Improving Active Labour Market Policies in Spain

4. Identification and outreach to target population

Abstract

This chapter examines the identification and outreach strategies employed by the assessed ALMPs in Spain to reach and engage their target population. It begins by highlighting the importance of designing comprehensive and proactive strategies, particularly when aiming to reach vulnerable groups, and presents the benchmark used for the qualitative assessment. The chapter then outlines the various approaches observed across programmes in their efforts to identify and engage potential participants. It presents good practices that rely on a combination of identification and outreach methods and take into account the particular circumstances of vulnerable groups. Finally, the chapter concludes with a set of recommendations to support the comprehensive identification and proactive outreach in future ALMPs.

4.1. Understanding the criterion and its benchmark for qualitative assessment

The labour market challenges faced by certain groups, which were exacerbated by the COVID‑19 pandemic (OECD, 2021[10]), have long been an area of concern. In response, Spain has focussed its RRP investments in ALMPs on providing sustained support to these vulnerable groups, addressing a range of challenges they face. However, these vulnerable groups are often the least likely to register for ALMPs or approach PES on their own due to various barriers, lack of information, no incentives to approach the PES or misconceptions. Thus, it becomes imperative to not only identify people needing the specific ALMP but also proactively reach out to the people who most need the support that the programme offers (OECD, 2021[11]; OECD, 2023[12]; Dromundo, Lüske and Tuccio, 2023[13]; OECD, 2021[14]).

To ensure effectiveness, ALMPs should specifically target vulnerable individuals who are most likely to benefit from such programmes. This entails identifying those who, despite facing significant challenges in the labour market, have the potential to improve their employment prospects substantially through the support offered by these programmes. Using administrative data from different registers, supplemented by survey data where administrative coverage is limited, allows ALMP providers to identify, map, and track individuals requiring support but not actively engaging with PES. For instance, Estonia’s Youth Guarantee Support System, launched in 2018, exemplifies this approach. It utilises a tool enabling municipalities to identify youths not in education, employment, or training. By linking data from nine registers, it detects those in need, thereby facilitating targeted support and encouraging engagement with PES and other relevant institutions (Kõiv, 2018[15]; OECD, 2021[11]).

Once identified, several outreach channels can be employed to engage these groups.

Direct outreach to potential participants through personalised communication, such as calls or emails, is effective (Van Gestel et al., 2022[16]; OECD, 2023[12]). This approach should not only inform individuals about the programme but also provide an opportunity to address any specific queries or concerns.

Assistance with applying for participation in a specific programme is crucial, including simplifying the application process, offering paperwork guidance, or providing digital platforms for easier access. This assistance makes the process more accessible, especially for those facing barriers like limited literacy or digital skills. The IMV Information Bus in Spain exemplifies this approach by offering both direct outreach and application assistance, acting as a mobile social services office and providing detailed information about the Minimum Income Benefit (Ingreso Mínimo Vital, IMV), including eligibility criteria and application processes, catering to a diverse range of specific needs (OECD, 2023[17]).

Efforts to reduce the stigma associated with programme participation are equally important. This can be achieved through positive messaging and success stories, which help to change perceptions and encourage participation by illustrating the benefits and normalising the use of such services.

Awareness-raising events are a critical component, serving not just to inform eligible individuals about the availability of the programme, but also to actively encourage their application or registration. These events can be tailored to the specific needs and contexts of the target demographic, ensuring maximum relevance and impact.

Furthermore, leveraging social media plays a pivotal role in modern outreach strategies. Social media platforms can be used not only for advertising the programme but also for creating communities of support and engagement. Through these platforms, potential participants can access real-time information, interact with service providers, and even share their experiences with peers. This approach not only broadens the reach of the programme but also fosters a sense of community and support among participants.

A best practice example in outreach is found in Finland’s Ohjaamo centres. These one‑stop-shops for youth services collaborate with municipal social workers to proactively engage with early school leavers and marginalised youth. These centres host outreach events in youth-frequented spaces, with youth workers playing a pivotal role. Their efforts are complemented by the use of social networks, crucial for reaching this demographic (Dromundo, Lüske and Tuccio, 2023[13]).

Box 4.1. Benchmark for excellence: Identifying and reaching out to ALMP participants

A benchmark ALMP effectively identifies and reaches out to its target participants. This outreach can be specifically designed within the programme or be part of a broader strategy implemented by PES. The programme uses a system that integrates administrative and survey data to map and track individuals who, despite facing significant labour market barriers, could potentially improve their employment prospects through the support offered by this programme. An outstanding feature of this system is its ability to pinpoint individuals who are not actively engaging with PES, thereby addressing a key gap in traditional outreach efforts.

