measure 15 of the ehrdop implemented by the department of

WRC Social and Economic Consultants

Employment Support ServicesMeasure 15 of the EHRDOPImplemented by the Department of Socialand Family Affairs

WIDER EQUALITY MEASURE STUDYSupported by

Equality Studies Unit, Measure 33A of the EHRDOP

EUROPEAN SOCIAL FUND

Contents

Section Page

1. Introduction 4

2. Methodology 7

3. Implementing Body - Department of Social and Family Affairs 8

3.1 RoleandOperations 8 3.2 OrganisationalStructure 10 3.3 EqualityPoliciesandPractices 11 3.4 OtherInitiativesRelatedtoAccommodating Diversity/PromotingEquality 12 3.5 EqualityMattersinDataCollectionProcedures 14

4. Measure 15: Employment Support Services 15

4.1 AimofEmploymentSupportServices 15 4.2 DescriptionofEmploymentSupportServices 15 4.3 TargetGroupsandEligibilityCriteriaofESS 16 4.4 StructuresandPersonnelImplementingESS 16 4.5 PromotingEmploymentSupportServices 18

5. Participation of People Covered by the WEOP in Employment Support Services 19

5.1 ParticipationofPeopleCoveredbytheWEOPintheBTWAS 19 5.2 ParticipationofPeopleCoveredbytheWEOPintheBTEAS 21 5.3 AnalysisofProjectsFundedUnderSpecialProjectsFund 22 5.4 ParticipationofPeopleCoveredbytheWEOPinESS 24

6. IssuesIdentifiedasInflueincingParticipationbyPeople Covered by the WEOP in Employment Support Services 25

7. Conclusions and Recomendations 28

7.1 OverallConclusionsandRecommendations 28 7.2 ConclusionsandRecommendationsConcerning theSpecialProjectsFund 30 7.3 ConclusionsandRecommendationsRegarding DataandReportingonESS 31 7.4 ConcludingCommentsandObservations 31

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Annex 1: The10MeasurestowhichtheWEOPSpecificallyApplies 32Annex 2: RecommendationstoStrengthenEmploymentSupportsfor 33 PeoplewithDisabilities(fromReportoftheWorkingGroup ontheReviewofIllnessandDisabilityPayments)

List of Tables

4.1 NumberofFacilitatorPostsbyRegion 17 5.1 AnalysisofParticipationbyPeoplewithDisabilitiesand OlderPeopleintheBTWAS(2004) 20 5.2 AnalysisofParticipationbyNon-EUNationalsintheBTWAS(2004) 20 5.3 AnalysisofParticipationbyPeoplewithDisabilitiesand OlderPeopleintheBTEAS(2004) 21 5.4 AnalysisofParticipationbyNon-EUNationalsintheBTEAS(2003) 21 5.5 ProjectsFundedbytheSpecialProjectsFundCateringfor PeopleCoveredbytheWEOP 22 5.6 AnalysisofParticipationbyPeoplewithDisabilitiesand OlderPeopleinESS(2004) 24

List of Text Boxes

3.1 Cross-DepartmentalInvolvementinEquality/Diversity andTravellerIssues 8 3.2 DepartmentalRepresentationonInterdepartmentalCommittees/ GroupsRelevanttoAddressingLabourMarketInequalities ExperiencedbyPersonsCoveredbytheWEOP 9 3.3 EqualityandDiversity:PrinciplesandActionsinCustomer ActionPlan2004-2007 10 5.1 IllustrationsofProjectsSupportedbytheSpecialProjectsFund 23

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InthecontextoftheEmploymentandHumanResourcesDevelopmentOperationalProgramme2000-2006(EHRDOP),theEqualityAuthorityisimplementingMeasure33a:TechnicalAssistance-EqualityStudiesUnit(ESU).TheESUismandatedtoexaminelabourmarketinequalitiesandtheirimplicationsforlabourmarketpolicy.ItsfocusisexclusionanddiscriminationinthelabourmarketascoveredbyequalitylegislationandforfourgroupsnamedintheEHRDOP(i.e.,olderworkers, people with disabilities, minority ethnic groups in particular refugees, and, membersof theTravellerCommunity). These four groups are also the referencegroups for theWiderEqualOpportunitiesPrinciple(WEOP).TheWEOPisconcernedwithunderstanding,monitoringandsupportingtheparticipationofpeoplefromthefourgroupscoveredbytheprincipleinthemeasuresoftheEHRDOP.Followingonfromthemid-termreviewoftheEHRDOP,10measuresarenowrequiredtoidentifyandreportontheactionstheyaretakingtoapplytheWEOP(seeAnnex1foralistofmeasures).

InthiscapacitytheEqualityAuthorityisimplementingarollingprogrammeofMeasureStudies.Thesestudiesseektoidentifyandpromotechangesrequiredintheplanning,designanddeliveryofthemeasurescomprisingtheEHRDOPtoenhancetheircapacitytoaccommodatediversityandtopromoteequality.Inordertoaccomplishthis,measurestudiesaredesignedtoastandardthatchallenges.

MeasurestudiesdrawontheanalysisdevelopedintheESUpublication‘AccommodatingDiversityinLabourMarketProgrammes’.Specifically,theprogrammeofmeasurestudiesseeks:

• tosupportnewlearningonthepromotionofequalityandtheaccommodationof diversityin labourmarketmeasures.Itachievesthisbyseekingoutgoodpractice whilealsoexamininggaps,deficienciesandotherissues;

• throughthemannerinwhichitisimplemented,tobuildthecapacityof implementingagenciestoidentifyandengageinactionstoeffectivelypromote equalityandaccommodatediversity;and,

• toagreerecommendationsforpriorityactionsforpromotingequalityand accommodatingdiversityinthemeasuresexaminedandinthebroaderworkofthe implementingagencies.

In seeking to support a process of change the measure studies require the full engagementof those responsible for the design and delivery of the measure concerned. To this end, themeasurestudiesareundertakeninawaythatachievesownershipoftheprocessbytherelevantimplementingagency.Themeasurestudiesare,therefore,pursuedonthebasisofapartnershipapproachbetweentheEqualityAuthorityandtheorganisationresponsibleforthemeasure.Withinthepartnership:

• theEqualityAuthorityleadsinrelationtostandardsforthestudy.Termsof referenceneedtobeestablishedandthenagreedwithinthepartnership.These mustensuremeasurestudiesarechallenging,stimulatechangeandextract learning;

1. Introduction

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• theEqualityAuthorityleadsinrelationtoqualitycontrolforthemeasurestudy.In particular,ensuringthetermsofreferenceareappliedandconveningameeting ofthepartnershiptodiscusstheactionplanarisingoutofthemeasurestudy;• theorganisationresponsibleforthemeasureleadsinrelationtoimplementation ofthemeasurestudy.Thefinaloutputsofthestudyaresubjecttothedecisionof theimplementingagency.Thisincludesactionstoenhancethecapacityofthe measuretopromoteequalityandaccommodatediversity.Thestudyistherefore ownedbythatorganisation.

• theEqualityAuthoritywillleadinrelationtoassessingtheprogressmadein implementingagreedrecommendations.

• theEqualityAuthoritywillleadinrelationtodisseminationoflearning, inparticularthroughtheframeworkoftheEHRDOP.Thiswillrequireelectronic publicationofthestudies,developmentofsynthesisreportsthatdrawfroma numberofmeasurestudies,andotheractivities.

ThisreportpresentsthefindingsofthemeasurestudyofEmploymentSupportServices(ESS)implementedbytheDepartmentofSocialandFamilyAffairs(DSFA).AsdefinedinitsrevisedProgrammeComplementtheaimofESSis“toassistunemployedpeople,particularlythelong-termunemployed,loneparents,andsicknessrelatedsocialwelfarerecipientstoreturntotheactivelabourmarketeitherbytakingupemploymentorbecomingself-employed”(p.1).Operationally,ESSprimarilyconsistsoftwoschemes:theBacktoWorkAllowanceScheme(BTWAS)andtheBacktoEducationAllowanceScheme(BTEAS).Bothoftheseschemes-albeitnotinexactlytheircurrentformat-wereintroducedintheearly1990sinthecontextofthedevelopmentofanactivistapproach towelfareprovision. Supporting theoperationof theBTWAS is theTechnicalAssistanceandTrainingFund.Itwasputinplacein1995toassistpersonsaccessingtheBTWASinanumberofways(e.g.,preparationofbusinessplansandundertakingmarketresearchinthecaseofpersonsenteringtheself-employmentstrandoftheBTWASandpreparationforinterviewsandsupporttoaccesscomputertrainingforpersonsenteringtheemployeestrandoftheBTWAS).Theotherelementofthemeasureinvolvesprovidingfundingtoprojectstoassistwelfarerecipients-andincertaininstancesmembersoftheirfamily-toaccesswork,educationortraining.Thefundingmechanism-thatis,theSpecialProjectsFund-providesfunding,co-fundingandpart-fundingforawiderangeofprojectsbroadlyaimedatpromotingsocialinclusionanddevelopingemployability.Itaimstostimulateinnovativeactionstotacklesocialexclusionandincreaseemployability.

