Integrated Service Delivery_publication

7/27/2019 Integrated Service Delivery_publication

1/136

Vlada Republike

Srbije


2/136

The views expressed in this pulication are those o the author(s) and do notnecessarily represent those o the United Nations, or their Memer States.

Good Practices in ProvidingIntegrated Employment andSocial Services in Centraland Eastern Europe

Research conducted within thePromotion o Youth Employmentand Management o MigrationUN Joint Programme in Seria

Angela Taylor


3/136

List o Acronyms ..............................................................................................................................................4EXECUTIVE SUMMARY ..................................................................................................................................7INTRODUCTION...............................................................................................................................................12CHAPTER 1. DISADVANTAGED GROUPS .......................................................................................................171.1 Denition o disadvantaged groups ..........................................................................................................171.2 Young people most at risk ........................................................................................................................171.3 The prolems vulnerale groups ace ......................................................................................................19CHAPTER 2. ACTIVATION AND INTEGRATION O SERVICES......................................................................212.1. Integrating Services..................................................................................................................................212.2. Social and employment activation ..........................................................................................................242.3 European Commission perspective support to activation and integrated services .............................25CHAPTER 3. PERCIVED bARRIERS TO EECTIVE INTEGRATION O SERVCIES ....................................283.1 Introduction ...............................................................................................................................................283.2 barriers to Integrating Services ...............................................................................................................283.2.1 Existing laws and regulations ................................................................................................................283.2.2 Infexile unding ...................................................................................................................................283.2.3 Management Inormation Systems (MIS) .............................................................................................293.2.4 Perormance indicators .........................................................................................................................293.2.5 Managerial or administrative issues: ....................................................................................................293.2.6 Cultural dierences etween organisations ........................................................................................303.2.7 Political considerations .........................................................................................................................303.2.8 Level o decentralisation o services ....................................................................................................303.2.9 Responsiility or service delivery .........................................................................................................30CHAPTER 4. INTEGRATION LADDER

(RAGMENTATION TO INTEGRATION CONTINUUM).....................................................................................314.1 Introduction ...............................................................................................................................................314.2 Levels on the integration ladder .............................................................................................................. 33CHAPTER 5.KEY COMPONENTS O COOPERATION/COORDINATION AND INTEGRATED SERVICE MODELS ...............................................................................445.1 Introduction ...............................................................................................................................................445.2 Service gateways and eligiility criteria ...................................................................................................445.3 CMs/Personal Advisers/Key Workers .....................................................................................................455.4 Systems or managing CMs workloads ................................................................................................... 525.5 Multidisciplinary team working ..............................................................................................................545.6 Comprehensive single or joint assessment o need ................................................................................565.7 Individual Action Plan/Service Plan .........................................................................................................58

5.8 requent CM and client progress reviews ................................................................................................605.9 Mapping o services availale ..................................................................................................................605.10 Inormal signposting systems .............................................................................................................615.11 Active reerral networks .........................................................................................................................615.12 Good induction programme ...................................................................................................................625.13 Atercare and active ollowup ...............................................................................................................625.14 Outreach and Moile Teams ...................................................................................................................645.15 Standard client inormation orms andintegrated inormation systems/data gathering. ..........................................................................................66CHAPTER 6: EVALUATION O THE EECTIVENESS O INTEGRATEDSERVICES (EMPLOYMENT AND SOCIAL) AT THE NATIONAL PROGRAMME LEVEL ...................................686.1 Introduction ...............................................................................................................................................68

6.2 Evaluation evidence related to national programmesrom Great britain, Sweden, the Netherlands and Denmark ........................................................................69

Tale o Contents


4/136

6.3 New Deal What Works or Whom ........................................................................................................736.4 Impact evaluation o New Deal or Young People UK ...........................................................................756.5 Evaluation o UK Employment Zones ....................................................................................................76CHAPTER 7. LESSONS LEARNED AND PRECONDITIONS OR EECTIVEINTER-AGENCY COORDINATION AND INTEGRATION O SERVICES.......................................................787.1 Introduction .............................................................................................................................................787.2 Research on preconditions or eective cooperation and integration o services ............................787.3. Lessons learned ....................................................................................................................................80CHAPTER 8: REVIEW O THE INDINGS ROM THESERbIAN RESEARCH STUDY COOPERATION bETWEEN THE NES AND CSW ......................................898.1 Introduction .............................................................................................................................................898.2 Current practice and position on the Integration Ladder ..................................................................908.2.1 Centres or Social Work .......................................................................................................................908.2.2 National Employment Service .............................................................................................................918.2.3 Main conclusions rom the Serian research study ..........................................................................928.2.4 Position on the Integration Ladder ...................................................................................................948.3 The proposed Model or enhanced CSW and NES cooperation ............................................................958.3.1 Overall ojective....................................................................................................................................958.3.2 Specic ojectives ...............................................................................................................................958.3.3 Content o cooperation ........................................................................................................................968.3.4.1 Repulic Level ...................................................................................................................................1008.3.4.2 Level o Community ..........................................................................................................................1008.3.4.3 Level o Service (NES and CSW) .......................................................................................................1018.3.4.4 Level o CM and Employment Counsellor .......................................................................................102

8.4 Comments on the proposed model .......................................................................................................1038.5 Criteria o selection o appropriate pilot sites .......................................................................................106REERENCES................................................................................................................................................107

REZIME .........................................................................................................................................................113PREGLED NALAZA ISTRAIVANJA O PRUANJU INTEGRISANIHUSLUGA U SRbIJI SARADNJA IZMEU NSZ I CSR .................................................................................1181.1 Uvod ........................................................................................................................................................1181.2 Aktuelna praksa i poloaj na lestvici integracije ................................................................................1191.2.1 Centar za socijalni rad (CSR) ..............................................................................................................119

1.2.2 Nacionalna slua za zapoljavanje (NSZ) ..........................................................................................1201.2.3 Osnovni zakljuci Istraivanja .............................................................................................................1211.2.3 Poloaj na lestvici integracije ............................................................................................................1231.3 Predloeni model za jaanje saradnje CSR i NSZ .................................................................................1241.3.1 Opti cilj ................................................................................................................................................1241.3.2 Poseni ciljevi .......................................................................................................................................1241.3.3 Predmet saradnje .................................................................................................................................1241.3.4 Nivoi saradnje ......................................................................................................................................1281.3.4.1 Na repulikom nivou........................................................................................................................1281.3.4.2 Na nivou lokalne zajednice ...............................................................................................................1291.3.4.3 Saradnja na nivou slui (NSZ i CSR) ..............................................................................................1291.3.4.4 Saradnja na nivou voditelja sluaja i savetnika za zapoljavanje ...................................................130

1.4 Komentari na predloeni model ............................................................................................................1311.5 Kriterijumi za izor odgovarajuih pilot lokacija ...................................................................................135

Dobra praksa u pruanju integrisanih usluga zapoljavanjai socijalne zatite u Centralnoj i Istonoj Evropi


5/136

ALMPs Active Labour Market Programmes

APIR Assessment, Planning, Implementation and Review Framework

ASSET Airds Support Services and Education Team

CEE Central Eastern Europe

CHOICE Comprehensive Home Option o Integrated Care or the Elderly

CM Case Manager

CSW Centre or Social Work

CWI Centre or Employment and Income

DG Directorate General

EAPN European Anti Poverty Network

EC Employment Counsellors

ESU Employment Support Unit

ETF Environment Task ForceEU European Union

EZs Employment Zones

GoS Government o Serbia

IAP Individual Action Plan

ICT Inormation Communication Technology

IEP Individual Employment Plan

ILO International Labour Ofce

IOM International Ofce or Migration

ISD Integrated Service Delivery

ISSA International Social Security Association

IT Inormation Technology

LAFOS Labour Force Service Centres

LMDS Labour Market Development Agreements

LSGs Local Sel Governments

MIS Management Inormation SystemMS Material Security

List o Acronyms


6/136

NAV Employment and Welare Ofces

ND New Deal

NDDP New Deal or Disabled People

NDLP New Deal or Loan Parents

NDYP New Deal or Young People

NEET Not in Employment Education or Training

NES National Employment Service

NGO Non Government Organisation

NIESR National Institute o Economic and Social Research

NSRs National Strategic Reports

NYTKU Project or Unemployed Young People with Mental Problems

OECD Organisation or Economic Cooperation and Development

PAs Personal AdvisersPACE Program o All Inclusive Care or the Elderly

PES Public Employment Service

PIs Perormance Indicators

PRISMA Program o Research to Integrate the Services or the Maintenance o Autonomy