The programme’s outreach strategy is multi-dimensional encompassing diverse channels including:

• Personalised communication, such as direct calls or emails, offering potential participants detailed programme information and addressing any individual queries or concerns.

• Comprehensive application assistance, simplifying the process and offering support with paperwork and digital access. This aspect is especially vital for individuals facing barriers like limited literacy or digital skills, making the programme more inclusive and accessible.

• Actions to counteract the stigma often associated with programme participation: the ALMP utilises success stories and positive messaging, changing perceptions and encouraging broader participation.

• Awareness-raising events, designed to resonate with and actively encourage the target demographic groups to participate in the programme.

• Leveraging social media platforms not only for advertising the programme but also for fostering a supportive community. Through these platforms, participants can access real-time information, interact with service providers, and share experiences with their peers.

4.2. Summary of the qualitative assessment results

4.2.1. Participant identification

The assessed programmes used different approaches to identify participants depending on the target population, eligibility criteria and available data sources.

Some programmes relied exclusively on PES administrative data, such as records on registered unemployed and unemployment benefit recipients, for participant identification. This approach proved effective in identifying groups likely to be registered in PES databases, such as the long-term unemployed, jobseekers above a certain age or those in specific geographical areas. Where possible, administrative data screening included specific eligibility criteria, such as age or skill level, to refine target profiles in line with programme objectives. In many cases, employment offices prepared a preliminary list of eligible participants and sent it to service providers for final selection. In particular instances where administrative data could precisely define the narrow target group, for example through a specific classification code for female workers employed under the Agricultural Employment Promotion Plan, the identification process was both straightforward and efficient.

In programmes targeting women victims of gender-based violence, the identification of potential participants involved handling of sensitive personal data. To ensure appropriate and secure access to this data, some programmes engaged special gender-based violence tutors from the PES in the identification process. These tutors are career counsellors specially trained to work with women victims of gender-based violence and are the only professionals in the PES authorised to access victims’ data. This approach ensured that only designated professionals handled sensitive personal data, thereby guaranteeing privacy and data protection.

The programmes targeting particularly vulnerable and hard-to-reach groups, such as people with disability, young people, or women victims of gender-based violence, relied strongly on networks of specialised service providers for identification. These organisations, with their deep expertise and strong links to specific target groups, played a crucial role in identifying people who may never have registered as jobseekers. In very specific cases, such as identifying victims of human trafficking or sexual exploitation, some programmes worked with specialised courts and police departments to reach those who could not be identified through more traditional channels.

To maximise the coverage of prospective participants, many programmes combined administrative data screening with other identification methods, such as networks of specialised entities or collaboration with social services. Many programmes adopted a joint strategy, where the PES used administrative data to identify potential participants within their registers, while specialised service providers complemented this approach by leveraging their networks to reach the target group through more tailored efforts. In these cases, the establishment of data sharing protocols was essential to facilitate efficient and secure data exchange.

In few cases, programmes did not involve proactive identification of participants by the PES or service providers. Instead, individuals interested in the programme self-registered to be considered for selection. In this setting, collaboration between the PES and service providers to identify participants was only initiated if the number of self-registered participants was insufficient.

4.2.2. Outreach strategies

The assessed programmes used a variety of strategies to reach potential participants, with most of them relying on individualised contact to ensure that the identified target group was reached and had access to information about the programme. Personalised outreach provided participants with tailored information about the programme and helped to address their specific questions. Many programmes used a combination of communication tools, including phone calls, WhatsApp messages, and emails to facilitate interactive two‑way communication. In some cases, registered letters with pre‑scheduled appointments were used to make sure that targeted individuals were reached and confirmed receipt of the information. Individual outreach was a preferred strategy when broader campaigns were not desirable due to the protection and privacy requirements of the target group, such as victims of gender-based violence.

A good practice in individual communication was to establish a clear protocol for contacting potential participants. For example, the outreach efforts were structured to include a certain number of contact attempts via phone calls at different days and times to maximise the likelihood of a response. If no response was received, a follow-up message with programme information was sent. The content of these communications was carefully designed to increase the motivation of individuals to participate in the programme.

