Improving Active Labour Market Policies in Spain

1. Scope and methodology for the qualitative assessment of ALMPs

Abstract

This chapter provides an overview of the 38 selected active labour market programmes under Components 23 and 19 of the Spanish Recovery and Resilience Plan (RRP) that are assessed in this report. It also presents the methodology and the qualitative framework used for the assessment and the key criteria that guided the assessment process.

1.1. The qualitative assessment covers a range of active labour market programmes

Active Labour Market Policies (ALMPs) play a key role in supporting jobseekers to transition into quality employment. Aiming to mitigate the adverse effects of the pandemic and foster sustainable and resilient economic development, the Recovery and Resilience Plan (RRP) introduces new targeted investments, some of which focus directly on ALMPs. Component 23 of the RRP, titled “New public policies for a dynamic, resilient and inclusive labour market”, seeks to address structural weaknesses in the labour market and support vulnerable groups, including young people, women, and the long-term unemployed. Complementing these efforts, Investment 3 “Digital Skills for Employment” of Component 19 “National Digital Skills Plan” aims to reinforce ALMPs by enhancing the digital skills of both employed and unemployed individuals. Given that the allocation of RRP funds is conditional upon achieving predefined performance indicators, it is essential to establish a clear assessment framework for the programmes developed under the RRP to determine whether these programmes have met their objectives and identify best practices that could be replicated across the Spain’s National Employment System.

The qualitative assessment carried out in this report focusses on a selection of programmes under Components 23 and 19 of the RRP. This section provides a brief overview of these programmes, which cover a broad variety of interventions targeting different population groups, providing a broad spectrum of services and operating at different administrative levels. Some of the programmes (7 out of 38) are managed by the State Public Employment Service of Spain (Servicio Público de Empleo Estatal, SEPE) at the national level, while others (31 out of 38) are managed by regional authorities at the regional level. Table 1.1 provides a concise summary of these programmes, grouped under seven broad categories of RRP investments.

The assessed regional level programmes, together with three developed at national level, focus on vulnerable groups, and provide a comprehensive range of services to address different needs of these target groups and overcome barriers to employment:

• C23.I04: Territorial programmes for vulnerable groups (16 programmes, 15 managed at regional level and 1 at SEPE level through its Provincial Directorate). Territorial programmes for vulnerable groups are designed to support the long-term unemployed and those groups facing significant barriers to employment, including people with disabilities, migrants, young people, and people with very low education levels. These projects provide personalised and individualised itineraries, which include guidance and accompaniment, orientation programmes, job search assistance, training, support through scholarships, hiring incentives and ongoing monitoring. Most of these programmes are managed by the regions, with the exception of one programme in Ceuta, which is managed by SEPE.1 The participating regions have the flexibility to adopt their own legal frameworks for these initiatives or use SEPE’s regulation as a reference.

• C23.I02.P02: Training with commitment to hiring and insertion of women victims of gender-based violence, human trafficking or sexual exploitation (13 programmes, 12 managed at regional level and 1 at SEPE level through its Provincial Directorate). The programmes for women victims of gender-based violence focus on improving their employability and facilitating their entry and integration into the labour market. The programmes offer women integration itineraries in two phases. During the first six months, participants engage in personalised social inclusion activities, followed by six months of alternating training, which includes a commitment from employers to offer subsequent employment. Participants receive guidance and support throughout their employment. Most of these programmes are managed by the regions, with the exception of one programme covering Ceuta, Melilla and selected provinces of Spain, which is managed by SEPE.2 The regions have flexibility to design their own regulations for implementing their programmes or can use as a reference SEPE’s regulation.

• C23.I02.P01: Support for women in rural and urban areas (5 programmes, 4 managed at regional level and 1 at SEPE level through its Provincial Directorate). The programmes offer women from rural and urban areas personalised and individualised itineraries aimed at their training and job insertion, while promoting equality and non-discrimination in access to employment. These itineraries include employability assessment, career counselling, job search assistance, information, training and development of transversal competences and skills, including digital literacy. The programmes also offer incentives for participation, facilitate job placement and provide ongoing employment support. The targeted women should preferably live in municipalities with less than 5 000 inhabitants. Of the participants, 35% should complete itineraries focussed on developing skills for green jobs, another 35% on digital skills, and at least 20% should achieve professional integration. The programmes are governed by Order TES/1 121/2021 of 11 October, which establishes the common legal framework for their operation. Four of the assessed programmes are managed by the regions, while one programme in Ceuta is managed by SEPE.