PSI Policy Studies Institute

PRSp Poverty Reduction Strategy Paper

RACs Rehabilitation Assessment Centre

SII Social Insurance Institution

SIPA Systme de services intgrs pour personnes ges en perte dautonomie

UK United Kingdom

UNDP United Nations Development Programme

UNICEF United National International Childrens Emergency Fund

USA United States o America

VCS Voluntary Community Sector

VS Voluntary SectorYBI Youth Business Initiative


7/136

6

Leutzs ive Laws or Integrating Medical and Social Services1

irst LawYou can integrate some o the services all o the time, all o the services some o the time, ut

you cannot integrate all o the services all o the time

Second LawIntegration costs eore it pays

Third LawYour integration is my ragmentation

ourth LawYou cannot integrate a square peg and a round hole

ith LawS/he who integrates calls the tune

Lessons

It is important to target expensive integrated approaches on people with complex needs. Not to1.do so is likely to e hopelessly inecient.

Success in integration depends upon adequate investment o planning, time, and resources or2.training and systems development.As much attention needs to e given to what may e lost through integration as to what is likely3.

to e gained.Rememer that some things may remain permanent challenges, or example dierent unding4.

and governance systems or dierent services.This is not principally a comment on relative proessional and organisational power. It is more5.

an argument or nding ways or service clients and carers to play a leading role in shaping services and their integration, or example through increasing use o direct payments/client udgets.

1 Leutz, W. (1999) ive laws or integrating medical and social services: lessons rom the USA and UK, Milank Quarterly, 77 (1),pp 77110.


8/136

7

EXECUTIVE SUMMARY

Currently, almost 10 years ater the launch o the Lison strategy, one o the most alarmingsituations that can e witnessed across Europe, in part as a result o the nancial crisis, is the increasing level o youth unemployment as a percentage o the total unemployed. In the rst quartero 2009, the seasonally adjusted unemployment rate in the EU27 or those aged 1524 was 18.3%,signicantly higher than the total unemployment rate o 8.2%. In the EU27, 5 million young peopleare unemployed.

In Seria, ased on the Laour orce Survey, the overall unemployment rate has increasedrom 14% in Octoer 2008 to 15.6% in April 2009, with an overall youth unemployment rate o40.7%, an increase rom 32.7% in 2008. The youth employment rate was 16.81%.

The commitment o the Government o Seria to address the employment situation o youngpeople ecause o their exposure to vulneraility and social exclusion is emphasized oth in

the 2002 Poverty Reduction Strategy Paper and the 2005 National Employment Strategy.In considering the specic characteristics o disadvantage in young people, across Europe,

generally the ollowing groups o young people can e considered those most at risk: those whoachieve no or low levels o qualications (e.g., dropped out o elementary or secondary school, didnot pass any training or retraining course); those who lack asic skills (numeracy and literacy);teenage parents; young people leaving institutional care (state or local authority); young peoplewith disailities with special educational needs (mental, physical or sensory); males more thanemales; ethnic minorities (in the west mainly Arican/West Indian descent in Central and EasternEurope, mainly Roma); those rom lower socioeconomic ackgrounds (linked either to amily orgeographical region); those with special educational needs; and those associated with poverty andgeneral amily disadvantage.

In many countries even eing young is considered a disadvantage, and this perception isreinorced i the person in question i aected y one or more o the ollowing prolems: poverty,jolessness, or poor jo prospects; dependency on enets and other state support; poor or nohousing; poor health; crime, either as victims or perpetrators o crime; poor school attendancelinked to poor attainment o qualications; poor academic and social skills; poor parenting; domestic violence; drug and alcohol ause; young or single parenthood; unstale marriages; low aspirations, low sel esteem, low motivation and general aimlessness. All o these actors infuencea persons aility to ecome employed and even to meaningully engage in education, training andpersonal development opportunities, or even society in general.

I we consider the complex o prolems disadvantaged people ace, we can see that attemptsto solve them can, at least potentially, ring young people into contact with state odies or agencies responsile or health care, social care services, education, employment services, enetssystems, police, local sel governments or the state, pulic housing and a wide range o NonGovernment Organisation service providers. It is also important to note that a disproportionateamount o pulic money is spent on these odies and the services they provide.

In response to the nancial crisis and increasing unemployment levels most European countries are paying more attention to active inclusion and social activation as policy responses. Indoing so they are asking themselves how to develop more employment riendly social protectionsystems or their most vulnerale citizens people who ace a multitude o complex prolemsand are the urthest rom the laour market. In terms o social activation the most successulcountries are considered to e inland, Denmark and Norway while other countries are ndingthe development and implementation o social activation more prolematic.

In Seria, as in all countries, when seeking solutions to the multiple prolems o the disad

vantaged, there is no one single responsile agency or state ody, with the required services or


9/136

8

expertise, where all o these prolems can e addressed. As a result, in order to access the required range o services, disadvantaged people have individually to contact many statutory andvoluntary odies in dierent geographical locations. The cost o seeking out these various stateand non state odies or help has traditionally een orn y the vulnerale groups themselves,and oten overureaucratic administrative application processes and limited geographical access to services has led to these costs eing seen as quite sustantial y the clients themselves.

Also while individual services e.g. social services and employment services may indeed unction eectively in their own right, and provide eective services to their clients, when consideredmore holistically gaps or duplications in services, can e seen. Services separately also providean incomplete appreciation o each individuals or amilys needs as a whole, which can lead toineective responses to individual issues. Thereore, despite providing good individual services, alack o eective coordination can sometimes mean that the comined enet o those servicesor those who need them most is less than it should e. It is this situation that necessitates therequirement or interagency collaoration and cooperation.

The solution to the holistic prolems o disadvantaged groups takes us eyond partnershipand into the more complex and demanding area o service integration. It means aandoning thesilo approach (everyone working solely within their own conned area o responsiility) and the

ragmented administration o national and local services. or many European countries it hasmeant the estalishment o multiagency teams at national, regional and local level, workingunder an integrated management structure, with shared udgets, programmes and ojectives awhole system approach, with a single key worker/Case Manager who has responsiility or coordinating the dierent agencies and proessionals involved.

Dierent degrees o service integration can e ound across Europe particularly etweenthe health and social sector, ut also etween the social and employment sector. It is useul toview these dierent levels o service integration as a ladder, which provides a useul visual aid inwhich to discuss this issue. The ladder suggests a progression upwards rom almost no attemptat integration, through approaches o coordination, cooperation and collaoration, to integration.The levels are not mutually exclusive as each level includes one or more o the components o the

other levels. O course real integration is stronger than other related terms such as joint working,partnership, collaoration, networking, which may e understood as important means to the endo service integration ut, on their own, are rather less than what is required.

Level 1 o the integration ladder is o course a complete separation/ragmentation o services, ollowed y level 2 ad hoc, limited, reactive cooperation in response to crises or other pressure, level 3 multidisciplinary teams o proessionals, level 4 planned and sustained servicecooperation and coordination oten acilitated through ormal networks or partnerships, Level5 agency or service partnership; level 6 multi service agencies with single location or assessment and services (oten characterised as onestop shop, where service clients access oneuilding or integrated services, including assessments and Individual Action Plans (IAPs) (e.g.,UK, inland, USA, The Netherlands); Level 7 whole system working not necessary throughoutthe whole o a country (e.g., inland, Denmark and Norway), and level 8 Integration o centralgovernment ministries and policies.