Inbudgetaryterms,ESSissubstantial:abudgetof€1,526.58millionisindicatedfortheperiod2000-2006initsProgrammeComplement.However,itisimportanttonotethatthevastmajorityofthisexpenditurearisesfromtheprovisionofpaymentstoparticipantsandtheircontinuedeligibilityforarangeofsecondarywelfarebenefits.Also,andrelatedtothelatterpoint,eligibilityto participate in the two main schemes comprising the measure is based on entitlement tovariouswelfarepaymentsandadditionalconditionsrelatedtodurationinreceiptofpayment/durationunemployed,minimumpaymententitlements,andage.

ESS isoneof10measures in theEHRDOPprioritised for greater integrationof theWEOPand consequently ESS is now required to identify and report on the actions taken to applytheWEOP.ThereareanumberofwaysinwhichtheWEOPisofrelevancetotheoperationofthismeasure. First,allpersonscoveredbytheWEOParerepresentedamongthewelfarebasedeligiblepopulationofthismeasureand,inparticular,personswithadisabilityarecitedasamongtheintendedbeneficiariesofthemeasure.Also,thesmallgrantselementofthemeasure

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explicitly targets people with disabilities and has included among the projects funded underMeasure15projectsformembersoftheTravellercommunityandrefugees.Second,theBTEASelementof themeasure represents an importantmeansof supportingpeople from the fourgroupscoveredbytheWEOPtoaccessmainstreamsecondandthird leveleducationaswellas education, training anddevelopment coursesprovidedby State agencies,AreaPartnershipCompanies,andcommunityandvoluntarygroups.Giventheeducationalinequalityexperiencedbypersonsfromthreeofthefourgroupseligibletoparticipateinthemeasureandthelikelygreater concentration of this inequality among persons in receipt of a welfare payment, themeasure is particularly relevant to combating the labour market inequality experienced byeducationallydisadvantagedpersonsfromthefourgroups.

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2. Methodology

Themethodologyforthismeasurestudyinvolved:

• collectingandreviewingdocumentationonprogrammedesign(e.g.,eligibilitycriteria, recruitmentprocesses,supportstoparticipantsetc)andimplementationprocedures (e.g.,rolesandresponsibilitiesofvariouspersonnel);

• collectingandreviewingpreviousstudies/reportsonthemeasure;Thereportsincluded evaluationsoftheBTWAS,theBTEAS,theroleofJobsFacilitators,anexpenditure reviewoftheBTEAS,andevaluationsofindividualprojectsfundedundertheSpecial ProjectsFund;

• obtainingandanalysingdataonprogrammeparticipantsparticularlywithreferenceto thefourgroupscoveredbytheWEOP-olderpeople,peoplewithdisabilities,members ofminorityethnicgroupsandmembersoftheTravellerCommunity;

• reviewingdatacollectionandprogrammemonitoringprocedures;

• obtainingandreviewingdocumentationonpolicies,practicesandinitiativesintheareaof equalityandpromotingdiversity;and,

• meetingwithpersonnelresponsibleforprogrammedeliverytodiscussandobtaintheir viewsonissuesrelatedtotheWEOP,includingagroupsessionwithFacilitatorsand RegionalCo-ordinators.

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3. Implementing Body

3.1 Role and OperationsInitsStatementofStrategy2005-2007themissionoftheDSFAisdefinedas“topromoteacaringsocietythroughensuringaccesstoincomesupportandotherservices,enablingactiveparticipation,promotingsocialinclusionandsupportingfamilies”(p.4).InadditiontosupportingtheMinisterforSocialandFamilyAffairstodischargegovernmental,parliamentaryanddepartmentalduties,themainfunctionsoftheDSFAincludeformulatingsocialprotectionpolicies,administeringandmanagingstatutoryandnon-statutorysocialandfamilyschemes(theBTWASandBTEASareamongtheseschemes)andservices,andworkingwithotherDepartmentsandagenciesinthedeliveryofGovernmentpriorities.

TotalfundingfortheservicesprovidedbytheDSFAamountedto€12.25billionin2005,makingtheDSFAthelargestdepartmentintermsofpublicspending.Directbeneficiariesareoftheorderof970,000andthisfigurerisestoover1.5millionwhentheirdependentsareincluded.

Box 3.1: Cross-Departmental Involvement in Equality/Diversity and Traveller Issues

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Issue

Equality/Diversity

Travellers

ActionbytheDSFA

Throughstafftrainingandawarenessraisingwewillensurethatourservicesareprovidedinamannerthatallofourcustomersfindaccessibleandculturallyappropriate.ParticipateintheGovernmentsKNOWRACISMcampaignandtheNationalActionPlanAgainstRacism.ContinuetoworkwiththeHealthServiceExecutivetoprovidesupportsandadvicetoasylumseekers,refugeesandothernon-nationalsgrantedtherighttoremainintheState.WorkwiththeReceptionandIntegrationAgencyinprovidingservicestoasylumseekersandrefugees.

WorkwiththeDJELR,theDELG,theHealthServiceExecutiveandotheragenciestoensurethatourservicesareprovidedinamannerthatisappropriatetotheneedsofTravellers.

LeadDepartment

DJELR

DJELR

OtherDepartments/Agencies

All

DSFA,HealthServiceExecutive

TheDSFAisalso involvedonan inter-departmentalbasis inaddressingarangeof issues. Inrelationtoanumberoftheseissues,notablytheNationalAntiPovertyStrategy,theDSFAplaysalead/co-ordinatingrole.TheOfficeforSocialInclusionislocatedintheDSFA.Amongitsfunctionsareco-ordinationof theNationalActionPlanagainstPovertyandSocialExclusion(NAP/Inclusion), monitoring and evaluating theAction Plan, developing support functions tounderpinitsimplementation,supportingregionalandlocalimplementation,andimplementingacommunicationstrategyandconsultationprocessinrelationtoNAP/Inclusion.

TwoissuesofparticularrelevancetothisstudyareEquality/DiversityandTravellers.InrelationtotheseissuestheDSFAisengagedwiththeDepartmentofJusticeEqualityandLawReform(DJELR)andotheragenciesinpursuingarangeofinitiatives(seeBox3.1).TheDSFAisalsorepresentedonalargenumberofinterdepartmentalcommittees,anumberofwhicharerelevanttoaddressingthelabourmarketinequalitiesexperiencedbypeoplefromthefourgroupscoveredbytheWEOP(seeBox3.2).

Box 3.2: Departmental Representation on Interdepartmental Committees / Groups Relevant to Addressing Labour Market Inequalities Experienced by Persons Coveredby the WEOP

Group Interdepartmental Committee / Group

TheMoneyAdviceandBudgetingService(MABS) is fundedbytheDSFA. MABS ismanagedby52locallybasedcompanieswhoseboardmembersdrawnfromthestatutoryandvoluntarysectors.Approximately70%ofMABSclientsarerecipientsofsomeformofwelfarepayment.Theservicedealswithapproximately11,000newclientsannually.

Therearefivestatutoryagencies/officesundertheaegisoftheDSFA:Comhairle,theCombatPovertyAgency, theFamily SupportAgency, theOfficeof thePensionsOmbudsman, and thePensionsBoard.

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Group

OlderPeople

PeoplewithDisabilities

MembersofMinorityEthnicGroups/Refugees

MembersoftheTravellerCommunity

InterdepartmentalCommittee/Group

NationalCouncilforAgingandOlderPeopleInterdepartmentalGroupontheNeedsofOlderPeople

WorkingGroupontheCostofDisabilityPaymentFÁSNationalAdvisoryCommitteeonDisability

ImmigrationPolicyAdvisoryCommitteeInterdepartmentalCommitteeonAsylumandIntegrationIssuesSteeringGroupAnti-RacismAwarenessCampaignSteeringGrouponNationalActionPlanAgainstRacismNationalConsultativeCommitteeonRacismandInterculturalism

HighLevelGrouponTravellerIssuesCommitteetoMonitorandCo-ordinatetheImplementationoftheRecommendationsoftheTaskForceontheTravellingCommunity

3.2 Organisational StructureAtotalofjustover4,700personsareemployedbytheDSFA.TheDSFAhasheadquarterofficesin six locations (Dublin, Dundalk, Letterkenny, Longford, Sligo andWaterford) and there is anetworkof58SocialWelfareLocalOfficesand67BranchOffices.

The servicesof theDSFA aredeliveredboth centrally andon a regional basis. There are 9regions:NorthWest,West,NorthEast,South,SouthEast,MidWest,DublinWest,DublinSouth,andDublinNorth.Eachregionhasaregionalmanagerandmanagementteam.TheyreporttotheDirectorofRegions.OfparticularrelevancetothisstudyareRegionalCo-ordinatorsandtheirteamofFacilitatorsasitisthesepersonnelwhooperationallysupporttheimplementationofESS.

WithintheDSFA,responsibilityforpolicydevelopment,implementation,andreportingonESSlieswithintheSocialandFamilySupportService(SFSS).In2004,thefunctionsofEmploymentSupport Servicesweremerged intowhat is now called the SFSS. Themanagement unit forMeasure 15 remainswith the Employment Support Services section and this section is nowalsothepolicysectionforSFSS.Managementofthepersonnel(i.e.,RegionalCo-ordinatorsandFacilitators)involvedinimplementingESSfallswithintheOfficeoftheRegionalDirector.

