- 2019Implementation
- 2020Implementation
- 2021Completed
Background
The Triennial plan for preventing and reducing long-term unemployment (LTU) (Reincorpora-T 2019-2021) is a 3-year comprehensive employment plan for preventing and reducing long-term unemployment. It is part of the Sustainable development goals of the UN 2030 agenda. This plan seeks to address one of the challenges facing public employment services, to promote measures to curb the high rates of unemployment with marked territorial, gender and age characteristics, favouring an adjustment in social inequality, which increased sharply during the years of crisis but which has not managed to be reduced sufficiently during the period of economic recovery.
Objectives
The objectives of the plan are to:
- create a top-quality framework for employment and dignified work;
- be the main actors of their own qualification and labour market insertion process;
- increase their qualifications and employability by acquiring more professional skills;
- be part of a new economic model based on social sustainability, productivity and added value;
- provide adequate and individualised assistance from the public employment services;
- avoid horizontal segregation and the gender wage gap;
- fight despair among those who give up job search and hope of finding it;
- provide special assistance to specific vulnerable groups.
Description
The Reincorpora-T plan 2019-2021, approved in April, aimed at the long-term unemployed, is one of the measures implemented to contribute to the development of a new, more inclusive production model and is committed to intelligent, sustainable and inclusive growth as set out in the Europe 2020 Strategy. It considers and recognises, through active employment policies, the labour potential of the active population that is related to situations of long-term unemployment or precarious employment.
The plan is organised around 6 axes: guidance; training; employment opportunities; equal opportunities in access to employment; entrepreneurship; and improvement of the institutional framework. The Reincorpora-T plan has a total budget of EUR 4000 million, of which 781.2 million come from 2019.
This plan is divided into six axes, in line with the Spanish Employment Activation Strategy 2017-20, approved by Royal Decree 1032/2017, of December 15. In turn, each axis has objectives and measures. In the training axis, the following objectives and measures can be highlighted:
- to coordinate a 'system of lifelong learning' throughout a person's working life in order to cope with the continuous process of change and transformation;
- to support vocational training in rural areas, especially for women, facilitating training for a professional aptitude certificate and making the requirements for setting up training centres more flexible;
- to promote training with commitment to hire LTU people through agreements with companies;
- to strengthen the information and guidance services of the Professional aptitude certification system to support the professional retraining of LTU people, improve their employability and reduce unemployment duration;
- to promote: training in key skills, included in the Catalogue of training specialities; training in digital skills, to respond to the new needs arising from technological, digital and production change processes; and training for qualification in priority sectors and public interest sectors, such as environmental sustainability and energy transition linked to measures to combat climate change, agricultural qualification, forestry and rural employment, and in the field of care, personal assistance, community and dependence services.
Order TMS/941/2019, of 6 September, territorially distributes additional subsidies in the area of active employment policies, including funds for the implementation of the Action plan for youth employment 2019-21 and the Triennial plan for preventing and reducing long-term unemployment. These funds are allocated to strengthen the network of staff dedicated to career guidance for employment and job prospecting, which are mentioned in both plans.
At both State and regional levels, the recruitment of counsellors is under way.
The plan is being implemented and several follow-up meetings of the Reincorpa-T plan have been held, at which progress was reported on most of its measures, although the pandemic and the state of alert, with its serious repercussions on the labour market, have affected the evolution of some of them.
With the hiring of over 1 400 guidance staff from the 3000 network, the possibilities for career guidance of the LTUs and specific programmes for this group have been strengthened. Faced with the limitations of direct attention due to the pandemic, the Autonomous Regions' career guidance services have been adapted to digitalisation, with multi-channel attention and, in some cases, with the use of social networks.