Using the concept o a ladder also allows us to consider where Seria is currently placedin terms o levels o coordination/cooperation and integration o social and employment services,in the wider European context. It is also important to consider that integration can e vertical andhorizontal at oth a macro and micro level.

based on our research there are also a range o specic components that can e oundwithin good examples o cooperation/coordination and integrated service models: service gateways and eligiility criteria; a client advocate (Key Workers/Case Manager or Personal Adviser);systems or managing Case Managers/Personal Advisers workloads numer o cases andprotocols; multidisciplinary team working; comprehensive single or joint assessment o need;individual action plan or service planning; requent Case Manager/Personal Adviser and client

progress reviews; mapping o services availale; inormal Signposting systems; active reer


10/136

9

ral networks and use o standardised reerral orms; good induction programmes or clients;atercare and active ollowup; outreach; and standard client inormation orms and integratedinormation systems/data gathering.

There is, however, a lack o hard empirical evidence proving that integration o services actually works. Evaluations have een ale to answer the question how many, and who are most likelyto enter employment ater leaving a social activation programme, ut are less successul in tellingus whether these participants are etter o than they would have een otherwise. It is noticealethat the USA and UK have een etter at answering this second question as a result o manylargescale randomised controlled trials in dierent geographical areas.

Taking all o the research into consideration there are a numer o preconditions or goodservice integration:

A clear strategic ocus . ormalised partnerships, and an agreed clear strategy, are dening eatures o eective local and regional cooperation in a numer o countries (Denmark,Canada, UK);

Strategic leadership and support. Leadership o Pulic Employment Services and othercentral government agencies is vital to making interagency cooperation work;

The importance o organisations and people in partnerships. The est examples o inter

agency cooperation appear to ring together proessionals with dierent ut complimentaryresources and expertise. or example the Pulic Employment Servicehealth service partnerships that have een a key eature o Pathways to Work in the UK, and some o the moreeective onestop shop models there and elsewhere.

Capacity or cooperation and mutualism. Organisations and individuals involved in partnerships need to have oth the authority and the fexiility to engage in mutual decisionmaking;

Organisational complimentarity, colocation and coterminosity (i.e. same or coincidentoundaries or service delivery (belgium; Canada; rance; Norway, inland);

Incentives or partners and interdependency or mutual enet. Pulic EmploymentService ocials will only e ale to draw other stakeholders into employaility partnerships

i they can demonstrate that there will e enets or all partners; andThe value o action and outcomeoriented procedures. Eective partnerships are ormedout o a need or action, and ocus on achieving agreed outcomes. Good practice in interagency cooperation has tended to e characterised y partners undertaking joint action toachieve measurale goals as articulated in annual action plans (Denmark and UK)

Stemming rom the research we can identiy a numer o lessons learned. The need to:ully understand how the existing services that you want to integrate, currently work;be clear aout your ojectives or integrating services;be clear aout your target group/s and target services to meet their needs;Estalish coordination or integration approaches ased on partner equality;Ensure a ull, inclusive, open and transparent consultation process when designing integration services;Always pilot;Estalish accurate costing and resource udgeting or the integrated services;Recognise that success requires signicant levels o investment in developing humanresources;Give considerale attention to how to ensure eective access;Design coordinated/integrated services to e fexile;Allocate fexile unding udgets;Ensure active involvement o clients at every stage o service delivery;Develop clear and accurate client assessments and Individual Action Plans;Not coerce clients to participate in integrated services;

build client provider trust;


11/136

10

Provide client choice;Provide regular ollowup o clients, atercare, and review o progress, as a way o ensuring sustainaility o outcomes;Not orget the importance o involvement and communication;Make sure that outsourcing o any services is really justied; andDevelop an evaluation system or measuring eectiveness o service delivery and impact.

There is a real asis or cooperation etween the National Employment Service and Centresor Social Work in Seria in dealing with common client groups, due to the reormed organizational and methodological ramework in these services. The concepts o Case Managers and Employment Counsellor are ased on identical principles, so it is possile to develop a methodologicalramework or cooperation in dealing with the clients who appear in oth services. Networking atthe local level, in the Serian research respondents opinion, is the est way to promote cooperation etween the National Employment Service and Centre or Social Work, and other entities thatdeal with the unemployed.

All representatives o the National Employment Service and the Centres o Social Work whoparticipated in the research recognized that the clients that they oth nd most dicult to help

are the clients they share. In spite o this, there is an almost complete lack o cooperation whenaddressing their needs. In reality young people within the social protection system oten, atercompleting ormal education or vocational training and reaching maturity, cease to e a Centreo Social Work concern and ecome the responsiility o the National Employment Service.In addition, ecause o years o nonrecognition o this prolem in social protection and the lacko appropriate training and timely preparation or youth empowerment, young people who wentthrough one door out o the system o social protection, very soon entered again through theother door into the same system, this time as social enet clients.

I we were to position the current practice in Seria on the integration ladder it can e concluded that many o the uilding locks that are seen within the European integration models arealso present in Seria e.g., client ocus, Case Managers and Employment Counsellors, Individual

Service Plans, Individual Employment Plans, management o cases, comprehensive assessmentand proling systems, some level o reerral systems, some asic levels o multidisciplinary teamworking, and crosssectoral cooperation (mediation o Case Managers in National EmploymentService cases o employment or individual, particularly vulnerale cases clients o Centres oSocial Work, is good practice in Vranje, Nis, Stara Pazova). However while many o the uildinglocks or an integrated service are clearly in place, they constitute relatively new practices, andare not equally applied across Seria, and certainly not on an intersectoral asis. As a result sothe current system would e est classied as Level 3: Multidisciplinary teams o proessionals, and in some locations limited to Level 2: ad hoc, limited, reactive cooperation in response tocrisis or other pressure.

The Serian research ndings underline the importance o intervening with appropriate, coordinated multisectoral services (in education, employment and social protection) in order toprevent longterm youth unemployment. The length o time waiting or employment reduces thechance o employment, and with greater investments (unds, time) much etter results coulde achieved. Improving cooperation etween the National Employment Service and Centres orSocial Work involves recognizing the needs o client groups that are common to oth services inorder to develop a methodological ramework or the provision o new programmes and servicesor vulnerale groups o unemployed youth.

Thereore, a model is proposed with the overall ojective o strengthening and improving theposition o vulnerale groups o unemployed youth y implementing coordinated and integratedservices rom oth systems. This model would involve:

Clearly dening the criteria and achieving consensus on priorities in the provision o joint1.and coordinated National Employment Service and Centres o Social Work services to par

ticularly sensitive groups o clients to common target groups.


12/136

11

Providing consistent inormation to customers and employees in oth systems, improved2.access to inormation and ways to understand and use it (client inormation and reerral toNational Employment Service or Centres o Social Work services).

Development o new services, programmes and measures that promote the employment3.o vulnerale groups o unemployed young people.

Improving communication through hierarchical levels, inter and intraorganizationally.4.

We elieve that piloting o this model will enale Seria to gain some valuale experience andidentiy good practice activities that will assist the transition to Level 4 on the Integration Ladderin the medium term planned and sustained service cooperation and coordination oten acilitatedthrough ormal networks or partnerships.


13/136

12

INTRODUCTION

Employment and Unemployment in Europe

The ght against poverty and social exclusion is a central concern o the EU (European Union)and the Memer States. The EU employment guidelines have, since the launch o the EuropeanEmployment Strategy in 1997, ocused on prevention o overall unemployment. The Lison strategy (March 2000) also contained explicit goals or the next decade to modernise the Europeansocial model, invest in people, comat social exclusion and eradicate poverty y 2010. Throughthe EU Social Protection and Social Inclusion Process, the EU coordinates and encourages Memer States actions to comat poverty and social exclusion, and to reorm their social protectionsystems.

In spite o the importance given y the EU and Memer States to this issue there has eenno signicant or real progress in terms o reducing youth unemployment. More recently in 20062,

activation targets or young people were agreed y the Spring European Council, adding urtherimpetus to the EU ojective o increasing laour market participation, especially o the young.