The other four programmes, managed by SEPE at the national level, assessed in this report focus on providing training to various groups, including young people, women and workers who need to upgrade their skills to adapt to economic changes, with a particular emphasis on developing green and digital skills:

• C23.I01.P01: TándEM programme. The TándEM programme offers young people under 30 practical training in alternation with employment in public sector entities, associations, foundations and other non-profit entities, focussing on the skills essential for the green and digital transition, while promoting social inclusion and territorial cohesion. At least 25% of the programme is dedicated to climate‑related skills that contribute to creation of green jobs, and a further 25% focusses on digital skills. Projects typically last from 12 to 18 months and consist of two phases: (1) an initial training phase, including guidance, counselling, professional information and business training, lasting three to six months, during which participants receive a daily study grant; and (2) for the remainder of the project, employment through a contractual modality that allows part of the working day to be used to complete job-related training. At the end of the project, young participants receive technical assistance and individual support to help them find jobs or become self-employed.

• C19.I03: Digital literacy for women hired under the Plan for the Promotion of Agricultural Employment -PROFEA-. This programme aims to improve the digital literacy of women who are currently employed or have been employed in the last ten years in seasonal jobs under the Plan for the Promotion of Agricultural Employment (PROFEA)3 to increase their employability and enable them to participate fully in society. The programme provides free and voluntary face‑to-face training on digital skills to female agricultural workers living in rural areas, mostly from multi‑ethnic backgrounds, particularly those over 40, with low to medium levels of education, family responsibilities and difficulties in accessing training. The training is aligned with the European Framework of Digital Competences for Citizenship4 and consists of five modules of a minimum duration of 25 hours each. Participants receive a certificate upon successful completion of the training or of at least 75% of the course.

• C19.I03: Training for digital transformation -TIC- (SEPE‑FUNDAE). The TIC programme provides state‑wide training to help workers develop and improve their professional skills related to technological change and digital transformation, with a focus primarily on people working in productive sectors. Priority for training is given to specific groups, including women, people under 30 or over 45, people with disabilities, low-skilled workers, the long-term unemployed, SME employees, part-time and temporary workers, and those affected by redundancy procedures (Expediente de Regulación de Empleo, ERE) or temporary suspension of employment (Expediente de Regulación Temporal de Empleo, ERTE). Unemployed persons registered with the PES may account for up to 30% of the total number of participants, while employees of public administrations and beneficiary entities may each constitute up to 10% of the participants. The training covers basic, intermediate or advanced digital skills and is delivered face‑to-face, online or in a mixed mode. Each training course has the duration required for the acquisition of technological competences in the sector to which it refers, with a minimum duration of 25 hours.

• C23.I03: Training programmes for people employed in the tourism sector -TURISMO- (SEPE‑FUNDAE). The TURISMO programme provides state‑wide training, primarily for people working in the tourism sector and other related strategic sectors of national interest,5 with the aim of improving and developing professional skills that will enable workers to adapt to changes in the production system and seize opportunities for career advancement and personal growth. At least 30% of the training is dedicated to climate‑related skills, and a further 30% to digital technology skills. The programme prioritises the participation of the people affected by redundancy procedures (ERE) or temporary suspension of employment (ERTE) and workers benefiting from micro-credits. The training can be delivered face‑to-face, online or in a mixed mode. The duration of the training programmes is determined by the Catalogue of Training Specialities of the National Employment System.6