Box 3.3: Equality and Diversity: Principles and Actions in Customer Action Plan 2004-2007

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Equality/Diversity

Principle:Ensuretherightstoequaltreatmentestablishedbyequalitylegislation,andaccommodatediversity,soastocontributetoequalityforthegroupscoveredbytheequalitylegislation(underthegroundsofgender,maritalstatus,familystatus,sexualorientation,religiousbelief,disability,raceandmembershipoftheTravellerCommunity).Diversity,asaconcept,recognisesthedifferencesbetweenpeopleandthebenefitstobegainedfromthesedifferences.Accommodatingdiversityisseenasoneofthetoolsbywhichequalitycanbeachieved.Theprinciplecutsacrossallotheraspectsofservicedeliveryandwearecommittedtoservingourcustomersinanequitableandnon-discriminatoryway.

Tofullyachievethis,wealsorecognisethatitisvitalthatourstaffaresupported,throughourtrainingprogrammesandothersupportmethods.

Key Action PointsUpdate,inthelightoflegislativedevelopment,thesupportpackforstaffdealingwithnon-nationalcustomerspublishedFebruary2002,Q32004Continuallymonitorandreviewneedsinrelationtoourinterpretationfacilities.Theserviceiscurrentlyavailablein12ofourLocalandPublicOffices–OngoingContinuetheemphasisonourcustomerservicetrainingondiversityawarenesscoveringaspectsoftheequalityanddiversityagenda.Atpresent,ourspecialisedawarenesstrainingcoursescovermodulesdealingwithnon-nationals,disabilityandTravellers-OngoingContinueanddevelopotherstaffsupportinitiativesintheareaofequalityanddiversity-OngoingProvidesystemsupportstodealwithcustomerswithspecialneeds.

FromCustomerActionPlan2004-2007,p.40

3.3 Equality Policies and PracticesOneofthethemesrunningthroughtheStatementofStrategy2005-2007isthegrowingdiversityoftheclientpopulationoftheDSFAandtheconsequentchallengetoensurethattheservicesoftheDSFAareresponsivetotheneedsandcircumstancesofitsclients.Inmeetingthischallengeparticular emphasis is placed on ensuring that the services of the DSFA are delivered in anaccessibleandappropriatemannertoitsclientsandthatDepartmentalpersonnelreceivethetrainingandsupporttoensurethis.TheprinciplesandactionssupportingthisarelaidoutintheDepartment’sCustomerActionPlan2004-2007(seeBox3.3)anditsCustomerCharter.

Asindicatedabove,thereisanemphasisontrainingandsupportforDepartmentalpersonnelasameanstodeveloporganisationalcompetencetoaccommodatediversityandpromoteequality.In line with this a programme of DiversityAwarenessTraining has been in place since 1998andanestimated2,500personnelwhodealwith thepublichaveparticipated in this training.ThetrainingprogrammewasdesignedjointlybytheCorporateDevelopmentUnit(DSFA),theNationalConsultativeCommitteeonRacismandInterculturalism,theTravellersVisibilityGroupinconsultationwiththeRegionalDirector’sOffice(DSFA).Coursecontentuptoend2004hasconsistedofpresentationsonracism,immigrationandlegislation(presentedbyIrishCentreforMigrationStudies),disabilityawareness(IrishWheelchairAssociation),andTravellerAwareness(PaveePoint). In late2004,attheDepartment’s invitation,theEqualityAuthorityprovidedanoverviewtoagroupofRegionalCo-ordinatorsandESSstaffontheneedtocreateagreaterawarenessoftheapplicationoftheWEOPamongstDepartmentalstaff.

AnewDiversityAwarenessCoursewasintroducedin2005.Thiswasawardedtoanexternalconsultancycompanyandthecoursecontentcoversdefiningdiversity,exploringdifferences,andexploringculture.Thecoursedeliveryinvolvesaninteractivetrainingdayincludingdiscussionandpracticalexercises.Followingthepositiveappraisaltothenewcourse,theDSFAhasdecidedtoacceleratetherolloutoftheprogrammein2006.Othertraininginitiativesincludeprovidingsessions for regional staff on communicating with persons who do no have English as theirmothertongueandinMay2006commencingthedeliveryofamentalhealthawarenesstrainingprogrammetoselectedfront-linestaffinassociationwithMentalHealthIreland.

Inadditiontotrainingforpersonnel,abookletcontainingguidelinesonmeetingandcommunicatingwithpeoplewithdisabilitieswasproducedin2004.TheproductionofthebookletresultedfromaninitiativetakenbytheDSFAin2003thatculminatedinareportonissuesaffectingstaffwithdisabilities.AmonitoringgrouphasbeensetupbytheDSFAtomonitortheDepartment-wideimplementationofthereport’srecommendations.

More generally, underGoal 41of its strategic plan for theperiod2005 to2007 theDSFA isrepresentedonvariousQualityCustomerService (QCS)Groups including thesub-grouponequality/diversity.

1 Provide relevant and effective supports to those affected by poverty and social exclusion and co-ordinate the development and implementation of the Government’s strategy in this area, in co-operation with other statutory and voluntary agencies.

3.4 Other Initiatives Related to Accommodating Diversity Promoting Equality

Outline Sectoral Plan Under Disability Bill 2004AspartoftheGovernment’sNationalDisabilityStrategytheDSFAisoneofsixdepartmentsrequiredtoprepareaSectoralPlansettingoutserviceprovisionforpeoplewithdisabilities.TheOutlineSectoralPlanpreparedbytheDSFAidentifiestheBTWASandtheBTEASasamongtheprinciple supports providedby theDSFA topeoplewithdisabilitieswhowish to accessemploymentandtraining.ItalsonotesthatoneofthehighlevelgoalsidentifiedinitsStatementofStrategy2005-2007istofacilitateandimproveaccesstoeducation,trainingandlabourmarketprogrammesforpeoplewithdisabilities.TopursuethisfourtasksarepresentedintheOutlineSectoralPlan:

(a) toidentifyanappropriaterangeofoptions(includingschemesalreadyavailable throughotherDepartmentsandAgencies)toassistpeoplewithdisabilitieswho areinreceiptofsocialwelfarepayments,totakeupemployment; (b) toreviewtheapplicationofrulesforcontinuingentitlementtosicknessand disabilitypayments,toensurethattheyareappropriatetotheneedsofcustomers inachanginglabourmarket; (c) topilotspecificemploymentinitiativesforpeoplewithdisabilities,initiallypeople inthe16-25agegroupwhoqualifyforlong-termdisabilitypayments;and, (d) toreviewtheapplicationoftheBack-to-WorkAllowanceSchemeandrelated supportstopeoplewithdisabilitiesandbringforwardproposalsforanynecessary changes.(pp.8-9)

TheOutlineSectoralPlanalsooutlines twospecificmechanisms thathavebeenput inplacefor thepurposeofconsultingwithandseeking theviewsofpeoplewithdisabilitieswhoarecustomersoftheDepartment’sservices.Theseare:

1 Disability Consultative Forum ThisForum,whichwasestablishedin1996,comprisesrepresentativesofthe principaldisabilityorganisationsandmeetsonaquarterlybasis. 2 Customer Panels Currently,customerpanelsforrecipientsofillnessanddisabilityrelatedpayments areheldintheDepartment’sNorthEastandSouthEastregions.

TheOutlineSectoralPlancommitstheDSFAtofosterconsultationthroughthesemechanisms.

Inorder tomeet its statutoryobligationsarising fromtheDisabilityAct2005, theDSFAhasundertakenasystematicauditofeachschemeareatoaccuratelyassesstheircurrent levelofservicetopeoplewithadisabilityandtohelpidentifygapsincurrentserviceprovision.Theauditcoversaccessibilityofservices,physicalaccess,customerservice,andongoingcommunicationswithcustomerswithidentifiedspecialneeds.

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Expenditure Review of Disability and Illness Payment SchemesTheReportoftheWorkingGroupontheReviewoftheIllnessandDisabilitySchemespublishedin2003consideredtheemploymentsupportobjectivesoftheschemes.ItnotedthattheDSFAaimstoencouragepeoplewithdisabilitiesandlong-termillnessestoidentifyandtakeupemployment,training,educationalandself-developmentopportunities.Fromtheevidencereviewedaswellassamplesurveysundertakenaspartofthereviewitconcludedthatprogressiontoemploymentwaslowamongpersonsavailingofexistingsupports.OnefactortheReporthighlightedasadisincentivetotakingupemploymentwasthelossofcertainsecondarybenefits(particularlytheMedicalCardandMobilityAllowance).Amongtheoverallconclusionsreachedinthatregardwasthatemploymentsupportsforpeoplewithdisabilitiesneedtobemoresystematicandeffective.Twelve specific recommendationsweremade to strengthen employment support for peoplewithdisabilities(seeAnnex2).