Currently, almost 10 years ater the launch o the Lison strategy, one o the most alarmingsituations that can e witnessed across Europe, in part as a result o the nancial crisis, is the increasing level o youth unemployment as a percentage o the total unemployed. In the rst quartero 2009, the seasonally adjusted unemployment rate in the EU27 or those aged 1524 was 18.3%,signicantly higher than the total unemployment rate o 8.2%. In the EU27, 5 million young peopleare unemployed. The rate increased in all EU Memer States apart rom bulgaria, where it ellrom 13.9% in the rst quarter o 2008 to 13.5% in the rst quarter o 2009. The largest rises inthe youth unemployment rate were registered in Latvia (rom 11.0% to 28.2%), Estonia (rom 7.6%to 24.1%) and Lithuania (rom 9.5% to 23.6%), and the smallest in Germany (rom 10.2% to 10.5%)

and Poland (rom 17.8% to 18.2%), with rates ranging rom 6% in The Netherlands, to 33.6% inSpain. In the rst quarter o 2009, the unemployment rate had risen to 19.1% or young men compared with 17.4% or young women. Hence, in the EU27 as a whole, the rise in unemployment hasaected young men more than young women.3

In Seria, ased on the Laour orce Survey, the overall unemployment rate increased rom14% in Octoer 2008 to 15.6% in April 2009, with an overall youth unemployment rate o 40.7%;an increase rom 32.7% in 2008. or the age group 1564, the employment rate in April 2009 was50.8% (34.3% or women). The youth employment rate was 16.81%.4

In Seria, in August 2009, the ocially registered unemployment rate was 26.54%. The participation in the registered unemployed, according to the years o age is: 1524 years (13.9%) 2529years (12.80%), 3034 (12.58%), 4549 (12.02%), 5054 (12.005%) and 3539 (11.978%).5 In the sameperiod unemployment was 6.9% or young women and 7% or young men.

A key group o unemployed youth that remain invisile and dicult to target, are young people who are neither in employment, education, or training, nor are registered as unemployed,these are reerred to as the status zer0 group or NEET group (Not in Employment, Educationnor Training)6. This group are receiving increasing attention across Europe, they are economicallyinactive (out o the laour orce) and dicult to capture statistically. rom the data availale, it

2 Spring European Council (2006). new start within 6 months y 2007 and within 4 months y 2010.

3 Eurostat news release, 109/200923 July 2009

4 Repulic Statistical Oce, Seria Laour orce Survey 2007, belgrade 2009.

5 Repulican Statistical Oce, Seria. No 85, Monthly Statistics bulletin, Septemer 2009, Unemployment and Employment in theRepulic o Seria We Link: http://www.nsz.gov.rs/page/ino/sr.html?view=story&id=1937&sectionId=4

6 Maguire, S. & Rennison, J., (2005). Two Years on: The Destinations o Young People who are Not in Education, Employment orTraining at 16, Journal o Youth Studies (2) 8, 187201.


14/136

13

would seem that, in the 2024 age group, 20% o the inactive across Europe are not in educationor training.

or these young people it appears that coping with their everyday lie pressures is moreurgent and important than nding employment, education or training. Only ater prolems associated with these pressures, such as ad health, homelessness, drug addiction, immigration orsingle parenthood, are solved, through, e.g., provision o child care, health or psychological treatment, regulation o det, housing etc, do individuals start to deal with transitions to work7. Youngpeoples participation in education, employment and society is thereore aected y poverty, socialmarginalisation, discrimination and poor health. Disadvantage is also cumulative e.g., with lowersocioeconomic status and levels o education come higher incidences o physical and mentalhealth prolems.

In addition, the kind o jos young people do nd are atypical mainly xed term contractsand parttime work which has increased in some countries to well over hal o the youth laourorce (especially in inland, Poland, Slovenia and Spain). In Central Eastern and Southern Europeyoung people are most oten orced to accept atypical employment as the only opportunities availale, with undeclared work also playing an important role in Greece and Italy and increasingly inCentral Eastern Europe (CEE).8

The commitment o the Government o the Seria (GoS) to address the employment situationo young people ecause o their vulneraility and social exclusion is emphasized oth in the2002 Poverty Reduction Strategy Paper (PRSp) and the 2005 National Employment Strategy. Thepace o reorm has, however, een very slow in oth the employment, education and social sectors, urther compounding the prolems that the poor and socially excluded ace. In addition intersectoral cooperation is very limited, and is constraining the development o eective progressionroutes or all disadvantaged groups, including young people, rom education to employment androm social assistance to employment. Hence young people are leaving the education sector withno prospect o nding a jo and many poor and disadvantaged people are trapped in poverty orenets with no prospect o accessing either education, training or employment opportunities.

Active inclusion and social activation

In response to the nancial crisis and increasing unemployment levels, most European countries are paying more attention to active inclusion and social activation as policy responses. Indoing so they are asking themselves how to develop more employment riendly social protectionsystems or their most vulnerale citizens people who ace a multitude o complex prolems andare the urthest rom the laour market.

It is important to stress that oth active inclusion/social activation are viewed dierently indierent countries. In addition dierent national contexts have consequences or their aility totranser the concept o active inclusion/social activation into practice. There is, however, a highlevel o general agreement aout the concept o active inclusion/social activation, and recognitiono its multidimensional approach, with many countries viewing active inclusion/social activationas the only eective way to tackle poverty and social exclusion.

In terms o social activation the most successul countries are considered to e inland, Denmark and Norway while other countries are nding the development and implementation o socialactivation more prolematic. or example Spain, where estalishing national social policy is dicult ecause o the highly decentralised regional autonomy in setting social policy which leadsto high levels o variaility in social service provision across LSGs and regions. In newer MemerStates, such as Poland, one o the main prolems is simply a lack o resources to deliver activeinclusion/social activation services.

7 Weil, S., Wildemeersch, D & Jansen, T. (2005) Unemployed Youth and Social Exclusion in Europe: Learning or Inclusion?. Aldershot: Ashgate.

8 Walther, A. & Pohl, A., (2007). Thematic Study on Policy Measures concerning Disadvantaged Youth, Volume 1 European Commission.


15/136

14

or many countries, acing mass unemployment and increasing pressure on pulic expenditure, such as Seria and other countries in the region, active inclusion/social activation measures,and the development o integrated services, may seem a luxury, while urther employment creation is seen as an urgent priority (employment activation versus social activation).

Other countries argue that the high levels o unemployment and pressure on social protection spending, necessitate the need or more active inclusion/social activation measures and integrated services, as a way o spending pulic unds more eciently and eectively, and as a wayo decreasing the chance o the most disadvantaged, and urthest rom the laour market, eingcaught in the poverty or enet trap. Increasingly governments across Europe are developing improved policies to increase active participation.

A key question to ask, when considering the integration o services, is where on the Integration Ladder are we currently and what level o integration is most relevant to our country context?In this report we adopt the idea o an Integration Ladder rst used y Munday (2007) 9, whenreviewing the integration o health and social services across Europe. In Chapter 8 we will identiy where on this ladder we elieve Seria currently stands and what level should e the ocus ourther work when considering the integration o employment and social services in Seria. Evencountries like The Netherlands, started on the lower rungs o the ladder.

In all Western Memer States the move towards real systems o active inclusion and socialactivation has een a long transition, uilt upon a clear understanding o what has unctionedwell, or nor so well, in the provision o traditional services. In CEE counties, such as Slovenia andCroatia, until recently, employment programmes were ased on traditional, and limited models oActive Laour Market Programmes (ALMPs) e.g., training or work, counselling and employmentsusidies, with little attention even given to developing personal skills. These countries, as wellas others, have yet to ully understand the net eect o their existing models and are only nowturning their attention to how new active inclusion and social activation services, including integrated services can/should e developed. What needs to e clearly understood is that successulactive inclusion and social activation requires a longterm investment in human capailities andany change in the services provided should e ased on a clear understanding o what currently

works, or does not work, and or whom. Sadly, this is oten not the case.

