This case study presents the Murcia European Social Fund Operational Programme (2014–20). The programme addressed regional challenges in employment, education and social inclusion, targeting high unemployment and exclusion risks. Two actions were implemented: the Euroempleo programme promoted labour market access for people with mental illness or drug dependence, and the Local Participatory Development Pact, tested local strategies against poverty and unemployment with a focus on women. Euroempleo supported over 1 300 individuals, through eight specialised insertion units and was rated highly effective. Although the programme faced limited private sector engagement and coordination issues, it advanced social innovation by combining mental health support with reintegration services and fostering local collaboration. Another ESF-funded project in Spain, the Operational Programme for Social Inclusion and Social Economy (POISES), tackles poverty, social exclusion and employment access.
Murcia ESF Operational Programme (Axis 6) in Spain
Abstract
Spain has a long-standing social economy tradition. In 2022, the social economy accounted for 10% of GDP and generated 12.5% of total employment (Government of Spain, 2022[1]). This area is characterised by a significant presence of co-operatives, non-profit organisations, and foundations (OECD, 2023[2]). Its policy development is overseen by the Ministry of Labour and Social Economy as well as the framework Law on the Social Economy, adopted in 2011.
The 2023-27 Strategy for the Social Economy highlights the Spanish Government’s commitment to the social economy. This strategy is divided into four different priorities: (1) social economy visibility and institutional participation, (2) improving competitiveness, (3) entrepreneurship and emerging sectors and (4) social and territorial sustainability. It also promotes social innovation in emerging sectors (e.g. care, sustainability, the digital sector, healthcare) by encouraging social economy entities to participate in social innovation platforms and forums (Spanish Ministry of Labour and Social Economy, 2023[3]).
Spain received EUR 16.2 billion in ESF funding in the 2014-20 programming period – including both EU and national co-financing – representing 21.7% of the country’s total European Structural and Investment Funds (European Commission, 2025[4]). The funding prioritised three areas: (1) educational and vocational training, (2) sustainable and quality employment and (3) social inclusion. Social innovation was included as a priority under Axis 6 of the ESF 2014-20 programming period in the Operational Programme for Social Inclusion and Social Economy (POISES) at the national level, as well as the regional operational programmes of Murcia and the Basque Country.
ESF+ is managed by one Managing Authority and 22 public and private Intermediary Bodies, who are responsible for launching calls, selecting projects and monitoring implementation. At the national level, they oversee four main programmes: ÉFESO (Employment, Education, Training and Social Economy); INCLUSION (Social Inclusion, Child Guarantee and Fight Against Poverty); Youth Employment; and BASICO (Basic Material Assistance). Spain also has 19 autonomous communities, each of which has its own regional Intermediary Body – under the national Managing Authority – and programme (see Figure 1). The national INCLUSION programme, as well as six regional programmes (Galicia, Cantabria, Murcia, Valencia, Cataluña, Navarra) have a social innovation priority, each of which demonstrates at least one socially innovative measure.
Source: Authors’ own elaboration based on information provided by Spain.
The Murcia ESF Operational Programme addressed regional challenges in the areas of employment, social inclusion and education. Murcia is qualified as a “transition region” with high unemployment, elevated social exclusion risk and school leave rates in comparison with the national average (Murcia Region, 2016[5]). In response, the programme included two actions under Axis 6 on social innovation: 1) the Euroempleo programme, focused on promoting job access for people with mental illnesses or drug dependence, and 2) the “Local Participatory Development Pact” pilot project, which tested innovative strategies targeting unemployment, poverty and social exclusion in the Alcantarilla and Cartagena municipalities, particularly focusing on women’s participation (Red2Red Consultores, 2019[6]).
The Euroempleo programme was one of the most successful initiatives of the Murcia ESF Operational Programme. Since its launch in March 2017, the programme has supported over 1 300 people through eight insertion units, which include mental health professionals and labour integrators. The number of participants exceeded expected evaluation objectives, due to increased funding allocation and a higher participation of beneficiaries, although the majority were male (61.77%). Furthermore, Euroempleo was considered a highly effective action, according to the monitoring reports of the Murcia ESF Operational Programme. (Fondos Europeos CARM, 2023[7]).
The programme faced challenges, including limited private sector involvement and weak institutional coordination. Private businesses included in the Euroempleo programme exhibited a lack of awareness of pathways to the integration of vulnerable individuals into the labour market. Additionally, coordination was not effective between labour integrators and mental health professionals.
The Murcia ESF Operational Programme advanced social innovation in the region. The Euroempleo programme provided an innovative response through a dual focus approach – combining mental health support with labour integration – for groups often excluded from the labour market, supporting their social integration and reducing their risk of exclusion. Meanwhile, the “Local Participatory Development Pact” pilot project offered a new tool to share good practices of innovative approaches to employment and inclusion, while also strengthening local participation (Murcia Region, 2016[5]).
ESF funding provided the means for the continuity of the programme. The Murcia ESF Operational Programme received EUR 112.9 million, with EUR 91 million provided by the EU budget. Axis 6, which focuses on social innovation, received a higher level of funding compared to other regional categories. This financial support enabled the continuation of the Euroempleo programme and the promotion of local initiatives through participatory methodologies used in the pilot project called the "Local Participatory Development Pact." (Fondos Europeos CARM, 2023[7]).
References
[4] European Commission (2025), Cohesion Open Data Platform - Spain, https://cohesiondata.ec.europa.eu/countries/ES/14-20.
[7] Fondos Europeos CARM (2023), Informe anual de ejecución para el objetivo de inversión para el crecimiento y el empleo - Parte A.
[1] Government of Spain (2022), PERTE de la economía social y los cuidados, https://planderecuperacion.gob.es/como-acceder-a-los-fondos/pertes/perte-de-economia-social-y-de-los-cuidados#:~:text=En%20la%20actualidad%2C%20los%20actores,12%2C5%25%20del%20empleo.
[5] Murcia Region (2016), Plan de Evaluación Específico del Programa Operativo FSE 2014-2020 Región de Murcia, https://carmeuropa.carm.es/wp-content/uploads/2023/01/00.00.Plan_Evaluacion_Murcia_PO_FSE_RM_2014_2020.pdf.
[2] OECD (2023), Country Fact Sheet: Spain, https://www.oecd.org/content/dam/oecd/en/topics/policy-sub-issues/social-economy-and-social-innovation/country-fact-sheets/country-fact-sheet-spain.pdf.
[6] Red2Red Consultores (2019), Informe de Evaluación de los objetivos/resultados del Programa Operativo FSE 2014-2020 de la región de Murcia, https://carmeuropa.carm.es/wp-content/uploads/2023/01/01.2018.01.Informe_de_Evaluacion_del_PO_FSE_RM_2014_2020.pdf.
[3] Spanish Ministry of Labour and Social Economy (2023), Spanish Strategy in Social Economy 2023-2027, https://www.cepes.es/files/docs/estrategia-espaola-de-economia-social-20232027.pdf.
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