Pilot Integrated Employment Support Approach for People with DisabilitiesThispilotwasinitiatedinJanuary2005asamultiagency(i.e.,DSFA,FÁSandtheHealthServiceExecutive)responsetotheincreasingnumberofrecipientsofDisabilityAllowance,inparticularthehighnumberofpersonsbetweentheagesof16and25yearsinreceiptofDisabilityAllowance.TheoverallincreaseinthenumberofrecipientsofDisabilityAllowancebetween1997and2004was69%,withthenumberofrecipientsinthelatteryearbeing72,976.Ofthelatternumber,10,269(i.e.,14.1%)areagedunder25years.Thepilot,whichistobeevaluatedinthenearfuture,identifiedarangeifissuesthatneedtobeaddressediftheDSFAistobeabletopursueapolicyofactivationwithpeoplewithdisabilities. These issues includehavingaccesstoaccurateanduptodateinformationonclients,thevalidityofawardinga“permanentdisabilityentitlement”toyoungpeoplewithoutregardtoanoccupationalassessmentof theircapacity forworkoremploymentaspirations,theneedtoaddressgapsintrainingandemploymentprovision,andtheneedforgreateraccesstoamoreextensivepsychologicalandcounsellingservice.

Expenditure Review of the Back to Education Allowance SchemeTherecentlyconcludedReportoftheWorkingGroupontheReviewoftheBacktoEducationAllowanceScheme(September,2005)documentstheadoptionofanintegratedproofingtemplateaspartofitsmethodology.Theproofingtemplatecoveredallninegroundscoveredbyequalitylegislation.ThefocusoftheexercisewasonexaminingwhethertheReview“sufficientlyrecognisedthediversitywithintheBTEAtargetgroupsandonhowsuchgroupsarenamedandcateredforbytheexistingBTEAschemeandthroughthefuturedevelopmentoftheschemearisingfromtherecommendationsoftheReview”(p.14).TheviewsoftheWorkingGroupregardingcateringfordiversitywithintheBTEASincludeextendingeligibilitytorecipientsofthePre-retirementAllowanceScheme(allofwhomareinthe55andoveragegroup)andrecognisingperiodsspentinreceiptofsupplementarywelfareallowanceforthepurposeofcalculatingthequalifyingperiodfor eligibility (this being applicable to asylum seekers who were in receipt of supplementarywelfareallowancependingtheirclaimforrefugeestatus).Also,theWorkingGroupconcludedthatthereisa“needtotrackparticipationandoutcomesforthediversityofpeoplewithinthetargetgroupsbyincorporatingthisintoaschemetracking/monitoringsystem”(p.60).

Quality Interpretation ServicesDuring2004,12oftheDSFA’slocalofficesandtheDublinHQpublicofficehavehadaccesstoa dedicated telephone systemproviding a three-way connection between the customer, staffmember anda call-centrebasedcontractorproviding interpretation services. Access to thisinterpretationserviceisalsoprovidedtosmallerofficeswheretheneedarises.Theoperationoftheinterpretationfacilityisthesubjectofongoingqualityreview.

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3.5 Equality Matters in Data Collection ProceduresAsdiscussedinmoredetailbelow,theeligibilitycriteriaforboththeBTWASandtheBTEASarebasedonbeinginreceiptofspecifiedwelfarepaymentsandadditionalcriteriaconcerningageandduration inreceiptofpayment. Data fromDSFA’sadministrativesystemareused indeterminingeligibilitytoparticipateintheprogrammesfundedunderESSanditcontainsdataongender,age,familystatus,disability(insofarasthisisdefinedbyreceiptofanillnessordisabilityrelatedwelfarepayment)andincertaininstancesnationality.DataonmembershipofminorityethnicgroupsandtheTravellerCommunityarenotcollectedaspartofregistrationandqualifyingproceduresandconsequentlyitisnotpossibletoanalyselevelsofparticipationonthesegrounds.AsisindicatedbythepresentationofdataonthecompositionofparticipantsintheBTWASandtheBTEASlaterinthisreport,dataaregenerallyavailableinrespectofvariousgroundsontheirownbutnotonthebasisofmultiplegrounds(e.g.,abreakdownofgenderbyagebydisabilityinrelationtoparticipantsonBTWASorBTEAS).

ThereisanawarenessonthepartofEmploymentSupportServicesandtheDSFAmoregenerallyoftheneedtodevelopgreatercapacityintheareaofdatacaptureanddataprocessinginrespectofbeneficiariesofESS(i.e.,theneedforamorecomprehensivemonitoring/trackingsystem).ThisissignalledinthequotationfromtheReportoftheWorkingGroupontheReviewoftheBacktoEducationAllowanceSchemecitedaboveandbycommitmentsmadeinthe2004reporttotheMonitoringCommitteeoftheEHRDOPtodevelop-inrelationtotheSpecialProjectsFund-areportingtemplatetocapturedatarelevanttothesocialinclusionandwiderequalityhorizontalprinciples.Currently,themainheadingunderwhichdatarelatingtotheWEOPiscollectedinthecaseofprojects funded,co-fundedorpart-fundedbytheSpecialProjectsFund is“TargetGroup”.Examinationoftheactualentriesunderthisheadingshowedthattheyvariouslyrelatetolabourmarketstatus/socialinclusion(e.g.,verylong-termunemployed),groupmembership(e.g.,peoplewithdisabilities,membersof theTravellerCommunity, refugees), and to location(e.g.,disadvantageruralmen).WhiledataonthenumberofindividualparticipantsarecollecteditisnotpossibleundercurrentprocedurestodisaggregatethesebymembershipofthegroupscoveredbytheWEOP.

Moregenerally,aspartofitsdataandstatisticsstrategytheDSFAhasidentifiedfourhighlevelobjectives.Thethirdoftheseencompassesdataconcerningequality:“Toensurethatourdatasourcesfacilitatenationaldevelopmentsinsocialandequalitystatistics”.TheDSFAiscurrentlyengagedinarangeofactionstomeetthisanditsotherstrategicobjectivesintheareasofdatacollection,managementandanalysis.

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ESS fallswithin the Employability pillar of the EHRDOP. There are three specific objectivesassociatedwiththe22measuresincludedinthispillar:mobilisationoflaboursupply,preventiveapproach to unemployment, and social inclusion. ESS is one of nine measures seeking“tominimiseunemploymentandpreventthedriftintolong-termunemploymentbystrengtheningthepreventiveapproach”(EHRDOP,p.68).ESSisalsooneofthe10selectedmeasuresintheEHRDOPprioritisedforgreaterintegrationoftheWEOPandconsequentlyESSisnowrequiredtoidentifyandreportontheactionstakentoapplytheWEOP.

4.1 Aim of Employment Support ServicesTheoverallaimofESSis“toassistunemployedpeople,particularlythelong-termunemployed,loneparents,andsicknessrelatedwelfarerecipientstoreturntotheactivelabourmarketeitherbytakingupemploymentorbecomingself-employed”(RevisedProgrammeComplement,p.1).

4.2 Description of Employment Support ServicesThe measure consists of the Back toWorkAllowance Scheme (BTWAS)2 and the Back toEducationAllowanceScheme(BTEAS)3togetherwiththeadviceandsupportservicesprovidedtounemployedpeople,loneparentsandpeoplewithdisabilitiesinreceiptofcertainsocialwelfarepayments. In the main, these advice and support services are provided by Jobs Facilitators,nowcalledFacilitators.WithintheBTWAStherearetwostrands:onesupportingentry intoemploymentandonesupportingentrytoself-employment.EntrantstobothofthesestrandsmayalsoavailofTechnicalAssistanceandTrainingGrants.Thetypesofsupportprovidedfromthissourceincludecoveringthecostsofpreparingabusinessplan,undertakingmarketresearch,andmakingfinancialprojectionsinthecaseoftheself-employedstrandandpreparingforinterviewsandobtainingcomputertraininginthecaseoftheemployeestrand.TheBTEASalsocontainstwostrands:onesupportingaccesstosecondleveleducation(i.e.,SecondLevelOption-SLO)andonesupportingaccesstothirdleveleducation(ThirdLevelOption-TLO).

FlankingthemeasureistheSpecialProjectsFund.Itprovidesgrantstoprojectsrunbythirdpartiestoassistwelfarerecipients-aswellasmembersoftheirfamilies-improvetheiremployabilitythrougheducation,trainingandpersonaldevelopment.TheDSFAseestheFundandtheprojectsitsupportsasawayofimprovingemployabilityandincreasingsocialinclusion.ItalsoseestheFundasameansofsupportinginnovativeresponsestoincreasingemployabilityandtacklingsocialinclusion.FacilitatorshaveaccesstotheFundandtheiruseoftheFundhasfocusedonassistingpeoplemostmarginalisedinsocialandeconomicterms.TheFundisoperatedinamannerthatenablesaquickresponsetoanyneedsidentifiedandisimplementedasonce-offfundingtotestanddevelopresponsestotheneedsidentified.TheDSFAalsohighlightstheroleofthisFundinthecontextofaddressingitsresponsibilitiesunderthesocialinclusionhorizontalprinciple.

The BTWAS is a weekly allowance available to qualifying persons taking up employment orbecomingself-employed.Forpeopleenteringtheemployeestrandoftheschemetheallowanceispaidinadditiontothewagestheyreceive.Theallowanceispaidforaperiodofthreeyearsonaslidingscale:thatis,75%ofthewelfarepaymentpayableonentrytotheschemeforthefirstyear,50%inthesecondyear,and25%inthethirdyear.Inthecaseofpeoplebecomingself-employedtheallowanceispaidonaslidingscaleforaperiodoffouryears:thatis100%inyear1,75%inyear2,50%inyear3,and25%inyear4.Secondarybenefits(e.g.,rentallowance,MedicalCard)mayberetainedsubjecttocertainconditions.