Terms o Reerence

The International Laour oce (ILO) is currently providing technical assistance to the GoS,through the Joint Programme Promotion o Youth Employment and Management o Migration,implemented jointly with the International Oce or Migration (IOM), the United Nations Development Programme (UNDP), and the United Nations International Childrens Emergency und(UNICE). The Joint Programme aims to address youth employment and migration challenges ycomining employment and social policy ojectives and integrating them into longterm nationaldevelopment goals. The Programme also proposes to target disadvantaged youth especially returnees and their amilies through gendersensitive employment programmes linked to socialservices.

As part o this technical assistance this study was commissioned to review good practices inthe provision o integrated social and employment services targeting disadvantaged groups o thepopulation in Western, Central and Eastern Europe.

This work involved our specic tasks to:Review the existing literature and empirical analysis on the integration o pulic services1.

targeting groups at risk o social exclusion;Collect detailed inormation on the multisectoral service models availale in countries o2.

Western, Central and Eastern Europe (type, target groups, institutional arrangements, services provided, monitoring and evaluation results);

9 Munday, b., (2007), Integrated Social Services in Europe, Council o Europe.


16/136

15

Identiy lessons learnt and good practice in the estalishment o multisectoral/integrated3.service models and workfow management (needs assessment, outreach and treatment); and

Review the ndings o the research carried out in Seria and enchmark them against the4.good practices identied in Western and Central and Eastern Europe10;

In sumitting this report we would like to highlight two main issues with regards the Termso Reerence:

Activity a). There is a lack o hard empirical evidence that proves that integration o servicesactually works. In most o the research that we reviewed, the authors have made reerence to thepaucity o completed evaluations and hard evidence as to whether and to what extent integrationactually works in term o producing etter outcomes or service clients and or the service themselves. Munday (2007) reerred to this lack o evidence as eing the ig hole in the integrationmovement. Even researchers that looked at the integration o health and social services, an integration movement which started well eore the current move to integrate employment and socialservices, such as Julkenen (2005),11 concluded that studies reviewed tended to e: descriptiveand viewed rom an organisational perspective; stressed prolems rather than how the dierentintegration models actually operated; and outcomes and evidence were rarely ound in accounts

o integration activity, rom the only exceptions eing the UK and USA. Even the European Commission concluded that There is a relative lack o ormal evaluations o integration projects, andwhere they exist, not all are positive. Consequently, it is dicult to provide clear evidence o theenets o integration with scientic certainty12

Activity ). This study involved only desk research which proved an insucient method tocollect detailed inormation on multisectoral models. Also an issue has een the availaility odetailed inormation in English.

The output o this study is contained within this report, and structured as ollows:Chapter 1: Disadvantaged Groups: In this chapter we dene disadvantaged groups and

the main characteristics o disadvantage that aect young people. We will

urther explore the needs o disadvantaged young people or services.

Chapter 2: Activation and Integration o Services: In this Chapter we will examine whatis meant y social activation and active inclusion, provide denitions, the EUposition and look at what is driving the increased attention eing given tothese policy responses.

Chapter 3: Perceived barriers to Integration o Services. In this chapter we examinethe main issues oten raised y critics o integration processes.

Chapter 4: Integration Ladder: In this chapter we will examine the dierent levels oservice integration that can e ound across Europe and what denes eachlevel, using actual examples.

Chapter 5: Key Components o Integrated Service Models: In this chapter we examine someo the key components that can e ound in integrated service models such as:case management; reerrals; individual action plans; active ollowup etc.

10 A separate piece o research was commissioned to review current practices in providing integrated employment and social services in Seria.

11 Julkenen, I, (2005). Integrated social services in Europe approaches and implementation: a scoping research review, papercommissioned y the Council o Europe.

12 European Committee or Social Cohesion, Policy Guidelines or the Design and Implementation o Integrated Models o SocialServices, Strasourg, 7 Novemer 2006.


17/136

16

Chapter 6: Evaluation o the Eectiveness o Activation/Integrated Services.

Chapter 7: Lessons Learned: In this Chapter we look at the lessons learned and preconditions or eective interagency cooperation and integrated services.

Chapter 8: benchmarking o Seria and Proposed next steps.In addition to this report an Appendix was developed that contains details on all o the models

reerred to in this main report.


18/136

17

CHAPTER 1.DISADVANTAGED GROUPS

1.1 Denition o disadvantaged groups

Denitions o disadvantage vary rom country to country, ut generally across Europe the ollowing would e classied as eing the most disadvantaged or most vulnerale citizens in society:

Children and amilies;Elderly persons;Disaled persons (physical, mental and sensory);Youth;Lone/single parents;

Women, in relation to issues o gender and equality;people with ethnic or minority ackground, including Roma;Drug addicts;Exoenders;People with a history o mental health prolems; andLong term unemployed, especially 45+.

It is well documented that many o these groups experience multiple disadvantage e.g., people with an ethnic ackground, or immigrants, oten also have low skill levels and ace languagearriers.

1.2 Young people most at risk

In considering the specic characteristics o disadvantage in young people, those most likelyto experience long term social exclusion and/or extended periods o unemployment, again denitions across countries vary:

DenmarkIn Denmark disadvantaged youth are dened as young people etween 18 and 25 years old,

who are not in education or work. In addition young people whose lie situation suddenly changes,young people with a physical or psychological disaility, people who attend special classes or receive special education, people with multiple social prolems and not least ethnic minority youth,especially second generation immigrants.

inlandIn inland there is no codication or disadvantaged young people so denitions vary in re

search. As such the idea o disadvantaged youth is used very widely. or example, in research itaddresses those who are at risk o exclusion (marginalisation risk), in as much as uture potentialprolems can already e anticipated. A model o hierarchy is oten reerred to when talking aoutyouth at risk: Stage 1: Prolems at school and/or at home, Stage 2: ailure at school and drop

ping out o school (educational exclusion), Stage 3: Poor status on the laour market (exclusion


19/136

18

rom work), Stage 4: being part o a deviant suculture (uneducated, unemployed, poor), Stage 5:being part o a deviant suculture (criminals, alcoholics, drug addicts: placed in prison or otherinstitutions).

ItalyItaly also has no clear denition, however unemployed young people are dened as those in

dividuals, aged 1524, in search o an occupation who: 1. have at least made one active attempt tosearch or a jo in the 30 days preceding interview and are availale or work (or to start their ownusiness) within two weeks rom interview; or 2. will start a new jo within 3 months rom interview and are availale or work (or to start their own usiness) within two weeks rom interview,i it was possile to anticipate the inception date o the new jo. A prole o disadvantaged Italianyoung people deriving rom this denition may e summarized as ollows 13

age: 1524;gender: mainly emales;geographical region: concentrated mainly in the South; andworking condition: in search o rst occupation or longer than 12 months with intermittency patterns.

PolandThe term disadvantaged youth is not used in Polish social policy. The concepts in use include

children and youth living in poverty, youth with disailities up to the age o 24, young people elowthe age o 18 who ail to comply with oligatory schooling, young orphaned people elow the age omaturity with no amily in the iological and social sense, legally and institutionalised young people protected y the state, unemployed youth aged 1517 and 1824 (school leavers, graduates),demoralized youth under the age o maturity (alcoholism, drug addiction, prostitution, juveniledelinquency and crime). With relation to the key actor o disadvantage, which is unemployment,youth is statistically dened and researched at dierent age groups: 1524 years old (Central Statistical Oce), 1926 (y market research companies, pulic opinion pollsters), 1318 and 1824 in

ocial government programmes (National Action Plan or Employment), as well as young peopleup to the age o 25 (EU projects such as EQUAL).

National Reports Thematic Study on Policy Measures concerning Disadvantaged Youth, Study,Volume II, commissioned y the European Commission, DG Employment and Social Aairs in theramework o the Community Action Programme to Comat Social Exclusion 2002 2006

We Link: http://ec.europa.eu/employment_social/social_inclusion/docs/youth_study_annex_en.pd

In the National Action Plans or Employment and Social Inclusion 20042006 young unemployed school leavers in general are included in the most vulnerale groups and Roma and disaled young people receive special attention.