PES carry out different initiatives, such as improving the welcome sessions procedures for group information activities targeted to those who are registering for the first time or who have not received assistance for a long time; designing a personalised employment itinerary; creating a mentoring plan; or being proactive by contacting jobseekers and setting up meetings to offer them the service. Some regional PES carry out different actions to reach out to inactive people, either through institutional campaigns to encourage registration or by promoting the maintenance of registration after the end of the unemployment benefit or subsidy. Specific prospecting plans, protocols and manuals have been created.
Within the framework of the Social Inclusion Network (red de inclusion social, RIS), pilot projects for collaboration and information exchange between social and employment services have been launched at autonomous community level, jointly promoted by units of the Ministry of Consumer Affairs and Social Welfare and the State Public Employment Service. A working group was set up at the RIS plenary meeting in December 2020 on Design, implementation and financing of pilot projects for coordination between social services and employment services.
Most of the Autonomous Regions are developing different formulae for collaboration with social entities and social economy networks for the care of LTU and employment vulnerable populations.
Within the framework of institutional collaboration of the Reincorpora-T Plan, in favour of LTUs and other vulnerable populations seeking employment, coordinated action is maintained with the Ministry of Economic Affairs and Digital Transformation. Its Crear futuro (Setting up future) programme is aimed at free training adapted to the new demands of the digital society to improve the employability of participants. In 2020, 5 600 people benefited from this programme, 1 400 of whom were over 45, including 672 women. The programme is being implemented in 2021.
The inclusion of social clauses in public procurement for long-term unemployed persons over 52 years of age and the promotion of contracts reserved for special employment centres of social initiative are being promoted at State and regional levels. This is done in accordance with the other ministries, and considering the plan for the promotion of socially responsible public procurement and the transposition of the European Parliament Directives into Spanish law.
The Triennial plan for preventing and reducing long-term unemployment (Reincorpora-T) concluded its implementation in 2021. It comprised 63 measures, many of which were implemented through common programmes that correspond directly to the regions and which are included in the annual employment policy plans.
The identification of good practice linked to the implementation of Reincorpora-T by the autonomous PES, which began in 2020, ended in early 2021 with the preparation of Reincorpora-T’s Good practice report. The report outlines the methodology used, the minimum requirements to be met to be considered good practice, the selection criteria and the compendium of good practice carried out. According to the World Bank's technical assistance evaluation, developed through the European Commission's Reform support programme (SRSS), Reincorpora-T provides an excellent framework for identifying good practice in active employment policies and for how decentralised management makes it possible to develop a common body of good practice. 33 examples of good practice were identified, and their dissemination will promote bench learning among the different services involved. The World Bank’s final report highlights the integration of measures that, for the first time, involve and cover different ministries and bodies outside the national employment system. Long-term unemployment was tackled as a common objective by the entire Spanish public administration.
The Orienta 3000 network of guidance counsellors focused on reinforcing vocational guidance, labour market prospecting and job vacancy recruitment in the Public Employment Services. The recruitment of the network professionals was conditioned by the COVID-19 pandemic, reaching 54% of the planned recruitment.
Reincorpora-T was used as a model for some of the measures included in the national recovery plan (component 23; New public policies for a dynamic, resilient and Inclusive labour market). These investments are aligned with the Spanish active support strategy for employment 2021-24, which focuses on people and the productive fabric, aspects considerably highlighted in Reincorpora-T.
In Reincorpora-T, the condition of the long-term unemployed was assimilated to other predefined vulnerable groups, promoting the adoption of a broader criterion of equity and social cohesion in territorially based employment projects. Similarly, good regional examples of cooperation between employment and social services authorities, which had a holistic view of the configuration of users and mixed multidisciplinary teams, were significantly extended during the plan’s implementation. These experiences were considered in the design of territorial projects for rebalancing, and for equity and attention to vulnerable groups, as part of the (component 23) action line: New public policies for a dynamic, resilient and inclusive labour market.