Table 1.1. Summary of the 38 assessed ALMPS

Management level	Territorial scope	Programme name	Responsible entity that participated in the survey and consultations
C23.I04.P01: Territorial projects for vulnerable groups
Regional	Andalucía	New territorial projects for rebalancing and equity for vulnerable groups	Andalusian Employment Service
Regional	Asturias	Integrated itineraries of active inclusion oriented to the labour insertion of vulnerable people	Public Employment Service of the Principality of Asturias (SEPEPA),
Regional	Islas Baleares	Territorial projects for vulnerable groups for people aged 30 and over, long-term unemployed	Balearic Islands Employment Service (SOIB)
Regional	País Vasco	New territorial projects for rebalancing and equity for vulnerable groups: unemployed people over 45 years old	Basque Employment Service (Lanbide)
Regional	Canarias	TIGOTAN 2.0 Project San Juan de la Rambla itinerary	Canary Islands Employment Service
Regional	Cantabria	SAMIR territorial project for particularly vulnerable groups	Cantabrian Employment Service
Regional	Castilla y Len	Vulnerable groups in disadvantaged urban environments	Public Employment Service of Castilla y Len (ECYL)
Regional	Castilla-La Mancha	Subsidies for the implementation of actions to improve employability and integration aimed at vulnerable groups	Regional Government of Castilla-La Mancha, Ministry of Economy, Business and Employment, General Directorate of Employment, Social Dialogue and Occupational Health and Safety
National	Ceuta	New territorial projects for rebalancing and equity for vulnerable groups	SEPE Provincial Directorate of Ceuta
Regional	Extremadura	New territorial projects for rebalancing and equity for vulnerable groups: people with disabilities.	Extremadura Public Employment Service (SEXPE)
Regional	Galicia	Collaboration agreement between the Ministry of Employment and Equality and the European Network to combat poverty and social exclusion	Regional Government of Galicia, Ministry for Employment Promotion and Equality, General Directorate for Employment Training and Guidance
Regional	La Rioja	Opening the doors to the IT world	Regional Government of La Rioja, Ministry for Regional Development, Directorate‑General for Employment, Social Dialogue and Labour Relations
Regional	Comunidad de Madrid	Territorial projects for vulnerable groups	Government of the Community of Madrid, Ministry of Economy, Finance and Employment
Regional	Murcia	Territorial project for rebalancing and equity for people with disabilities	Regional employment and training service of the region of Murcia (SEF)
Regional	Navarra	New territorial projects for rebalancing and equity for vulnerable groups	Employment Service of Navarra (SNE‑NL)
Regional	Valencia	New territorial projects for rebalancing and equity for vulnerable groups	Valencian Employment and Training Service (LABORA)
C23.I02.P02: Support for women victims of gender-based violence, trafficking or sexual exploitation
Regional	Asturias	Training with commitment to recruitment and integration of women victims of gender-based violence, trafficking or sexual exploitation	Public Employment Service of the Principality of Asturias (SEPEPA)
Regional	País Vasco	Training and insertion programme with commitment to hiring for women victims of gender-based violence, trafficking or sexual exploitation	Basque Employment Service (Lanbide)
Regional	Canarias	Job placement project “Opening doors, opening opportunities”	Canary Islands Employment Service
Regional	Cantabria	Training with commitment to recruitment and integration of women victims of gender-based violence, trafficking or sexual exploitation	Cantabrian Employment Service
Regional	Castilla y Len	Training with commitment to recruitment and integration of women victims of gender-based violence, trafficking or sexual exploitation	Public Employment Service of Castilla y Len (ECYL)
Regional	Castilla-La Mancha	Socio‑occupational insertion with commitment to hiring of women victims of gender-based violence, trafficking or sexual exploitation	Regional Government of Castilla-La Mancha, Ministry of Economy, Enterprise and Employment, Directorate General of Vocational Training in the Workplace
Regional	Cataluña	Training with commitment to recruitment and integration of women victims of gender-based violence, trafficking or sexual exploitation	Regional government of Cataluña, Department of Equality and Feminism
National	Ceuta, Melilla and the provinces of Zaragoza (Aragón), Barcelona (Cataluña), Madrid (Comunidad de Madrid), Las Palmas (Canarias), Málaga and Sevilla (Andalucía)	Training and insertion programme with commitment to hiring for women victims of gender-based violence, trafficking or sexual exploitation	SEPE, Sub-Directorate General for Active Employment Policies
Regional	Extremadura	Itineraries of guidance, counselling and training with commitment to recruitment and integration of women victims of gender-based violence	Extremadura Public Employment Service (SEXPE)
Regional	Galicia	Collaboration between the Ministry of Employment and Equality and the Red Cross for training and integration of women victims of gender-based violence, trafficking or sexual exploitation with a commitment to hiring	Regional Government of Galicia, Department of Social Policy and Equality
Regional	Comunidad de Madrid	Training with commitment to recruitment and integration of women victims of gender-based violence, trafficking or sexual exploitation	Government of the Community of Madrid, General Sub-Directorate for Evaluation, Monitoring and Control of Training
Regional	Murcia	Training with commitment to recruitment and integration of women victims of gender-based violence, trafficking or sexual exploitation	Regional employment and training service of the region of Murcia (SEF)
Regional	Navarra	GAIA project “Training for women victims of gender-based violence, human trafficking or sexual exploitation”	Employment Service of Navarra (SNE‑NL)
C23.I02.P01: Support for women in rural and urban areas
Regional	Andalucía	Support for women in rural and urban areas	Andalusian Employment Service
National	Ceuta	Support for women in rural and urban areas	SEPE Provincial Directorate of Ceuta
Regional	La Rioja	IN ITINERE LAB: a mobile laboratory to support the improvement of women’s employability	Regional Government of La Rioja, Ministry for Regional Development, Directorate‑General for Employment, Social Dialogue and Labour Relations
Regional	Comunidad de Madrid	Support for women in rural and urban areas	Government of the Community of Madrid, Ministry of Economy, Finance and Employment, Directorate‑General for Public Employment Service
Regional	Valencia	Support for women in rural and urban areas	Valencian Employment and Training Service (LABORA)
C19.I03, C23.I01, C23.I03: National level programmes
National	All territory	Digital literacy for women hired under the Plan for the Promotion of Agricultural Employment	SEPE, Sub-Directorate General for Active Employment Policies
National	All territory	TIC: Training for digital transformation	SEPE‑ FUNDAE
National	All territory	TándEM: Training in alternation with employment for young people	SEPE, Sub-Directorate General for Active Employment Policies
National	All territory	TURISMO: Training programmes for people employed in the tourism sector	SEPE‑ FUNDAE