4. Measure 15: Employment Support Services

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2 The BTWAS was introduced in 1993.3 Following on from a number of pilot initiatives beginning with the Educational Opportunities Scheme in 1986 and including the introduction of the Third Level Allowance in 1990, the BTEAS was consolidated in its current form in 1998.

The BTEAS is an allowance paid to qualifying persons accessing approved second and thirdlevelcoursesofstudy.Theallowanceissetatthemaximumstandardrateofthesocialwelfarepaymentqualifyingthepersontoparticipateinthescheme.Secondarybenefitsmayberetainedsubjecttocertainconditionsandasinglepaymentof€400toassistwiththecostsofparticipatingineducationisalsoprovidedtoparticipants.

4.3 Target Groups and Eligibility Criteria of ESSThetargetgroupsofESSareprimarilydefinedbytheirwelfarestatus(i.e.,welfarerecipients).Within this the revised Programme Complement lists the following:“long-term unemployed,recipientsofOneParentFamilyAllowance,DisabilityAssistance,BlindPersonsPension,InvalidityPension,DisabilityBenefit,formerrecipientsofCarersAllowance,otherSocialWelfarerecipients,anddependentspousesofthesecategories”(p.1).

Eligibilitycriteriarelatedtodurationinreceiptofqualifyingwelfarepaymentsareinoperation.UptoMarch2006,forpersonsinreceiptofunemploymentrelatedpayments,thequalifyingperiodfortheemployeestrandoftheBTWASwasfiveyears(thiswasincreasedfrom15monthsinJanuary2003).On1stMarch2006thequalifyingperiodfortheemployeestrandwasdecreasedto2years.InMarch2004thequalifyingperiodforpersonsaccessingtheself-employedstrandoftheBTWASwasreducedfromfiveyearstothreeyears.From1stMarch2006thequalifyingdurationfortheself-employedstrandisnowalso2years.

Persons in receipt of DisabilityAllowance, Blind Persons Pension, and Invalidity Pension alsoqualifyfortheBTWAS.InthecaseofthesethreepaymentsthequalifyingdurationforentrytotheemployeestrandoftheBTWASis15monthsor12monthsifthepersonisover50yearsofage.Inthecaseofthesethreepaymentsthequalifyingperiodforentrytotheself-employmentstrandoftheBTWASis12months.InthecaseofpersonsinreceiptofDisabilityBenefitthequalifyingperiodforentrytobothstrandsoftheBTWASisthreeyears.

ThequalifyingcriteriaforparticipationintheBTEASfallintofourcategories:persons,

• aged21yearsorover(or24yearsoroverforanapprovedpostgraduate qualification),andinreceiptofoneofanumberofspecifiedsocialwelfare paymentsforaleastsixmonthsfortheSLOand12monthsfortheTLO; • aged18to20years,outofformaleducationfor2years,andinreceiptof UnemploymentAssistance/BenefitorOneParentFamilyPaymentforsix monthsforSLOand12monthsforTLO; • aged18yearsandoverinreceiptofBlindPersonsPension,DisabilityAllowance, InvalidityPensionorUnemployabilitySupplementforsixmonthsforSLOand12 monthsforTLO; • inreceiptofDisabilityBenefitforthreeyearsormore.

4.4 Structures and Personnel Implementing ESSTheEmploymentSupportServicessectionoftheSocialandFamilySupportServiceundertakescentralsupport,policy,andreportingfunctionsinrelationtotheimplementationoftheBTWASand the BTEAS. Its role includes formulating policy, disseminating information, providingguidelines,customersupport,reviewingapplicationsandco-ordinatingtheadministrationoftheschemes.ItalsopreparesthereportsonESSforsubmissiontotheMonitoringCommitteeoftheEHRDOP.

Other sections of the DSFA are also involved in administering the schemes comprising ESS.These includeSocialWelfareLocalOffices, thePensionsServiceOffice (Sligo)and theSocialWelfareServiceOffice(Longford).Theroleofthesesectionsismainlyinprocessingapplications

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from particular groups of social welfare recipients falling within their area of responsibility.Forexample,thePensionsServiceOffice(Sligo)dealswithapplicationsfromrecipientsofthefollowingpayments:OneParentFamilyPayment,DesertedWives’sBenefit/Allowance,Widow’s/Widower’sContributory/Non-ContributoryPensionsandPrisonersWife’sAllowance.TheSocialWelfareOffice(Longford)dealswithapplicationsfromrecipientsofillness,disabilityandcarer’spayments.

AsindicatedinSection4.2,ESScomprisestheadviceandsupportservicesprovidedtounemployedpeople, loneparentsandpeoplewithdisabilities inreceiptofcertainsocialwelfarepayments.TheseservicesaredeliveredbyFacilitators(formerlycalledJobsFacilitators).Currently,thereare40facilitatorpostsandTable4.1showstheirregionaldistribution.

Table 4.1: Number of Facilitator Posts by Region

Region Number of Facilitators

Facilitators were introduced by the DSFA in 1993 and they were seen as a key element ofEmploymentSupportServiceswhichwasestablishedtosupportunemployedpeoplere-establishconnectionswiththelabourmarketandtotakeupemployment.TherationaleforestablishingtheEmploymentSupportServicessectionin1993wasoutlinedbythethenMinisterforSocialWelfare:

“Passive income support is not enoughon its own. Weneeda strongproactive approach to providingadditionalsupportmeasureswhichwill:increasethenumberofjoboutletsandenterprise opportunitiesavailabletounemployedpeople; increasethenumberofoptionsfortrainingand furthereducationavailabletounemployedpeople;andfacilitateunemployedpeopletomakethe mostofthenewopportunitiesavailabletothemtoregainafootholdinthejobsmarket”-quotedin

WRCsec,1997,p.24

Duringthemid1990sFacilitatorsplayedanimportantroleinsupportingtheimplementationoftheBTWASwhich,atthetime,wasexpandingrapidly.TheroleoftheFacilitatorswasbroadlydefinedatthetimeandremainssoatpresent.Insummary,thecurrentroleofFacilitatorsisdefinedasincluding:

• activation(e.g.,identifyingandsupportingwelfarerecipientsmostdistantfrom labourmarketopportunitiestoaccessopportunitiesandsupportstolabourmarket re-entry);• facilitation(e.g.,providingone-to-onesupport,workingwithotheragenciesto improveappropriatereferral,assistingagenciesaccessfundingfromSocialand FamilySupportServices)andmonitoringsame);

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Region Number of Facilitators

NorthWest 4

West 3

NorthEast 5

South 6

SouthEast 4

MidWest 4

DublinWest 6

DublinSouth 3

DublinNorth 5

Total 40

4 WRC Social and Economic Consultants (1997) Developing Active Welfare Policy: An Evaluation of the Back to Work Allowance Scheme. Department of Social and Family Affairs

• aftercare(e.g.,supportingpersonsenteringself-employmentwithassistancefrom theBTWAStodeveloptheirbusinessesanddevelopingfollow-upoptionsfor participantsonprojectsfundedbytheSocialandFamilySupportService);• advocacy(e.g.,seekingtoaddressissuesrelatedtoimprovingservicesfor recipientsofsocialwelfare);• networking(e.g.,participatinginlocalinitiativesanddevelopinglinesof communicationwithotheragencies);and,• influencingpolicy(e.g.,identifyinggapsinprovisionandproposingremediesforsame).

4.5 Promoting Employment Support ServicesIntheearlyyearsoftheBTWAS,Facilitatorsplayedanextensiveroleinpromotingawarenessoftheschemeandoftheothersupportsforunemployedpeople(includingtheforerunnersoftheBTEAS)providedbytheDSFA.Overtime,particularlywiththeestablishmentofAreaBasedPartnershipCompaniesandtheestablishmentoftheLocalEmploymentService(LES),awidersetofagenciesandpersonnelareinvolvedinpromotingawarenessoftheschemesnowincludedinESS.

Currently, in addition to the activitiesof the Facilitators andof theDSFAmore generally (e.g.,throughitswebsiteandinformationbooklets)therearearangeofotherwaysinwhichinformationaboutESSandsupports forpersonsseekingaccesstothemainschemesunder itareprovided.These include informationprovidedbyFÁSEmploymentServiceOfficerstopersonnelreferredundertheEmploymentActionPlan(EAP)process,informationandsupportsprovidedbypersonnelworking inArea Based Partnership Companies (particularly Enterprise Officers and EducationOfficers),andinformationandsupportsprovidedbymediatorsworkingintheLES.InformationisalsoprovidedbyComhairle–oneoftheagenciesoperatingundertheaegisoftheDSFA–throughitsnetworkoflocalCitizensInformationCentresandonitswebsite:www.oasis.ie.

