THE SUPPORTED EMPLOYMENT PROGRAMME OPPORTUNITIES AND CHALLENGES TOM RONAYNE WRC SOCIAL AND ECONOMIC CONSULTANTS IASE Conference

What we need to do An honest and critical analysis of a disabling society, prevailing levels of human capital among disabled people, labour market characteristics and the interplay of state and market are all pre-requisites of a radical disability employment policy. (p. 1) Working Futures? Disabled People, Policy and Social Inclusion, 2005 Alan Roulstone and Colin Barnes

Purpose of Evaluation More Effective Contribution of SEP to Employment Policy for People with Disabilities Increased Effectiveness of Programme (More Clients in Employment, More Clients Retaining Employment Following Support, More Clients Progressing in their Employment Careers)

Overview Opportunities Making the Programme Work Better by Addressing Known Internal Weakness Challenges Addressing the Absence of Demand Positioning the Programme in the Market Developing Effective Collaboration

Variation in Profile of Clients “labour market status prior to SEP” (40% looking for a job, 30% in training, 30% other) “job readiness” (25% not job ready) “severity of restriction” (50% both type and amount, 30% one or other, 20% no restrictions) “previous experience of work in open labour market” (25% no experience of work).

Variation in Level of Support Required by Clients High Exit Rate from Needs Assessment Phase: Approximately 25% of all clients exiting the SEP do so at the Needs Assessment phase. Almost half of clients entering the Needs Assessment Phase do no progress beyond it (i.e., exit rate at Needs Assessment phase is 46%). Duration on SEP: One in eight (13.6%) clients had been on SEP for over 3 years and substantial variation across Sponsor Organisations.

Low Employment Rates Just over one third (34.6%) were in employment on March 30th (i.e., 865 clients on the basis of a client population figure of 2,500). Based on survey of past participants, just over one third (35.4%) were in employment at time of survey. One in five (20.7%) clients exiting the SEP between April 2007 and end September 2007 did so while in employment. If clients that exited the SEP at the Needs Assessment phase are excluded then just over one in four (26.9%) of clients exiting the SEP do so while in employment. Allowing for error in the estimates, somewhere between one in five and two in five clients exit the SEP while in employment. Assuming an annual throughput of 1,250 this corresponding to a maximum of 500 a year.

Variation in Time Taken to Access Employment One in four clients obtaining employment do so within 12 weeks. Half of all clients obtaining employment do so within 24 weeks. Three quarters of all clients getting employment do so within an 18 month time period with the other one quarter securing their employment subsequent to 18 months.

Low Working Hours and Pay Approximately 15% work less than 10 hours a week and a further 35% to 40% work between 10 and 19 hours a week. Working hours are lower than national population of people with disabilities in employment and average hourly earnings while above the minimum wage are lower than national average. Despite this three quarters are satisfied with their jobs and almost all are satisfied with their hours of work (exception being those working less than 10 hours each week).

Demand Side Issues Small Pool of Recruiting Employers: Estimates of the proportion of companies with a person with a disability in their workforce vary between 10% and 25%. Some evidence from the survey of employers to suggest that many were recruiting a person with a disability due to familiarity with disability through personal or family circumstances or disability organisations. Could be in the region of 20% to 25%. Ability to do Job is Critical: Both employers and Job Coaches agreed that the main concern of employers in recruiting a person with a disability is their ability to do the job. Low Demand and Competition from Other Sources of Labour: The survey of Job Coaches clearly showed that the main barriers they encountered in trying to secure employment for their clients were the absence of a demand from employers and competition for entry level jobs from workers from new EU member states.

Considerable Variability in Programme Implementation Variability in Client Profiles, Process, and Employment Rates Across Sponsor Organisations: There is substantial variation across the 24 Sponsor Organisations in terms of the profiles of active clients (e.g., gender, type of disability), the operation of the programme (e.g., number of clients on programme for more than 2 years) and employment results. Also some evidence of variation in Job Coach practices based on Job Coach Survey. Twenty four organisations delivering the one programme: Planning and strategy development, operations and innovation, and performance management predominantly occur within each of the 24 sponsor organisations. There needs to be a more coherent approach across all 24 organisations to these issues. Also reducing duplication of effort. The effects of the absence of a consistent approach to these areas are reflected in the diversity found in programme implementation across the 24 sponsor organisations.