Source: Authors from information collected through questionnaires and consultations.

1.2. The assessment employs a comprehensive methodology

Qualitative assessments are important tools for evaluating complex processes, such as public policies, because they enable to examine in detail the efficiency of the organisation of a policy and its delivery across multiple dimensions. One of the commonly used types of qualitative assessments is self-assessment. Self-assessments are widely used in OECD countries and EU member states in various areas, starting from quality assurance in non-formal training and to assessment of competitiveness of whole economies (OECD, 2021[1]; OECD, 2021[2]; OECD, 2022[3]; Espinoza and Martinez-Yarza, 2023[4]). Self-assessments are often accompanied by external assessments to validate the collected information and to ensure its quality.

One well-known application of combined self-assessment and external assessment in the area of ALMPs is the PES Network Benchlearning exercise, which merges benchmarking with mutual learning (European Commission, 2021[5]). The aim of the PES Network Benchlearning is to support each PES to improve their own performance through a structured and systematic reflection on their performance against the performance of an ideal PES as well as to learn from good practices in other PES and adapt them to the national circumstances.

The methodology used in this report also combines self-assessment and external assessment, adjusting the content of the framework to the assessment of specific ALMPs. The objective of the framework is to provide a detailed assessment of the mechanisms behind the programmes’ performance, their quality and efficiency and ability to meet objectives. The framework aims to provide a flexible tool that helps to assess a wide range of ALMPs in a comprehensive and systematic way following them from the initial planning stage to final outcomes.

1.2.1. Self-assessment

Self-assessment is performed by individuals, groups or organisations which participate directly in the implementation of a process that is being assessed (e.g. an ALMP). Self-assessment offers a chance to step back from everyday work and to reflect on how the programme has been implemented and how it could be improved. The goal of self-assessment is to identify strengths and weaknesses of the assessed programme and to determine areas for potential improvement. Self-assessment is especially suited to assist stakeholders (e.g. SEPE and regional PES) in improving their own performance and steer their programmes in the course of implementation.

In-depth and rigorous self-assessment requires allocation of some time and staff resources within an organisation. Nevertheless, internal evaluators are best positioned to carry out this task as they have the advantage of a greater familiarity with the institution and the programme and have easier access to information. Self-assessment also pays off in the long run as it brings some additional benefits. If adopted on regular basis, self-assessment helps creating a long-lasting culture of continuous aspiration for improvement within the organisation. Self-assessment can encourage learning and provision of feedback within the organisation among employees involved in different projects and functions and can benefit the programme and the organisation as a whole.

In the context of this project, self-assessment was carried out through a detailed questionnaire prepared by the OECD and shared with SEPE, regional PES or other responsible institutions managing the assessed programmes. The questionnaire is structured by key policy dimensions or criteria (see Section 1.3). Each of them uses clearly formulated descriptions of theoretical excellence or benchmarks, which are based on previous literature, research findings and case studies. These detailed descriptions reflect basic principles of how a “well-functioning” ALMP should work.