In spite o these dierent national denitions the ollowing groups o young people (1525)can generally e considered those most at risk:

Those who achieve no or low levels o qualications (e.g., dropped out o elementary orsecondary school, did not pass any training or retraining course);Those who lack asic skills (numeracy and literacy);Teenage parents;Young people leaving institutional care (state or local authority);Young people with disailities with special educational needs (mental, physical or sensory);Males more than emales;

13 Reyneri, E. (1996) Sociologia del mercato del lavoro. Mulino: bologna.


20/136

19

Ethnic minorities (in the west mainly Arican/West Indian descent in Central and EasternEurope, mainly Roma);Those rom lower socioeconomic ackgrounds (linked either to amily or geographicalregion);Those with special educational needs; andThose associated with poverty and general amily disadvantage.

In many countries even eing young is considered a disadvantage and when comined withlow or no qualications or a disaility, this is considered a doule disadvantage.

Increasingly more attention, oth in the literature and in the social activation polices o governments, is eing given to young people reerred to as status zero14 or NEET, which are predominantly young people who come rom a disadvantaged social and economic ackground.

1.3 The prolems vulnerale groups ace

There is considerale research to show that, even within specic vulnerale groups, individuals do not all suer rom the same prolems. or example some disadvantaged young peopleare involved in crime, some are unemployed, some are employed ut on low incomes, some havehighly ractured lives, or have prolems with housing, schooling, health etc.

Research has shown that vulnerale individuals are usually aected y one, or more o theollowing prolems:

Poverty, worklessness, or poor jo prospects;Dependency on enets and other state support;Poor or no housing;

Poor health;

Crime, either as victims or perpetrators o crime;Poor school attendance linked to poor attainment o qualications;Poor academic and social skills;Poor parenting;Domestic violence;Drug and alcohol ause;Young or single parenthood;Unstale marriages; andLow aspirations, low sel esteem, low motivation and aimlessness.

All o these actors infuence a persons aility to ecome employed and even to meaningullyengage in education, training, personal development opportunities, or society in general.

In Seria there are individuals who suer rom these various orms o disadvantage, or many,as in other European countries, these prolems are so longterm they can e classied as generational, encountering the same disadvantage as their parents did eore them. These peopleare at highest risk o ecoming and remaining social excluded.

The experience o the UK Employment Zones (EZs)15 is useul to consider here in terms o theclients Personal Advisers (PAs) considered harder to help:

14 The emergence o status zer0 youth was identied y Williamson (1997) who ased his research on the experiences o youngpeople in south and mid Glamorgan (Wales), the latter eing one o the poorest regions in britain. Williamson, H. (1997). Status zer0youth and the underclass: Some considerations. In R. MacDonald (Ed.), Youth, the underclass and social exclusion (pp. 7082). London & New York: Routledge.

15 Employment Zones were introduced in the UK in April 2000 in 15 areas o the UK experiencing high concentrations o long termunemployed and mostly deal with clients who have not managed to nd positive outcomes through other UK activation programmes.


21/136

20

UK Employment Zones16

Experience o PAs rom the UK EZs was that harder to help clients existed among all clientgroups and across all levels o skill, experience and motivation. What appears to e importantis allowing PAs the discretion to decide which clients are harder to help, and how to help them.However the clients they were nding it hard to help were:

people with multiple employment arriers asic skill deciencies, no qualications,limited or no work experience, criminal record;people with drug, alcohol or mental health conditions;graduates and proessional people;well qualied and experienced people with a rigid or narrow view o acceptale employment;highly motivated individuals with serious or long term arriers e.g. a chronic healthprolem, complex caring responsiilities, English language needs, unspent criminalrecord;those with chaotic or unstale liestyles homeless, on proation, drug taking, criminalactivity etc; anddicult clients with no ojective arriers ut with conrontational personalities or a

negative attitude to work.

16 Department or Work and Pensions. Research Report No 399. Phase 2 Evaluation o Multiple Provider Employment Zones: Qualitative study. The Policy Research Institute, Leeds Metropolitan University (2006).


22/136

21

CHAPTER 2.ACTIVATION ANDINTEGRATION Of SERVICES

2.1 Integrating Services

Integrated working is like putting a large puzzle together, whenall o the pieces are in place you can see the igger picture.

When you make a jigsaw you usually look or all o theedges rst, this indicates where the oundary o your picture sits.You also need tolook careully at how all the pieces join together

UK Redridge Childrens Trust

I we consider the list o prolems disadvantaged people ace, identied in Chapter 1, we cansee that attempts to solve them can, at least potentially, ring young people into contact with stateodies or agencies responsile or health care, social care services, education, employment services, enets systems, police, local sel governments (LSGs) or the state re pulic housing and awide range o NGO service providers. It is also important to note that a disproportionate amounto pulic unding is spent on maintaining these odies and the services they provide.

When the issue o integration is discussed it usually reers to the integration o two or moreo the ollowing pulic services: social, health, education, employment and cash enets.

In Seria, as in all countries, when seeking solutions to the multiple prolems o the disadvantaged, there is no one single responsile agency or state ody, with the required services orexpertise, where all o these prolems can e addressed. As a result, in order to access the re

quired range o services, disadvantaged people have toindividually contact many statutory and voluntary odiesin dierent geographical locations. The cost o seekingout these various state and non state odies or helphas traditionally een orn y the vulnerale groupsthemselves, and oten overureaucratic administrativeapplication processes and limited geographical accessto services has led to these costs eing seen as quitesustantial y the clients themselves.

While individual services e.g. social services andemployment services may indeed unction eectively intheir own right, and provide eective services to theirclients, when considered more holistically gaps or duplications in services, can e seen. Services separatelyalso provide an incomplete appreciation o each individuals or amilys needs as a whole, which can lead toineective responses to individual issues. Oten agencies and their services overlap with one another ratherthan working collaoratively, as can e seen rom theollowing UK example:

Thereore, despite providing good individual services, a lack o eective coordination can sometimesmean that the comined enet o those services or

those who need them most is less than it should e.


23/136

22

Services also have dierent rules and regulations o access which individuals need to dealwith and, where they exist, even dierent key workers/case managers (CMs) and Individual Action Plans/Service Plans, concepts we will examine later in Chapter 4. Many see these existingservice systems as designed to meet the needs and priorities/targets o the organisations rst,and the needs o the clients second.

It is this situation that necessitates the requirement or interagency collaoration and cooperation. This is even more the case currently, as the unemployment levels continue to increaseacross Europe and as increased pressure is placed on pulic spending. but even in periods ohigh unemployment and a strong demand or laour, there is a particular need to develop moreintegrated and eective activation services to ensure that people with multiple prolems are aleto take ull advantage o the various support options that are availale to them and also the socialintegration and employment opportunities oered.

The solution to the holistic prolems o disadvantaged groups moves eyond partnershipworking into the more complex and demanding area o service integration. It means aandoningthe silo approach (everyone working solely within their own conned area o responsiility) andthe ragmented administration o national and local services. or many European countries it hasmeant the estalishment o multiagency teams at national, regional and local level, working un

der an integrated management structure, with shared udgets, programmes and ojectives awhole system approach, with a single key worker/CM who has responsiility or coordinating thedierent agencies and proessionals involved.

In Europe there has een a clear shit over the last 10 years towards more integrated servicesand towards viewing vulnerale individuals and amilies and the prolems they ace more holistically. These integration initiatives are oten reerred to as joined up government or the whole ogovernment as they propose to increase the capacity o pulic administrations y working acrossexisting policy areas to achieve a shared goal and get a etter grip on complicated issues17. Therehas also een a stepped increase in the numer o European conerences and research projectson integration issues. This has led to the development o more integrated services, and preventative services, the philosophy eing that the earlier a possile prolem can e identied and ad

dressed the more chance there is that the prolem will not occur nor have a negative impact onother ollowon services. One o the good examples o this approach is the Sure Start Programmein the UK, which among other things provides employment progression paths or parents usingother sure start services.