The Public Employment Services have implemented further measures and, of the six axes of Reincorpora-T, have achieved the highest execution levels in the guidance axis. This experience has fostered the development of the network of public centres for guidance, entrepreneurship, support and innovation for employment (centros públicos de orientación, emprendimiento, acompañamiento e innovación para el empleo, COE).
The need to recover protection of employment and the right to personalised support in labour transitions is reinforced in the component 23 investments that foresee the following programmes for:
- youth employment: the TándEM Youth employment scheme for young people with low qualifications, the first professional experience scheme in public administration for young graduates, and the Investigo employment scheme for young researchers;
- women's employment: a programme to support women in rural areas and, due to their vulnerability, the national recovery plan also includes actions for women in unsafe urban areas with higher unemployment rates. It includes a specific line for female victims of gender-based violence or trafficking and sexual exploitation through training and insertion programmes with a commitment to hiring.
Bodies responsible
- Ministry of Labour and Social Economy
- State Public Employment Service (SEPE)
- Autonomous Public Employment Services
- Ministry of Health, Consumption and Social Welfare
Target groups
Learners
- Young people not in employment, education or training (NEETs)
- Learners with migrant background, including refugees
- Learners with disabilities
- Adult learners
- Older workers and employees (55 - 64 years old)
- Unemployed and jobseekers
- Low-skilled/qualified persons
- Learners from other groups at risk of exclusion (minorities, people with fewer opportunities due to geographical location or social-economic disadvantaged position)
Education professionals
- Guidance practitioners
Other
Thematic categories
Governance of VET and lifelong learning
This thematic category looks at existing legal frameworks providing for strategic, operational – including quality assurance – and financing arrangements for VET and lifelong learning (LLL). It examines how VET and LLL-related policies are placed in broad national socioeconomic contexts and coordinate with other strategies and policies, such as economic, social and employment, growth and innovation, recovery and resilience.
This thematic category covers partnerships and collaboration networks of VET stakeholders – especially the social partners – to shape and implement VET in a country, including looking at how their roles and responsibilities for VET at national, regional and local levels are shared and distributed, ensuring an appropriate degree of autonomy for VET providers to adapt their offer.
The thematic category also includes efforts to create national, regional and sectoral skills intelligence systems (skills anticipation and graduate tracking) and using skills intelligence for making decisions about VET and LLL on quality, inclusiveness and flexibility.
This thematic sub-category refers to the integration of VET into economic, industrial, innovation, social and employment strategies, including those linked to recovery, green and digital transitions, and where VET is seen as a driver for innovation and growth. It includes national, regional, sectoral strategic documents or initiatives that make VET an integral part of broader policies, or applying a mix of policies to address an issue VET is part of, e.g. in addressing youth unemployment measures through VET, social and active labour market policies that are implemented in combination. National skill strategies aiming at quality and inclusive lifelong learning also fall into this sub-category.
Modernising VET offer and delivery
This thematic category looks at what and how individuals learn, how learning content and learning outcomes in initial and continuing VET are defined, adapted and updated. First and foremost, it examines how VET standards, curricula, programmes and training courses are updated and modernised or new ones created. Updated and renewed VET content ensures that learners acquire a balanced mix of competences that address modern demands, and are more closely aligned with the realities of the labour market, including key competences, digital competences and skills for green transition and sustainability, both sector-specific and across sectors. Using learning outcomes as a basis is important to facilitate this modernisation, including modularisation of VET programmes. Updating and developing teaching and learning materials to support the above is also part of the category.
The thematic category continues to focus on strengthening high-quality and inclusive apprenticeships and work-based learning in real-life work environments and in line with the European framework for quality and effective apprenticeships. It looks at expanding apprenticeship to continuing vocational training and at developing VET programmes at EQF levels 5-8 for better permeability and lifelong learning and to support the need for higher vocational skills.
This thematic category also focuses on VET delivery through a mix of open, digital and participative learning environments, including workplaces conducive to learning, which are flexible, more adaptable to the ways individuals learn, and provide more access and outreach to various groups of learners, diversifying modes of learning and exploiting the potential of digital learning solutions and blended learning to complement face-to-face learning.