InrelationtotheSpecialProjectsFundit is importanttoemphasisethatwhilethebeneficiariesofprojectssupportedbyitarepersonsinreceiptofwelfarepayments,mostoftheprojectsaredeliveredbyawiderangeofcommunity,localdevelopment,issueandgroupbasedorganisationsandtraininganddevelopmentorganisations.AparticularfeatureoftheoperationoftheFundisthatitallowsRegionalCo-ordinatorsandFacilitatorstorespondtolocalneeds,oftenarticulatedbylocalcommunityandvoluntaryorganisationsworkingwithand/oronbehalfofclientsoftheDSFA.TheavailabilityofresourcesfromtheFundismainlypromotedthroughthenetworkingactivitiesofRegionalCo-ordinatorsandFacilitatorsatlocallevel.

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5. Participation of People Covered by the WEOP in Employment Support Services

ThenumberofparticipantsintheBTWASincreasedrapidlyfollowingitsintroductionin1993,risingfromjustover4,800attheendof1994(justoneyearafteritsintroduction)toapeakofover 39,300 in late 2000. Since then, and reflecting the very changed labourmarket andemploymentcontextwithinwhichtheschemeoperates,thenumberofparticipantshasbeendeclining.Attheendof2004thenumberofparticipantsintheBTWASwas11,566(6,855ofwhomwereintheself-employmentstrandand4,711intheemployeestrand).

In1998previousschemesoperatedbytheDSFAsupportingaccesstoeducationwereamalgamatedintotheBTEAS.TherehasbeenacontinualincreaseinthenumberofparticipantsintheSLOstrandsincethatyear,risingfrom531inthe1998/99academicyearto3,023inthe2004/05academicyear.ThenumberofparticipantsontheTLOstrandhasfluctuatedsomewhat,4,503inthe1998/99academicyear,apeakof5,458inthe2003/04academicyear,and4,280inthe2004/05academicyear.

Basedonfiguresfor2004atotalof225projectswerefundedundertheSpecialProjectsFundatatotalcostof€2.68million.

Basedonavailabledata, this sectionexamines thecompositionofESSparticipants looking inparticularattheproportionofparticipantscomingfromeachofthefourgroupscoveredbytheWEOP.ItshouldbenotedthattheanalysisofthecompositionofparticipantsinESSdoesnotattempttoassesstheextenttowhichpersonsfromthefourgroupsareequitablyparticipatinginthetwoschemescomprisingtheESS.Also,intheabsenceofdataontheresultsofparticipationwearenotinapositiontoassessthedifferentialeffectsofparticipation.Finally,boththeBTWASandtheBTEASareineffectdemanddrivenprogrammeswiththeoverallvolumeofprovisionreflecting the level of demand for these schemes among qualifying persons. One importantfactorinthatcontextisthatpersonsqualifyingforESSalsoqualifyforotherschemesoperatedbytheDSFA,particularlytheoptiontoworkandtoretaintheirwelfarepaymentunderontheincomedisregardschemestargetedtowardrecipientsofillnessanddisabilityrelatedpayments.

5.1 Participation of People Covered by the WEOP in the BTWASDataregardingparticipation intheBTWASareavailablebygender,ageandtypeofqualifyingwelfarepayment. Also, dataonnationalitywereprovidedby theDSFA. The latter, however,areavailableonlyforthatsub-setofparticipantsqualifyingfortheBTWASasaresultofbeingrecipients of an unemployment related welfare payment. Detailed cross tabulations of theavailabledataarenotpossibleandconsequentlyTable5.1summarisestheoverallsituation inrelationtotwogroupscoveredbytheWEOP,peoplewithdisabilitiesandolderpeople.DataonmembershipoftheTravellercommunityarenotcurrentlycollected,thoughallDSFApersonnelinterviewedduringthecourseofthisstudyindicatedthatparticipationbyTravellersisfoundonallschemes,particularlyintheself-employmentstrandoftheBTWAS.However,itisnotpossibletodetermineactualnumbers,thoughtheobservationsoftheDSFApersonnelinterviewedforthisstudyindicatethatwhiletheabsolutenumberis likelytobelowit ishighrelativetothenumberofqualifyingpersonsfromtheTravellerCommunity.

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EU being defined as inclusive of all 25 Member States.

Table 5.1: Analysis of Participation by People with Disabilities and Older People in the BTWAS (2004)

TheoverallgenderbreakdownofparticipantsontheBTWASis70.5%menand29.5%women.At37.1%,theparticipationofwomenishigherintheemployeestrandoftheBTWASthanintheself-employmentstrandoftheBTWAS(i.e.,24.2%).Peoplewithdisabilitiesaccountfor11%ofallparticipantsontheBTWAS.Theproportionofparticipantswhoarepeoplewithdisabilitiesintheemployeestrandat16%isoverdoublethatfoundinrelationtotheself-employmentstrandoftheBTWAS(i.e.,7.6%). Olderpeopleaccount foralmostone in four(23.8%)ofBTWASparticipantsandthisproportionis justslightlyhigherintheself-employedstrand(i.e.,24.9%)thanintheemployeestrand(i.e.,22.4%).

Table 5.2: Analysis of Participation by Non-EU Nationals in the BTWAS (2004)

Data on the nationality of participants provided by the DSFA show a very wide range ofnationalitiesamongparticipants.Takingnon-EU5nationalsasaproxyindicatorofparticipationbymembersofminorityethnicgroupsintheBTWAS,intheregionof6%to7%ofparticipantsare fromnon-EU countries. Among the nationalitiesoccurringwith some frequency amongtheseareBosnians,Romanians,andNigerians.

BTWAS-EE BTWAS–SE BTWASTotal

Unemployment 3,019 5,959 8,978

OneParent 867 337 1,204

Disability 755 521 1,276

Other 70 38 108

Total 4,711 6,855 11,566

%PWD 16.0 7.6 11.0

N50+ 1,054 1,704 2,758.0

%50+ 22.4 24.9 23.8

BTWAS-EE BTWAS–SE BTWASTotal

Ireland 2,555 4,932 7,487

OtherEU 166 535 701

Non-EU 205 366 571

Total 2,926 5,833 8,759

%Non-EU 7.0 6.3 6.5

5.2 Participation of People Covered by the WEOP in the BTEASThegenderbreakdownontheBTEASis41.9%menand58.1%women.AgenderbreakdownforparticipantsintheSLOandTLOstrandsseparatelyisnotavailable.

Table 5.3: Analysis of Participation by People with Disabilities and Older People in the

BTEAS (2004)

Peoplewithadisabilityaccountforalmost9%ofallparticipantsontheBTEAS.At10.4%theproportionofpeoplewithdisabilitiesparticipatingintheTLOstrandoftheBTEASishigherthanthatintheSLOstrand(i.e.,6.7%).IncontrasttotheBTWAS,asmallproportion(i.e.,6.8%)ofparticipantsontheBTEASareaged50yearsandover(againfiguresinrelationtoSLOandTLOseparatelyarenotavailable).

Table 5.4: Analysis of Participation by Non-EU Nationals in the BTEAS (2003)

BTEAS - SLO BTWAS - TLO BTEAS Total

ThefiguresinTable5.4relatetoDecember2003.TheyalsorelatetoparticipantsintheBTEASTLOandSLOstrandswhoqualifiedfromanunemploymentpayment.Thepaymentsystemthatdealswithotherqualifyingpayments(e.g.,LoneParents,DisabilityAllowance)doesnotrecordthenationalityofrecipients.However,thefigurespresentedrepresentapproximately70%oftheparticipants.

The overall level of participation by non-EU nationals in the BTEAS is 6.4%. At 10.6%, theproportionofparticipations intheSLOstrandof theBTEAS isoverdoublethat intheTLOstrand(i.e.,4.2%).

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BTEAS–SLO BTEAS–TLO BTEASTotal

Unemployment 2,018 3,315 5,333

OneParent 794 515 1,309

Disability 204 445 649

Other 7 10 17

Total 3,023 4,285 7,308

%PWD 6.7 10.4 8.9

N50+ 496 496

%50+ 6.8 6.8

BTEAS-SLO BTWAS-TLO BTEASTotal

Ireland 1,499 2,992 4,491

OtherEU 152 292 444

Non-EU 195 143 338

Total 1,846 3,427 5,273

%Non-EU 10.6 4.2 6.4

5.3 Analysis of Projects Funded Under Special Projects FundDuring 2004 a total of 225projectswere funded at a total costof€2.68million under theSpecialProjectsFund.Withanaveragebudgetofapproximately€11,900mostoftheseprojectsareofamodestscaleandmostdealwitharelativelysmallnumberofpeople.Thereis,however,substantialvariationpresentwithasmallnumber(i.e.,10)ofprojectsexceeding€50,000anda largernumber(i.e.,25)beingrunonbudgetsof lessthan€1,000. Also,there issubstantialvariation in the nature of the actions funded with basic literacy, personal development, pre-employment, enterprise development, and specific skills training courses in a wide range ofareasbeingfunded.TheorganisationsbenefitingfromthefundsincludeAreaBasedPartnershipCompanies,nationalvoluntaryorganisations,organisationsprovidingcomputerandotherskillstraining,andlocalcommunitygroups.

Table 5.5: Projects Funded by the Special Projects Fund Catering for People Covered by the WEOP

Fromthefigurespresented inTable5.5 itcanbeseenthatalmostone infive(18.2%)oftheprojectsfundedundertheSpecialProjectsFundbenefitedpeoplefromthreeofthefourgroupscoveredbytheWEOP.Itislikelythatthisfigureisactuallyhigherasatleastanumberofolderunemployed people are actually benefiting frommanyof the projectswhose target group isidentifiedas“unemployed”/“long-termunemployed”/“disadvantagedmen”.