In addition to individualised contact, many programmes organised broader outreach campaigns through websites, social media, posters, leaflets, and other types of advertisement in social spaces. These campaigns helped to disseminate information about the programmes, raise awareness, reduce stigma and reach additional participants who had not been identified through direct contact. Some of these initiatives made an explicit attempt to use social media platforms to foster a sense of community around the programme. Where broad public outreach was not appropriate due to the sensitive nature of the target group, for example victims of gender-based violence, programmes opted for outreach campaigns among specialised institutions with established links with these populations. By combining individual outreach with broader campaigns, programmes adopted a multi-faceted approach that helped to maximise coverage and ensure engagement.

To complement outreach efforts, some programmes also provided application assistance, which proved valuable when participants had to self-register for the programme, rather than being automatically enrolled through employment offices or service providers. This support was particularly important for those facing administrative barriers or for participants with limited literacy or digital skills. For example, some programmes helped participants to obtain specific documentation, such as social service reports needed to certify their status and eligibility for the programme. By providing tailored assistance, these initiatives ensured that bureaucratic hurdles did not prevent eligible individuals from accessing support.

4.3. Good Practices Identified

The following two programmes, presented in Box on good practices 5 and Box on good practices 6, illustrate comprehensive approaches to identification and outreach to potential programme participants. The first example from Asturias showcases a strategy that combines multiple identification and outreach methods to broaden coverage. The second example from País Vasco focusses on a tailored approach for victims of gender-based violence, emphasising the responsible use of sensitive data, privacy protection and stigma reduction. Both cases demonstrate how carefully designed identification and outreach strategies improve coverage and foster participant engagement.

Box on good practices 5. Identification and outreach for vulnerable groups in Asturias

Asturias represents a good practice in participant identification and outreach for vulnerable groups due to its comprehensive and systematic approach in this area. The programme specifically targets unemployed individuals, particularly those who are long-term unemployed or inactive (the latter being required to register as jobseekers to participate). Participants must also meet one of the following criteria:

• Have no mandatory secondary education (Educación Secundaria Obligatoria, ESO);

• Receive Minimum Income Benefits (either regional or national);

• Belong to a vulnerable group, including individuals over 45 with little or no formal education, immigrants facing language barriers, women victims of abuse or trafficking, people with disabilities, unemployed individuals under 30 with little or no formal education, members of minorities such as the Roma community, homeless individuals, people with addictions, and former prisoners.

In order to reach this target population, the region’s strategy involves the integration of administrative data from employment offices and social services; as well as the collaboration from third-sector entities to identify potential participants. Furthermore, the outreach strategy, including both individualised contacts and broader campaigns, was designed using practices from behavioural economics to maximise its impact.

Participant Identification

Asturias employs a combination of administrative data and networks of specialised entities to identify potential participants for this programme. This combination of approaches can help ensure that a large proportion of the target group is reached, including those who may not yet be registered as jobseekers. The identification process includes:

• Administrative data screening: Employment offices screen their administrative data to identify potential participants

• Collaboration with social services: Through an existing agreement between employment and social services at the regional level, the social services databases are used to identify and reach beneficiaries of the regional minimum income scheme who can also benefit from the programme

• Partnerships with third-sector entities: Strong collaboration with specialised third-sector organisations allows for the identification of individuals who might not yet be registered with public services but are in contact with these entities. The programme allows participants to register as jobseekers just before its start, extending the reach beyond the employment services databases.

Outreach Strategies

Asturias employs a multi-faceted outreach strategy that combines individualised contact with broader social media campaigns and information dissemination about the programme through third sector and local entities, such as local social services offices. This approach maximises the means used to reach potential participants at the same time that it diversifies outreach efforts.

• Individualised contacts are structured so that potential participants are contacted up to three times at different days and times to maximise the chances of receiving a response. If participants do not answer, a follow-up WhatsApp message containing information about the programme is sent. The content of these communications is designed using principles from behavioural economics to ensure engagement and effectiveness. The messaging aims to be both truthful and compelling, motivating individuals to participate.

• The outreach on social networks focusses on Meta (a social media conglomerate including platforms like Facebook, Instagram or WhatsApp) and is tailored to reach individuals who have not yet engaged with public or private entities. The filtering on social media targets individuals in vulnerable social situations and unemployment.

• Dissemination of the programme takes place through information sessions conducted for technical staff in the Social Services of the Principality of Asturias, as well as for municipal social services managers, to facilitate the referral of individuals who might be interested in the programme and meet the eligibility criteria.

Source: Authors from information collected through questionnaires and consultations.

