-employed.**

Note: * In the case of an island Autonomous Community, the percentage of investment and participants residing in municipalities with less than 5 000 inhabitants will correspond to the weight of the inhabitants of these municipalities in the total population in that Autonomous Community. For projects that plan to be developed in a single municipality, the population of the affected municipality may not exceed 5 000 inhabitants, except in the case of the Cities of Ceuta and Melilla.

** The competent labour administration will determine the minimum number of paid days required for a participant to be considered integrated into the labour market, which will be at least 90 days, not necessarily continuous. It will also define the methods of verification, the criteria for calculating part-time work and other relevant aspects.

Source: Authors from information collected through questionnaires and consultations; Order TES/1 121/2021 of 11 October.

10.4. Policy directions: Avenues for strengthening the contribution of future ALMPs to overarching policy objectives

To ensure coherence between programme design, implementation and overarching policy objectives, future ALMPs should build on the experience of the ALMPs implemented under the RRP and on the provisions established under Law 3/2023 and:

• Clearly define policy objectives and ensure alignment with these objectives through the services they provide, the population groups they target, the territories they serve and other relevant policy elements, following a pre‑defined Theory of Change.1

• Set clear, specific, measurable, time‑bound, ambitious and realistic targets (including baseline indicators and their target values), that are directly linked to the defined objectives and monitor progress using relevant statistical data.

• Include outcome‑oriented targets to increase the effectiveness of the programmes, for example by requiring a minimum percentage of participants to be (sustainably) integrated into the labour market after the completion of the programme.

Note

← 1.  A Theory of Change (ToC) is a comprehensive framework that outlines how and why a desired change is expected to occur in a specific context, linking specific activities and programmes to observable outcomes and impacts.