For each policy dimension or criterion, the respondents were asked (i) to describe the practices of the programme that are relevant for the criterion and (ii) to situate the assessed programme with respect to the benchmark in a scale from 0 to 5 (“self-assessment score”). The grades of the scale are intuitive and reflect different levels of development of the programme. For example, the highest self-assessment score (5) means that the practices of a given programme correspond fully to the described “benchmark for excellence” for a specific criterion. The lowest score (0) corresponds to the situation when the described practice does not exist at all for a given programme. The intermediate scores correspond to situations in between: e.g. (1) there are concrete ideas to develop this practice; (2) first steps were made to develop this practice; (3) some elements correspond to the benchmark; (4) most elements correspond to the benchmark. The difference between the self-assessment score of a specific programme and the benchmark shows the proximity of a particular dimension of a programme to the benchmark for excellence.

Self-assessment relies on the expertise and insights of the relevant staff from the institutions responsible for the planning, implementation and evaluation of the assessed ALMPs. Ideally, self-assessment should make references to the available supportive evidence such as concepts, handbooks, surveys, evaluations, reports, studies, process descriptions, etc. SEPE and each regional PES appointed a contact person responsible for conducting the self-assessment of a selected ALMP, either individually or with the help of a team. Completion of the self-assessment questionnaires often required collaboration between several staff members who possess different expertise, thus stimulating information exchange and discussion within the organisation.

1.2.2. External assessment

An external assessment is carried out by people not belonging to the administration responsible for the implementation of the assessed policy. External assessment is often seen as more impartial and independent and therefore as more credible than internal assessment. Self-assessments are often accompanied by external assessments to validate the collected information and to ensure its quality. If necessary, external assessments can also be used to clarify information and fill in possible information gaps.

In the context of this project, the external assessment consisted of one‑to‑one consultations conducted by the OECD with the responsible teams within SEPE, regional PES or other responsible institutions after these teams have filled in the self-assessment questionnaires. In most cases, one consultation was organised per programme, but there were two exceptions where two programmes were assessed together during a single, longer consultation because they were implemented by the same team and shared many common features.7 The consultations followed the same structure as the questionnaires and covered the same aspects as the guiding questions included in the questionnaire. However, the aim of the consultation was not to repeat the questions of the questionnaire but to clarify any unclear information and to deepen the knowledge on the areas of particular interest. The content of each consultation was tailored to the specific programme under consideration, taking into account the information already provided in the self-assessment questionnaire. Consultations were conducted in Spanish (mostly online) and lasted around one hour depending on the amount of information already provided in the questionnaires.

During self-assessment and external assessment each dimension or criterion considered in the framework was assessed separately. First, the teams responsible for self-assessment assigned a self-assessment score to each criterion (on a scale from 0 to 5). Then, these scores were validated by the OECD during consultations and adjusted in line with the obtained supplementary information. The total score was calculated as a simple average across all criteria without using weights because the relative importance of each area is not a priori known.

This scoring system helped both internal and external evaluators to highlight areas of success and identify opportunities for improvement. It provided a structured and comparative foundation for a deeper assessment based on rich qualitative information gathered through open-ended questions in self-assessment questionnaires and consultations. The scores served as a valuable internal reference, complementing the qualitative insights that ultimately guided the identification of good practices.

The results of the assessment were discussed at the mutual learning event organised among regional PES and SEPE in the context of this project. The assessment helped to reflect on the performance of ALMPs in a structured way and to identify good practices that could potentially be transposed to other regions or groups of beneficiaries.

1.3. The assessment framework is structured along nine key assessment criteria

The assessment framework used in internal and external assessments is structured along nine key assessment criteria. These criteria were selected for the assessment exercise based on existing assessment frameworks in the area of ALMPs, previous literature, research findings and case studies. These criteria are broad enough to allow for a comparative analysis of heterogeneous ALMPs, yet comprehensive enough to encompass all the critical elements that contribute to a well-functioning ALMP.

The aim of this qualitative framework is to provide a detailed assessment of the mechanisms behind the programmes’ performance, their quality and efficiency and ability to meet objectives. The framework provides a flexible tool that enables assessment of a wide range of ALMPs in a comprehensive and systematic way, following them from the initial planning and design stage to final outcomes, capturing all the elements that make a “well-functioning” ALMP. The assessment helps to reflect on the performance of ALMPs in a structured way and to identify good practices that could potentially be transposed to other regions or groups of beneficiaries.