Box on good practices 6. Extensive identification and outreach actions against stigma for victims of violence in País Vasco

The programme targeting victims of gender-based and sexual violence in País Vasco stands out for its extensive identification strategy and its outreach actions aimed at countering stigma.

Extensive Participant Identification

Identification in the programme is led by gender-based violence tutors from Lanbide (the regional PES). These professionals are career counsellors who are specially trained to work with women identified or recognised as victims of gender-based violence, and are the only professionals in Lanbide that have access to victims’ data. This specialised personnel ensures that women do not have to recount their stories multiple times, which is a significant advantage in preserving their privacy and dignity. The fact that these tutors handle the identification process is crucial, as it protects the privacy and data of potential participants, with only the tutors having access to this sensitive information. This focus on privacy and data protection is essential for this vulnerable group.

Tutors are in charge of identifying participants through Lanbide’s administrative data, among women who are registered as jobseekers and are identified in the system as victims of violence or trafficking. Women who are not initially registered as jobseekers can also join the programme, but need to register before the start. In this case, they would be assigned a personal tutor in charge of accompaniment.

In addition to identifying women through Lanbide, the programme’s strategy acknowledges the challenge of reaching the entire target population, particularly victims of sexual violence who may be outside public networks and systems. Therefore, the programme also engages with specialised entities – experts in working with women facing violence, trafficking, or sexual exploitation – to identify women beyond Lanbide’s network. This collaboration expands the programme’s reach, ensuring that it connects with those who might otherwise be overlooked.

Outreach Actions Countering Stigma

Another key feature of the programme is its outreach strategy, which strongly takes into account the need of protecting the participants and reducing the stigma associated with programme participation. To achieve this, the programme frames its communication as part of a broader strategy rather than focussing on the violence component. This positive framing allows the programme’s communications to focus not on the participants’ status as victims, but on their achievements and progress within the programme, such as the completion of training courses. This approach not only protects the participants but also empowers them by emphasising their successes and contributions, thereby helping to counteract the stigma often associated with being a victim of violence.

Source: Authors from information collected through questionnaires and consultations.

4.4. Policy directions: Avenues to ensure comprehensive identification and proactive outreach to target population in future ALMP

4.4.1. Develop a comprehensive identification strategy

• Adopt a comprehensive identification strategy combining different methods, such as administrative data screenings, surveys, networks of specialised entities and collaboration with social services, to maximise the coverage of prospective participants.

• Use PES administrative data on registered unemployed and unemployment benefit recipients to identify individuals who may be eligible and well-suited for participation in specific ALMPs. Refine the screening by leveraging available PES data (e.g. on age, education, skills, location, previous work experience, etc.), to match selected profiles with programme characteristics.

• Where possible, leverage other sources of administrative data, for example from the population, social security, social services, healthcare or education registries, to identify wider range of participants, including vulnerable groups that face multiple barriers beyond employment and are not registered with the PES. Build on the experience and foreseeable applications of existing initiatives such as ES_DataLab to facilitate secure access to linked administrative microdata from various public institutions.

• If identification requires handling sensitive personal data, ensure that strict privacy and data protection measures are in place. For example, when targeting victims of gender-based violence, involve specialised gender-based violence tutors within the PES to carry out identification, as they are specifically trained and authorised to handle such data.

• Collaborate with specialised service providers to identify particularly vulnerable and hard-to-reach groups, drawing on providers’ networks and expertise working with these populations.

4.4.2. Design a multi-faceted outreach strategy

• Use direct personalised outreach to provide potential participants with tailored information about the programme and to address their specific questions. Employ multiple communication channels to facilitate fluid two‑way communication and ensure that information reaches its intended recipients.

• Establish a structured contact protocol to maximise response rates, ensuring that potential participants are contacted several times at different times before they are deemed unreachable.

• Organise broader outreach campaigns through websites, social media, and other forms of advertising to raise awareness and reach a wider pool of potential participants. When working with sensitive target groups, opt for outreach campaigns through specialised institutions that have established trust and direct access to these populations.

• Use positive messages and success stories to reduce stigma and encourage participation.

• Leverage social media platforms to foster a sense of community around the programme, increasing engagement, motivation and information sharing.

• Based on the requirement for personalised attention adapted to participants’ needs (as stated in the Royal Decree 438/2024 on the Common Portfolio of Services (Cartera Común de Servicios del Sistema Nacional de Empleo), provide comprehensive online or in-person application assistance where needed, to ensure that administrative barriers do not prevent eligible individuals from accessing the programme.