Unortunately many o these integrated services, even in Western Europe, are not yet integrated into mainstream services, which are still working sustantially in their traditional silos,and are currently acing the challenge o ringing aout a systematic transormation o mainstream services y uilding on the approaches pioneered y these integrated projects, so that theycan develop a much more coherent overall approach to individuals and amilies at risk.

Countries outside Europe like the USA and Canada have a long tradition o integration oservices, especially etween the health and social sectors. Canada, like many countries, experienced a prolem in providing organised, coordinated and steady passage o individuals throughvarious elements o the health care and social services system, particularly with regard rail elderly people:

Integration o Health and Social Services in Canada PRISMA a new model o integrated servicedelivery or rail elderly people18

Many actorsdemographic (accelerated ageing o the population), social (reakup oamilies, children moving away to nd work), economic (low income women living alone), health

17 Christensen, T., and Lagreid, P. (2007). The WholeoGovernment Approach to Pulic Sector Reorm, Pulic AdministrationReview, 67 (6): 10591066.

18 Heert, R., Durand, P.J., Duuc, N., Tourigny, A., and the PRISMA Group. PRISMA a new model o integrated service delivery

or rail older people in Canda,, International Journal o Integrated Care, March 2003. We link: http://www.nci.nlm.nih.gov/pmc/articles/PMS1483944/ .


24/136


25/136

24

2.2 Social and employment activation

As we have already noted the development o activation polices has gained ground in Europe,and along with this has come a general level o consensus with regard to what activation and integration means.

The European Anti Poverty Network (EAPN) says that the aim o activation is social inclusionand proessional moility y empowering the claimants to improve their competencies and skills,physical and mental health, to estalish social contacts, improve the eeling o participation andcitizenship etc. (help to selhelp)... Activation is an investment in human, social, psychologicaland cultural resources. The aim o activation is laour market integration ut also social integration in a wider sense. The strategy is road, taking all the multicomplexity o prolems intoconsideration, and oering tailored intervention or individual needs and expectations. As such(social) activation can include excluded groups with the most serious prolems, who are urthestaway rom the jo market, including alcoholics and drug addicts, people with health or psychological prolems, single mothers with little support, immigrants with poor language skills etc.21

The EAPN elieve that activation also involves a wide range o options or people who cur

rently claim enets including: training, education, susidised employment, work placement,group activities, language learning skills etc.

beyond this, activation serves the roader goal o reaking through social isolation and inactivity and improving the employaility o marginalised groups on the laour market. The EAPNview activation as a continuum with laour market activation at one end and social activation atthe other and state that good activation is an amitious ut relevant approach.

Similarly the European Social Network denes social activation as covering policies andstructures which connect people at risk o poverty and exclusion to jos and other meaningulorms o activity in the community22.

In a study in Nordic countries, activation was dened as a road range o policies and measures targeted at people receiving pulic income support or in danger o ecoming permanently

excluded rom the laour market. Such policies and measures cover various orms o education,vocational training or retraining, group process, coaching and practice programmes and eventhrough the channelling o nancial resources.23

Social activation services have already een introduced in a numer o countries (or example, The Netherlands, Norway, Germany, inland, the USA, UK and Sweden). Many have advancedmodels o cooperation and integrated services and several have adopted joint oces (onestopshops) where the complex situation o service clients can e assessed in its totality. These modelsand the tools they use to acilitate these models (assessment, case management, individual action planning etc) will e examined in Chapter 4 and 5.

In the recent European Commission study (Walther and Phohl 2007), activation was denedas a comination o approaches o personalised counselling with incentives or active jo searchand/or training. Incentives it was stated could e negative in terms o reducing enet levelsand applying sanctions such as cutting or suspending enets in the case o noncompliance orpositive in terms o choice etween dierent options or activation allowances exceeding enetlevels.

Relating the dimensions o incentives and counselling together the authors identied vedierent models o activation:

supportive activation ased on universal enet entitlements and counselling aimed atpersonal development in a holistic perspective; priority on education (Denmark, inland);

21 European Anti Poverty Network Can Activation Schemes Work or Social Inclusion?, Criteria or Good Activation (Novemer2005). We Link: http://www.eapn.eu/images/docs/activationpaper2005_en.pd

22 European Social Network. Social and Employment Activation, rieng paper or the European Social Network, 2006.

23 Drpping, J.A., Hvinden, b., Vik, K. Activation policies in the Nordic countries, chapter 6, in: Kautto, M., Heikkill, M., Hvinden,b., Marklund, S., and Ploug, N. (1999), Nordic Social Policy: Changing Welare States, Routledge: London and New York.


26/136

25

workare (coercive activation) characterised y a priority o employment; counsellingaimed at recruitment and controlling compliance y sanctions (UK, partly Slovakia);

limited activation due to limited enet entitlements; counselling primarily as means orecruitment, partly complemented y multidisciplinary and coordinated services (Austria,Portugal, Slovenia, Spain, Slovakia; in bulgaria and Romania low coverage o PES); and

no asis or activation due to low coverage o PES and virtual lack o enet entitlementso young people (Greece, Italy).

2.3 European Commission perspective support to activation and integrated services

An important purpose o service integration is to improve access to social rights,reduce social exclusion o vulnerale groups, and contriute to the overall ojective o

strengthening social cohesion. In developing integrated services, an essential

consideration is the mainstreaming o issues such as gender, ethnicity, age, disaility and poverty24.European Commission

Active inclusion is a policy strongly supported y the EU. In their communication pulished in2007 they stated that The ght against poverty and social exclusion relies heavily on the integration o people urthest rom the laour market. Persistence o large numers o people at risk opoverty and excluded rom the laour market represents an inescapale challenge to the ojectiveo social cohesion enshrined in the European Union treaty. The goals o the Lison strategy cannot e realised i we do not make the est use o the human resources present in our societies.To promote the integration o the most disadvantaged people a comprehensive active inclusion

strategy, entailing the provision o an adequate level o income support with a link to the laourmarket and etter access to services, is needed. This is to ensure that social protection policieseectively contriute to moilising people who are capale o working while achieving the widerojective o providing a decent living standard to those who are and will remain outside the laourmarket.25

The European Commission advocates or an integrated approach to active inclusion, witheective coordination and cooperation etween pulic agencies leading to the enhancement oservices. In addition that active inclusion policy should address the complexities o multiple disadvantages and the specic situations and needs o the various vulnerale groups.

They advocate that active inclusion support the laour market integration o those who areexcluded rom or experience disadvantage in entering the laour market. rom the EU perspective this generally includes the ollowing groups o people:

Older people (aged 50 and over);Women;Young people (aged 15 to 24);Migrants and ethnic minorities;Lone parents;People with disailities; andPeople with no skills or qualications.

24 European Committee or Social Cohesion, Policy Guidelines or the Design and Implementation o Integrated Models o SocialServices, Strasourg, 7 Novemer 2006.

25 European Commission, 17.10.2007 COM(2007) nal Modernising social protection or greater social justice and economic cohesion: taking orward the active inclusion o people urthest rom the laour market


27/136

26

Activation is thereore a key notion in the European employment strategy and activation policies and programmes are one o the main instruments to promote the transition rom welare towork and to (re)integrate people dependent on social insurance enets or social assistance intothe laour market26.

The European Commission Joint Reports on Social Protection and Social Inclusion review theprogress made in Europe on the new agreed goals o the open coordination o social protectionand inclusion policies. Since 2002 the reports have made reerence to activation programmes, eective linkages etween social protection, employment and education, and the need or enhancedintegration o services. Perhaps not surprisingly it is the 2009 report that has said most on thissuject:

Joint Report on Social Protection and Social Inclusion (European Commission 2009)27

Comprehensive active inclusion strategies that comine and alance measures aimed atinclusive laour markets, access to quality services and adequate minimum income, need to eimplemented.