IntermsofthebreakdownofprojectscateringforparticulargroupscoveredbytheWEOP,itispeoplewithdisabilitiesandmembersoftheTravellerCommunitywhobenefitmost. Theirrepresentationamong theseprojectscan, inpart,be seenas a reflectionof thehigh leveloflabourmarketinequalityexperiencedbypeoplefromthesetwogroupsandoftheuseoftheFundtoaddressthis.Basedonanumberofprojectsforwhichevaluationsareavailable,Box5.1presentsbriefaccountsofprojectsthatworkedwithpeoplewithdisabilitiesandmembersoftheTravellerCommunity.

TheDSFA’sanalysisoftheSpecialProjectsFundhighlightsanumberoffeaturesofitsoperationthatareofnote.First,theFundenablesprovisiontobemadeforpeopleexperiencingseveredifficultiesinthelabourmarketandinaccessingmainstreamprogrammes.Second,itisaresourcetoFacilitatorstoenablethemtorespondtotheparticularneedsofgroupsofpeopleandtoenabletailoredresponsestotheirsituations.Third,theavailabilityofresourcesfromtheFundhasenabledtheDSFAtoengageinpartnershipandjointactionswithgroupsandorganisationworkingwithandonbehalfofgroupsofpeoplecoveredbytheWEOP.

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PeoplewithDisabilities

MembersofTravellerCommunity

Refugees

Mixed,butincludingpersonscoveredbytheWEOP

All

TypeofActions

PersonalDevelopmentCourses,LifeSkillsTraining,Job-PreparationandPre-employmentTraining

LiteracyandPersonalDevelopment,HealthAwarenessandHealthCare,SkillsTraining

Pre-employmentCourse,Pre-developmentProgramme

BusinessandComputingCourse,Pre-employmentSkills,AdultEducation,EnterpriseTrainingandSupports

Numberof Projects

12

13

2

14

41

Budget

299,436

198,444

17,000

272,811

787,691

Box 5.1: Illustrations of Projects Supported by the Special Projects Fund

Description/Learning

TheChallengeProgrammewasdesignedtocaterforrecipientsofadisabilitypaymentwhohadbeeninactiveforsubstantialperiodsoftime.Theprogrammeinvolvedidentifyingparticipants’needsandaspirationsandworkingwiththeminaplannedwaytorespondtotheirneedsandrealisetheiraspirations.Itinvolvedtwostages:1:provisionofinformation,guidanceandsupportplusaccesstoskillbasedsessions;2:one-to-onesupporttoassistparticipantsmakerealprogressintheircareers.Outcomesdocumentedincludepositiveprogressiontoeducation,trainingandemploymentfor42ofthe68(i.e.,61.8%)participants.Learningincludedtheimportanceofformalindividualneedsassessment,addressingwelfaretraps,theimportanceofone-to-onesupport,andinitiativestoincreaseunderstandingofthecapacitiesofpeoplewithdisabilitiesamongemployers.

ThemainbeneficiariesofthisprogrammewererecipientsofDisabilityAssistanceorInvalidityPension.Theprogrammeitselfwastailoredtotheneedsofparticipantsassessedasbeing“TrainingandEmploymentReady”,“EmploymentReady”or“WithSpecialNeeds”.Foreachofthesegroupsasequencedprogrammewasprovidedcoveringissuessuchas“CopingwithChange”,“EmployabilityandLifeSkills”and“JobHuntingandEmployabilityProgrammes”.Documentedoutcomesincluded44of48(i.e.,91.7%)participantsprogressingtoeducation,trainingoremploymentoutcomes.Thelearningincludedtheimportanceofbuildingself-confidence,addressingliteracyissues,andworkingwithlocalstatutoryandvoluntaryorganisationsinamulti-disciplinarymannertoassistparticipantsachievepositiveprogressions.

Thismulti-agencyprojectworkedwithyoungandadultTravellers,withtotalprojectbeneficiariesnumbering116.Itundertookarangeofactivities–outreach,after-schoolsupport,developmentalgroupwork,employmentguidanceandreferral.Outcomesdocumentedincludeeightparticipantsprogressingtoemployment,24tovariouscoursesincludingarts,craftsandliteracy,and11takingupskillstraining.Keyrecommendationsmadearisingfromtheprojectinclude:theneedforcorefundingforoutreachandcapacitybuildinginitiativeswiththeTravellerCommunity;locatingresponsibilityforcross-departmentalinitiativesformembersoftheTravellerCommunityintheOfficeforSocialInclusion,andensuringthatTravelleraccommodationplansareimplementedatlocallevel.

Thisprojectcateredfor12Travellermenbetweentheagesof18to60years.Theprogrammeofactivitiesprovidedbythisprojectincludedastrongfocusonliteracyandnumeracy,teachingpracticalskillsbasedontheinterestsofparticipants,andbuildingconfidenceandcommunicationskills.Italsoincludedmodulesoncomputerskillsaswellasvotereducation.ThelatterresultedinparticipantsbecomingregisteredtovoteandparticipatingintheJune2004localelections.Theevaluationoftheprojectnotedthattheitwasparticipant’sfirstexperienceofbeinginalearningenvironmentthatgavethemtheconfidenceandmotivationtopursuefurthereducationandself-development.Oneofthekeyissuesarisingistheneedforcontinuingsupportoverlongerperiodsoftime.

ProjectName

ChallengeProgramme

EnabledforLifeProgramme

WexfordInteragencyTravellerSupportProgramme

AthyTravellerMen’sProject

5.4 Participation of People Covered by the WEOP in ESSAttheendof2004therewere18,874personsparticipatinginthetwomainschemescomprisingESS.Inadditiontothisnumber,therewereover2,000personsparticipatinginthe225projectsfundedundertheSpecialProjectsFund. Asactualparticipantfiguresarenotavailable, this isaminimumfigure.TheseparticipantnumbersmaketheESSoneofthemajorplanksofactivelabourmarketpolicy.

Table 5.6: Analysis of Participation by People with Disabilities and Older People in ESS (2004)

Total Employment Support Services

Allowing forsomeoverlapbetweenthe fourgroupscoveredbytheWEOP,weestimatethatbetween25%to30%ofparticipants inESSare fromthe fourgroupscoveredby theWEOP.ThelargestgroupofparticipantsareolderpeopleandthesearemainlyfoundintheBTWAS,particularlytheself-employmentstrandofthisscheme. Thesecond largestgrouparepeoplewithdisabilitiesandthesearealsomainlyfoundintheBTWASthough,inthisinstance,intheemployeestrandoftheBTWAS.Thetotalnumberofpersonsofnon-EUnationalityisestimatedtobeatleast900withthelargestnumberoftheseparticipatingintheself-employmentstrandoftheBTWAS.Asnotedearlier,dataontheactualnumberofmembersoftheTravellerCommunityparticipating in ESS are not available. In the absence of data, discussions with Regional Co-ordinatorsandFacilitatorsinvolvedinimplementingESSindicatethepresenceofmembersoftheTravellerCommunityonthetwoschemes,thoughinsmallnumbers.

While it isnotpossible tocalculateactual ratesofparticipation foreachof the fourgroupscoveredbytheWEOPinESS(duetotheabsenceofdataonthequalifyingpopulationofwelfareclientsineachgroup),itisclearfromtheavailabledataonthepriorwelfarestatusofparticipantsthatthevastmajorityofparticipantsqualifyforthetwoschemesbyvirtueofbeingrecipientsofanunemploymentrelatedpaymentandmeetingthequalifyingdurationcriteria.BasedonthefigurespresentedTables5.1and5.3,approximatelythreequartersofpersonsparticipatingintheBTWASandBTEASqualifiedbyvirtueofbeingrecipientsofanunemploymentrelatedpayment:theactualfiguresare77.6%and73.0%respectively. Basedon thefigurespresented inTable5.6,theoverallpercentagequalifyinginthismanneris75.8%.Thecorollaryofthisisthatonlyaminorityofparticipantsprogressfromotherwelfarepayments,particularlypeopleinreceiptofillnessanddisabilityrelatedpayments.Withrespecttothelattergroupitshouldbenotedthattakingupemploymentandavailingoftheincomedisregardschemeinplaceforsuchwelfarerecipientsispotentiallymoreattractivebecausetheycanworkpart-time.

TotalEmploymentSupport

Unemployment 14,311

OneParent 2,513

Disability 1,925

Other 125

Total 18,874

%PWD 10.2

N50+ 3,257

%50+ 17.3

As isevident fromthedatapresented in theprevioussection,people fromallof thegroupscoveredby theWEOPparticipate in the twomain schemescomprisingESSandoverall theycomprisebetween25%and30%ofallparticipantsavailingofESS. Takingtheupperestimateof30%,thiscorrespondstoanabsolutenumberofover5,600.Thus,outsideofthetargetedmeasuresintheEHRDOPspecificallycateringforthegroupscoveredbytheWEOP(e.g.,Measure11BwhichincludesSeniorTravellerTrainingCentres,Measure16whichisprovidingpathwaystoemploymentforpeoplewithdisabilities,andMeasure17whichprovidesEnglishlanguagetuitionforrefugees)ESS,becauseofthescaleofitsprovision,iscateringforthelargestsinglenumberofparticipantsfromthefourgroupscoveredbytheWEOPofallmeasuresintheoperationalprogramme.Thereasonsforthisaswellasthepossiblebarriersimpedingevenhigherlevelsofparticipationwereexploredatagroupmeetingwith20FacilitatorsandRegionalCo-ordinators.Itshouldbenotedthatthissectionisbasedlargelyontheobservationsandviewsofparticipantsinthisgroupmeeting.