The nine assessment criteria are as follows:

1. Evidence‑based design. A fundamental aspect of a well-functioning programme is its evidence‑based design, based on comprehensive analysis of historical trends, current labour market conditions, empirical data and lessons from other programmes. It incorporates insights from past successes and failures to ensure effectiveness and mitigate risks. The design process involves collaboration with various stakeholders, including government bodies, employers, employee representatives and researchers, to ensure that a wide range of perspectives and needs are taken into account. It also draws on successful ALMPs from other countries to apply global best practices locally. Finally, the programme is developed alongside a monitoring and evaluation (M&E) plan, with clear performance indicators and evaluation criteria established from the outset to facilitate ongoing tracking of progress and subsequent evaluation.

2. Engaging service providers. Effective ALMPs engage service providers through a careful selection process, strategic contracting and ongoing quality assurance. The selection process is transparent and rigorous, giving priority to providers with proven expertise, compliance with legal and ethical standards, a track record of successful performance and use of innovative practices. The payment model is designed to attract and motivate high-quality providers by linking payments to concrete outcomes, such as jobseekers securing quality jobs, and by adapting them to the diversity of beneficiaries to promote effectiveness and inclusiveness. Ongoing monitoring through regular assessments, using both quantitative data and qualitative feedback from participants, ensures that high standards are maintained. In cases of non-compliance or underperformance, corrective actions are taken promptly, which may include retraining staff, changing service delivery methods or revising the contract with the service provider.

3. Identification and outreach to target population. To ensure effectiveness, it is essential that a programme identifies and reaches its target population through a multi-dimensional outreach strategy. The comprehensive identification strategy integrates administrative and survey data to map and track individuals who face significant labour market barriers but could benefit from the programme’s support. In particular, an excellent system is able to identify individuals who are not actively engaged with the PES, thus addressing a key gap in traditional outreach efforts. The successful outreach strategy includes personalised communication, such as direct calls or emails, providing detailed programme information and responding to individual queries. Comprehensive application support simplifies the process and provides assistance with paperwork and digital access, which is crucial for those with limited literacy or digital skills. To counter the stigma often associated with programme participation, the programme uses success stories and positive messages to change perceptions and encourage wider participation. Awareness-raising events are designed to resonate with target audiences and actively encourage participation. In addition, social media platforms are used not only to promote the programme but also to foster a supportive community where participants can access real-time information, interact with service providers and share experiences with peers.

4. Assessment and referral of participants. A well-designed programme has a systematic assessment and referral protocols based on qualitative and quantitative profiling strategies. Job counsellors conduct qualitative assessments of individual needs and skills, while quantitative profiling uses advanced digital tools, including logistic or probit regression and machine learning, to analyse socio‑economic factors, educational background, work experience and regional labour market trends among others. The programme includes comprehensive skills assessments such as self-reported evaluations, soft skills tests and innovative methods such as “serious games”. The highly personalised referral system ensures that participants receive services and support tailored to their skills and needs, for example, adapted levels of training programmes.

5. Integrated and holistic support. An effective ALMP adopts an integrated and holistic approach. It addresses multiple barriers for labour market integration, particularly for vulnerable groups, through a wide range of services, including personalised career support, skills development, essential support services, work experience opportunities, and employment incentives. It establishes a collaborative network with seamless communication and joint planning between different service providers in employment, social, health, and education sectors, ensuring tailored support for each jobseeker. Effective data exchange with partner institutions enables real-time tracking and service adaptation, reduces costs and avoids duplication of services, resulting in a more effective support system.

6. Case management and follow-up support. A programme ensures long-term effectiveness by incorporating case management during participation in the programme and follow-up support after its completion, particularly benefiting vulnerable groups and those at high risk of dropping out or returning to unemployment. Case management involves assigning dedicated mentors to provide individualised support during participation in the programme, for example using tailored Individual Action Plans (IAPs) to set clear mutual obligations. Follow-up support includes continued counselling during initial employment, maintaining contacts with clients and employers, and co‑ordinating with other service providers to address evolving needs, such as training and childcare, to help retain employment and prevent a return to unemployment.