Centres of vocational excellence that connect VET to innovation and skill ecosystems and facilitate stronger cooperation with business and research also fall into this category.
This thematic sub-category refers to acquisition of key competences and basic skills for all, from an early age and throughout their life, including those acquired as part of qualifications and curricula. Key competences include knowledge, skills and attitudes needed by all for personal fulfilment and development, employability and lifelong learning, social inclusion, active citizenship and sustainable awareness. Key competences include literacy; multilingual; science, technology, engineering and mathematical (STEM); digital; personal, social and learning to learn; active citizenship, entrepreneurship, cultural awareness and expression (Council of the European Union, 2018).
Supporting lifelong learning culture and increasing participation
Lifelong learning refers to all learning (formal, non-formal or informal) taking place at all stages in life and resulting in an improvement or update in knowledge, skills, competences and attitudes or in participation in society from a personal, civic, cultural, social or employment-related perspective (Erasmus+, Glossary of terms, https://erasmus-plus.ec.europa.eu/programme-guide/part-d/glossary-common-terms). A systemic approach to CVET is crucial to ensure adaptability to evolving demands.
This broad thematic category looks at ways of creating opportunities and ensuring access to re-skilling and upskilling pathways, allowing individuals to progress smoothly in their learning throughout their lives with better permeability between general and vocational education and training, and better integration and compatibility between initial and continuing VET and with higher education. Individuals should be supported in acquiring and updating their skills and competences and navigating easily through education and training systems. Strategies and campaigns that promote VET and LLL as an attractive and high-quality pathway, providing quality lifelong guidance and tailored support to design learning and career paths, and various incentives (financial and non-financial) to attract and support participation in VET and LLL fall into this thematic category as well.
This thematic category also includes many initiatives on making VET inclusive and ensuring equal education and training opportunities for various groups of learners, regardless of their personal and economic background and place of residence – especially those at risk of disadvantage or exclusion, such as persons with disabilities, the low-skilled and low-qualified, minorities, migrants, refugees and others.
This thematic sub-category refers to all kinds of incentives that encourage learners to take part in VET and lifelong learning; VET providers to improve, broaden and update their offer; companies to provide places for apprenticeship and work-based learning, and to stimulate and support learning of their employees. It also includes measures addressing specific challenges of small and medium-sized enterprises (SMEs) willing to create work-based learning opportunities in different sectors. Incentives can be financial (e.g. grants, allowances, tax incentives, levy/grant mechanisms, vouchers, training credits, individual learning accounts) and non-financial (e.g. information/advice on funding opportunities, technical support, mentoring).
This thematic sub-category refers to providing the possibility for individuals who are already in the labour market/in employment to reskill and/or acquire higher levels of skills, and to ensuring targeted information resources on the benefits of CVET and lifelong learning. It also covers the availability of CVET programmes adaptable to labour market, sectoral or individual up- and reskilling needs. The sub-category includes working with respective stakeholders to develop digital learning solutions supporting access to CVET opportunities and awarding CVET credentials and certificates.
This thematic sub-category refers to providing high-quality lifelong learning and career guidance services, including making full use of Europass and other digital services and resources.
This thematic sub-category refers to making VET pathways and programmes inclusive and accessible for all. It concerns measures and targeted actions to increase access and participation in VET and lifelong learning for learners from all vulnerable groups, and to support their school/training-to-work transitions. It includes measures to prevent early leaving from education and training. The thematic sub-category covers measures promoting gender balance in traditionally ‘male’ and ‘female’ professions and addressing gender-related and other stereotypes. The vulnerable groups are, but not limited to: persons with disabilities; the low-qualified/-skilled; minorities; persons of migrant background, including refugees; people with fewer opportunities due to their geographical location and/or their socioeconomically disadvantaged circumstances.