Internal Factors Related to Design of the SEP Lack of Clarity in Respect of Job Readiness: No operational definition of this, plus no consistent approach / procedure to assessment. One effect of this is the high exit rate during Needs Assessment phase at present and a lowering of the proportion of clients being supported in employment at any given time. Absence of Coherent and Visible Identity for SEP among Employers and Clients. This creates difficulties in “marketing” the programme to employers and people with disabilities. Restrictive Criteria: Both working hours (18 hours per week) and duration of support (18 months ) in new Operational Standards are viewed as excluding people with disabilities who are looking for work with shorter hours of work and those who have longer term support needs.

Internal Factors Related to Design of the SEP Lack of Agreed Procedures in Respect of Exiting Clients from Programme: This contributes to difficulties in identifying when clients actually cease being programme participants. Identifying the criteria to be used in making this decision is critical. Weakness of Formal Linkages to Education, Training and Other Labour Market Programmes: There is an absence of systematic and formal linkages to programmes developing the skills and work competencies of people with disabilities. As an employment focused programme the SEP is well positioned to consolidate the investments in skill and competence development made elsewhere in the system.

Summary of External Factors Absence of demand from employers Competition from other job applicants Low income disregard for DA recipients Weakness in further education and training system

Proposed Areas for Action and Recommendations Operate the SEP with Agreed Employment Targets Key indicators of programme effectiveness for the Supported Employment Programme are / should be: the proportion of clients in employment with support from the programme; and, the proportion of clients exiting the programme while in employment (and in a position to retain this employment, or secure other employment, and develop their careers). A minimum target of 50% in respect of both these indicators should be adopted and the targets and progress in meeting them should be reviewed on an annual basis. For the purpose of measuring employment performance, employment should be defined as working a minimum of eight hours a week.

Proposed Areas for Action and Recommendations Develop Operational Clarity in Respect of the Target Group for the SEP and the Role of the Programme in Respect of the Evident Diversity in the Client Population Recognise that “Job Readiness”, “Employability” and “Level of Support Needs” are different concepts and each requires an appropriate method of assessment. Devise and Implement Agreed Protocols and Assessment Tools and Procedures for Programme Entry. Use of these will also lead to greater transparency and consistency in programme implementation and in providing individualised support to clients entering the SEP.

Proposed Areas for Action and Recommendations Identify and Document Operational Procedures operationally identify the criteria and associated assessment procedures for entry to the programme (incorporating the results of the recommendation on assessment procedures above) formally outline the decision making process in respect of client entry to the programme and the role of different parties in respect of this identify the precise nature, range and duration of supports that can be provided to clients in response to their individual needs in respect of accessing and retaining employment

Identify and Document Operational Procedures document agreed procedures and practices in respect of individualised planning to assist clients access employment define the formal linkages between SEP and education, training and development provision and documents how these linkages will be implemented operationally identify the criteria to be used and practices to be adopted in formally exiting clients from the programme specify the indicators that will be used to review programme performance and effectiveness, the procedures that will be used to collect data in respect of the selected indicators, and the frequency of data collection and review procedures. Proposed Areas for Action and Recommendations

Develop a National Identity for the SEP and Devise and Implement a Marketing Strategy The most significant barrier Job Coaches identified in respect of securing employment for their clients was the absence of a “demand” from employers. Creating a National Identity (Brand) for the SEP and Marketing the Programme to Potential Clients (People with Disabilities and Employers) There is a need to identify and implement a strategic and innovative approach to securing greater employer participation in the programme.

Conclusions Opportunities Making the Programme Work Better by Addressing Known Internal Weakness Challenges Addressing the Absence of Demand Positioning the Programme in the Market Developing Effective Collaboration