7. Partnership with employers. To increase its reach, relevance and effectiveness, a successful ALMP forms strong partnerships with employers, ensuring participant skills align with labour market demands. Key features of partnerships with employers include strategic outreach to raise employer awareness and position participants as valuable assets, adaptability to evolving employer needs for relevant upskilling and reskilling and fostering employer understanding of participants’ diverse backgrounds and challenges. The programme also involves employers directly through activities such as site visits, workshops and employment simulations, which prepare participants for real-world employment and deepen employer engagement, encouraging investment in a skilled and diverse workforce.

8. Monitoring and evaluation. A comprehensive monitoring and evaluation (M&E) framework plays a crucial role in ensuring continuous improvement and accountability of the programme. This framework includes systematic monitoring of participants’ progress, employment rates, skills acquisition or other relevant indicators to facilitate real-time adjustments to the programme’s strategic goals and evolving labour market needs. Evaluation goes beyond traditional monitoring by assessing the effectiveness of the programme in achieving its objectives and wider impacts. It uses methods like counterfactual impact evaluation to measure outcomes such as employment, job quality, cost-effectiveness and broader economic and social benefits. The programme actively seeks and incorporates feedback from key stakeholders, including participants and employers, using surveys, interviews and focus groups to remain responsive. Emphasising transparency, the programme publicly shares findings, undergoes independent reviews, and makes adjustments based on monitoring and evaluation results.

9. Criteria specific to the RRP objectives. The RRP aims to accelerate the transition to a greener and more sustainable economy, maximise digital transformation benefits, and reduce social, territorial and gender gaps. In this context, ALMPs are guided by four transversal objectives: promoting green jobs and skills, enhancing digital literacy, reducing territorial and social disparities by targeting vulnerable groups and deprived areas, and empowering women to ensure gender equality in the labour market. ALMPs align with one or more of these RRP objectives by targeting specific groups, regions, sectors and skills, translating these objectives into specific, measurable, time‑bound, ambitious and realistic targets. These targets are monitored through regular and transparent reporting of relevant statistical data. While addressing all four objectives is not mandatory, a focussed commitment to a specific objective with well-defined targets and initiatives is essential.

The subsequent chapters of the report are structured around these assessment criteria, with each chapter dedicated to a single criterion. The opening section of each chapter describes the rationale behind each criterion and introduces the “benchmarks for excellence”, descriptions of ideal scenarios or standards that serve as reference points for what effective ALMPs could strive to achieve. These benchmarks are presented in clearly marked boxes, offering brief and easy-to‑understand summaries, and were also included in the self-assessment questionnaire shared with the stakeholders for the internal assessment. The following sections of each chapter present the assessment results of the selected ALMPs, highlight examples of good practices, and provide recommendations for future ALMP design and implementation.

Notes

← 1.  Under this investment, SEPE also manages five pilot projects for vulnerable groups in Extremadura, Murcia (two projects), Valencia, and País Vasco, as well as the programme in Melilla. However, this report only assesses the programme carried out by SEPE in Ceuta.

← 2.  SEPE’s implementation of the programme for women victims of gender-based violence in Ceuta, Melilla and the provinces of Zaragoza (Aragón), Barcelona (Cataluña), Madrid (Comunidad de Madrid), Las Palmas (Canarias), Malaga and Seville (Andalucía) follows the same legal framework and is assessed in this report as a single programme.

← 3.  PROFEA is a subsidy programme aimed at hiring workers in the agricultural sector during periods when they remain unemployed due to the seasonal nature of agricultural work, to carry out projects of general and social interest, such as the conservation and maintenance of rural, forest, heritage and environmental areas, and the improvement of village infrastructure, while strengthening the attachment of the rural population to the territories and thereby mitigating their depopulation.

← 4.  The Digital Competence Framework for Citizens (DigComp), implemented by the Joint Research Centre on behalf of the European Commission, outlines key components of digital competence across major areas and describes eight levels of digital proficiency. DigComp supports the EU’s digital skills objectives and is being used by Member States to develop assessment tools and training materials, and to define professional digital profiles in employment, education and training, and social inclusion.

← 5.  This includes the hotel and catering industry, travel agencies, car hire, road passenger transport, air transport, bingo organisers and manufacturers of cooked products for home delivery.

← 6.  The Catalogue of Training Specialities is an instrument of transparency and dissemination of the training system, which summarises the training programmes offered by the National Employment System of Spain. It applies throughout the country and is regulated by Order TMS/ 283 / 2019 of 12 March.

← 7.  These programmes were: TIC and TURISMO implemented by SEPE‑FUNDAE, and two programmes managed by SEPE through its Provincial Directorate in Ceuta.