As in the 2006 National Strategic Reports (NSRs), most Memer States have active inclu

sion among their priorities. However, inclusive laour markets, access to quality services andadequate income are dealt with separately in most cases, whereas most disadvantaged peoplesuer rom multiple disadvantages and integrated responses are essential. Several countrieshave taken steps to ensure that the purchasing power o minimum incomes is maintained. Itremains essential to design etter links etween outowork enets and inwork support, in order to create the right incentives, while at the same time ensuring adequate income support andpreventing inwork poverty. Coordinated social and employment services are needed to tackle ostacles to ull and lasting participation in society and the laour market. So more attention muste paid to optimising the interaction etween the three strands and ensuring that due account isgiven to each.

The est saeguard against poverty and social exclusion is a quality jo or those who can

work. or those or whom work is not a real option, adequate income support and social participation must e ensured. Particularly relevant measures taken y many Memer States, includethose that support jo retention or speedy reentry into employment, and promote adaptaility, yoering opportunities to acquire or upgrade skills and developing personalised action plans outlining pathways to the laour market. Attention should e paid to supporting jo opportunities orthe most vulnerale, including in the social economy. Most NSRs refect the importance o accessto quality services or tackling the social hurdles that hinder peoples sustainale inclusion.

The report also states that the most adly hit victims o the crisis will e those householdswhere readwinners are at a disadvantage in the laour market and in society. Hence the needor social saety nets which are tight enough to prevent people rom alling through and eectiveenough to launch them ack into active social and laour market participation.

In 2006 the European Commission launched a new communication concerning action at theEU level to promote the active inclusion o people urthest rom the laour market:

Active Inclusion: a new communication rom the European Commission28

The Commission counts aout 8.5% (31.7 million people) as constituting a sizeale hardcoreo people with little prospect o nding a jo, a gure including the longterm unemployed and

26 Van berkel, R., and Willirord, G. (2007). New orms o governance in welaretowork policies. Work in progress. Paper prepared or the 2nd RECWOWE conerence, Warsaw, June 2007, strand 4.

27 http://ec.europa.eu/employment_social/spsi/docs/social_inclusion/2009/cons_pd_cs_2009_07503_1_en.pd

28 Communication rom the European Commission: Concerning a consultation on action at EU level to promote the active inclusiono the people urthest rom the laour market [COM(2006)44 nal] We Reerence: http://ec.europa.eu/employment_social/consultation_en.html


28/136

27

people acing arriers to work: disaility, chronic illness, lack o asic skills, discrimination and/or amily responsiilities. The Commission judges that comined social protection and activationschemes (including jo training with private rms and susidised work experience) have made apositive impact, particularly among young people. It recognises that activation gives people a senseo selworth and a more positive attitude to society. The role o social services is also validated:adequate access to services, it states, orms a asic precondition or eing availale or work.

The Commission puts orward a policy mix, which it calls active inclusion and whose components, which should e interlinked, are:

employment services oering access to the laour market and to training or schemes toprepare people or workadequate social protection and income support or those in needaccess to services which remove arriers to work, e.g. health care, child care, educationand training opportunities, ICT (inormation and communication technologies) training,fexile working, counselling and support.

The ght against poverty and social exclusion relies heavily on the integration o people ur

thest rom the laour market. Persistence o large numers o people at risk o poverty and excluded rom the laour market represents an inescapale challenge to the ojective o socialcohesion enshrined in the European Union treaty. The goals o the Lison strategy cannot erealised i we do not make the est use o the human resources present in our societies.

To promote the integration o the most disadvantaged people a comprehensive active inclusion strategy, entailing the provision o an adequate level o income support with a link to thelaour market and a etter access to services, is needed. This is to ensure that social protectionpolicies eectively contriute to moilising people who are capale o working while achieving thewider ojective o providing a decent living standard to those who are and will remain outside thelaour market.

A pulic consultation exercise was launched in eruary 2006 and ased on the results o

this rststage consultation and the initiatives that ollowed, including the indepth review y theSocial Protection Committee o the National Action Plans to comat poverty and social exclusion,the Commission called in 2007 or a renewed commitment to social justice y proposing a new,holistic approach to tackling poverty and promoting inclusion o people urthest rom the laourmarket.

In addition, in Spring 2005 the European Council adopted the European Pact that providedmomentum or a crosscutting perspective on youthspecic aspects o disadvantage and o inclusion and active laour market policies, with one o the aims eing to renew employment pathways or young people.


29/136


30/136

29

3.2.3 Management Inormation Systems (MIS)

Existing MIS while eective at running single services are oten not capale o eing adaptedor integrated with other service systems, or even interacing with other systems. Developmento integrated MIS and a reporting system that can determine eligiility and track individuals oramilies access to joint services is oten costly, and oten investing in single systems is not practical. Even developing interaces may require the way data is entered or what data is entered toe amended. CMs may e required to enter inormation repeatedly, e.g. social services, socialenets and employment service inormation systems are usually separated and may even eadministered y dierent levels o Government. CMs cannot tap into a single system to nd out ithe individual is accessing all o these services. CMs may also e required to enter inormation repeatedly to determine eligiility or a variety o services i the system is not designed to determineeligiility ased on a single set o data entered into an integrated inormation system. Similarlythey may have to enter data repeatedly i the systems cannot work together to extract the requireddata elements that must e reported.

3.2.4 Perormance indicators

One o the major administrative developments within service delivery over the last decadehas een the introduction o Perormance Indicators (PIs), the meeting o which is oten tied tounding allocations. These PIs are requently estalished or individual services and are oten designed to measure individual service perormance targets. This perormance driven approach cane a arrier to the willingness o proessionals to integrate and can discourage integration.

Oten PIs across services are not consistent and, though not directly intended, may discourage services rom working together to serve the needs o individuals. or example, an agency col

lecting child support (nancial support), traditionally rom athers, may have a PI measuring childsupport collections, ecause o this it may nd it dicult to allocate resources to deliver outreachservices to unemployed athers or to estalish domestic violence protocols that make it easier ora woman to disclose domestic violence and pursue child support collection more saely.

PIs need to e developed or amended to encourage coordination and integration e.g., a childprotection service which wants to limit the duration o stay in oster care may work closely withthe drug ause treatment centres to overcome that arrier to the child returning to their iological amily.

3.2.5 Managerial or administrative issues:

When considering the integration o services a whole range o administrative and managerialissues need to e considered:

Who is ultimately responsile or administering the service?Will one CM or a multidisciplinary team undertake the required assessment?Will there e a Key CM or a CM or each service and individual client?Will all services e colocated? I not, how will the integrated services e delivered?What expertise do sta need to e ale to deliver integrated services eectively?Will there e one Individual Action Plan (IAP) or one plan per service utilised?How to ensure that multi IAPs are developed in a way that is complimentary?How are assigned udgets managed?

How and to whom is perormance reported?What targets and perormance indicators are relevant or integrated services?


31/136

30

3.2.6 Cultural dierences etween organisations

Every single integrated service has had to address the issue o cultural dierences etweenthe organisations delivering the services that are planned to e integrated. Views and opinions onhow services should e delivered are oten entrenched. Oten dierent approaches on how individuals are approached are apparent e.g., protecting the child rom the parent versus helping theparent overcome a prolem that might endanger a child.

The European Commission states that a common working culture o shared principles, ojectives, planning, responsiilities, accountaility and concrete national policies with legislation,namely or national programmes is a precondition or eective integration o services29

3.2.7 Political considerations

There are oten political considerations that interere with eective integration o services.

The European Commission, in the same document, states that one o the preconditions to etaken into account when integrating services is a political environment which is avourale tointegration and is supported y important decision makers and a willingness among leaders toput common interest eyond the needs o their own organisation and a commitment to nd solutions.

3.2.8 Level o decentralisation o services

There may also e arriers to eective integration ased on the level o government: na

tional, regional, local, where delivery o specic services is allocated and how eectively these dierently levels work together. Also to what degree responsiility or the dierent levels o servicesis decentralised.

In some countries like Spain where the level o decentralised responsiility or social policyis highly autonomous in the regions

Date post:	02-Apr-2018
Category:	Documents
Upload:	anon725694055
View:	217 times
Download:	0 times

Integrated Service Delivery_publication

Documents