BeforereportingthespecificbarrierstoparticipationidentifiedbytheDSFApersonnelattendingthegroupmeeting,twogeneralobservationsweremadeconcerningtheoveralllabourmarketsituationofpeoplefromthefourgroupscoveredbytheWEOP:thefirstoftheseobservationsconcernsthesupplysideandthesecondthedemandsideofthelabourmarket.

First,therewasawidelyheldviewthatasubstantialnumberofpeoplecurrentlyinreceiptofwelfare payments - particularly long-term recipients - experience a combinationof personal,family,healthandsocialdifficultiesthatmaketakingupemploymentandeducationalopportunitiesdifficult.ThelikelyeffectoftheEmploymentActionPlanprocessoverthepastnumberofyearswasnotedinthisregard:thatis,peoplewhomthesystemcouldsupporttoenteremploymentandaccesslabourmarketprogrammeshadbeenassistedandthat,consequently,amongcurrentlong-termwelfare recipients there is a higher proportionof people experiencing severe andoftenmultiplebarrierstolabourmarketentryandforwhomprogressionopportunitiesareverylimited.PeoplefromthefourgroupscoveredbytheWEOPareamongtheselong-termwelfarerecipients. The interventionsrequiredtoassist thisgroupofpeoplewere identifiedasbeingmorediverse than skill training andmore intensive than conventionallyundertakenbyDSFApersonnelortheircolleaguesinFÁS.ThisobservationledtothepilotingoftheHighSupportsProcess(HSP)in2003anditsextensionnationwidein2004.AnevaluationoftheHSPhasbeenundertakenanditsrecommendationsarecurrentlybeingconsideredbyFÁSandtheDSFA.

Second,participantsinthegroupmeetingalsonotedthatcompoundingtheveryweaklabourmarketpositionofmanylong-termwelfarerecipientsisareluctanceonthepartofemployerstorecruitfromamongparticulargroupsofpeople,notablypeoplewithdisabilitiesandmembersoftheTravellercommunity.

Arisingfromtheabove,anumberofissueswereraisedastothecapacityofDSFAFacilitatorsactingontheirowntointerveneinamannerthatwouldeffectivelyenhancethelabourmarketpositionofmanyoftheirclientsincludingpersonscoveredbytheWEOP.Inbroadterms,threeissueswereraised.First,andatagenerallevel,thereistheissueoftheresourcesandpersonnel

6. Issues Identified as Influencing Participation by People Covered by the WOEP in Employment Support Services

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required to engage more intensively and over extended periods with persons experiencingparticulardifficultiesinrelationtoaccessingemploymentandlabourmarketprogrammes.Thatis,thenumberofFacilitatorsinplaceissmalland,asindicatedearlierinSection4.4,theyalreadyhavewiderangingresponsibilitiesofwhichdirectengagementwithclientsisbutoneaspectoftheir current role. Second, the issueof the specific skills required toengagewithparticulargroupsofpeople,notablypeoplewithdisabilities,wasraised.Thatis,particularskillsarerequiredtoassistpeoplewithdisabilitiestoidentifytheiremploymentaspirations,theirneedsinrelationtothesupportsrequiredforthemtoaccessemploymentorlabourmarketprogrammes,andtoundertakeoccupationalassessmentand identifysuitableemployment. The jobdescriptionandroleofFacilitatorsdoesnotincludetherequirementforsuchskills.Thethirdissueraisedis a system related issue: that is,while engagementwith people in receipt of unemploymentrelated payments had been possible under the EmploymentAction Plan process because oftheconditionalityofunemploymentrelatedpayments, this isnotpresent inrelationtootherpayments,againnotablyclientsinreceiptofillnessanddisabilityrelatedpayments.Itisimportanttonotethatthispointwasnotbeingmadeinamannerthatsuggestedthatsuchpaymentsbemadeconditionalinthesamemannerasunemploymentrelatedpayments.Rather,attentionwasdrawntotheneedtodeveloprelevantandeffectivemechanismstoengagewithpeoplewithdisabilities.

InadditiontothepointsregardingtheoveralllabourmarketsituationofthefourgroupscoveredbytheWEOPmadeabove,themainspecificissuesraisedbyDSFApersonnelinrelationtothesegroupsaresummarisedbelow.

• Forolder peoplecurrentlyinreceiptofunemploymentrelatedwelfarepayments,themain difficultyidentifiedinaccessingemployment(andavailingoftheBTWAS)wasacombination of the absence of employment related skills combined with the presence of other personal, familyandsocialdifficulties. However,particulardifficultieswereidentifiedas affecting unemployed older people in rural areas: that is, the lack of transport and of locallyaccessiblejobs.Ingeneral,olderpeoplewereseenashavinglowlevelsofinterest inandmotivationtoparticipateintheBTEAS.

• Forpeople with disabilitiesthemainissueidentifiedwasthelackofattentionbeingpaid tosupportingaccesstopart-timeemploymentandformsofworksuchashomeworking. Also,therewasarecognitionthatmanypeoplewithdisabilitieswantedtoworkbutthe necessarysupportsarenottheretoeffectivelyassistthem.Asystemrelatedissuearising inthecaseofpeoplewithdisabilitiesistheabsenceofassessmentsofemployabilityanda reliance on medical assessments for the purpose of determining eligibility for welfare payments. (This point is also noted in the DSFA’s Expenditure Review of Illness and DisabilityRelatedPayments).Ifpeoplewithdisabilitiesaretobeassistedintoemployment there is a need to adopt an approach that examines work capacity (including partial capacity)andidentifiesemploymentaspirations.

• Thekeyissueidentifiedinrelationtomembers of minority ethnic groupsconcerned languageskills.WhereEnglishlanguagecompetencywasnotpresentthisraisedconsiderable barrierstoparticipation.

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• Inrelationtomembers of the Traveller community–particularlyTravellermen – the key consideration identifiedwas cultural: that is, the presenceof self-definitions asbeingbusinessmenandhencethelowvalueplacedonbecominganemployee.Asecond issue, however, is the view that many members of theTraveller community are not perceivedbyemployers tohave thenon-technicalor“soft- skills”required tobecome employees. In relation to participation in the BTEAS, the key issue identified as being associatedwith the lowproportionofmembersof theTraveller community accessing thisschemeisthe lowvalueplacedoneducationalqualifications.Thismay,however,be changingamongyoungmembersoftheTravellercommunity.

NotingthegeneralpointsmadeaboveoneofthekeypointsmadeinrelationtoassistingpeoplefromthefourgroupscoveredbytheWEOPprogresstowardemploymentwastherelevanceofandtheneedformoreinter-organisationalapproaches.Pursuinganddevelopingsuchinter-organisationalapproachesiscurrentlypartofthebriefofRegionalCo-ordinatorsandFacilitatorsanditisalsoevidentinthemannerinwhichprojectsfundedundertheSpecialProjectsFundareidentifiedandresourced.

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ThreeofsixhighlevelgoalsoftheDSFAdirectlyidentifyobjectivesandcorrespondingactionsthatguideandimpingeonmattersrelatedtoaccommodatingdiversityandpromotingequality.Toillustratethis:undergoaltwo–supporttowork–specificobjectivesandactionsinrelationtopeoplewithdisabilitiesandolderpeoplearespecified;goalfour–povertyandsocialexclusion–explicitlyincorporatesobjectivesandactionstoensurethattheparticularinterestsofgroupsaffectedbyorvulnerabletopovertyandsocialexclusionareaddressedandidentifiesamongtherelevantactionsanumberofmeasurestopromoteequality,specificallythedeliveryofservicesandsupports inanequitableandnon-discriminatorymanner;and,goalsix–theDepartmentanditsstaff–incorporatesactionsdesignedtounderpincapacitytopromoteequalityincludingcustomerconsultationandtrainingfordepartmentalpersonnel.GiventheDSFA’sleadroleintheNationalAnti-PovertyStrategyandtheinclusionofequalityobjectiveswithinthestrategy,thereisastrongorganisationalimperativeoncombatingsocialexclusionandidentifyingactionstotackleinequalityofopportunityinaccesstothelabourmarket.ThesehighlevelorganisationalcommitmentsandassociatedactionsframetheoperationaldeliveryofalltheDSFA’semploymentsupports,includingESSwhichhasbeenthefocusofthismeasurestudy.

7.1 Overall Conclusions and RecommendationsAsnotedabove,theDSFAplacesahighpriorityonputting inplacepoliciesandpracticestoaccommodatethediversityfoundamongitsclientsanditviewsthisasanimportantaspectofitsapproachtopromotingequality.ThisisevidentinthecommitmentsstatedinitsCustomerActionPlan2004-2007andintheactionsithasandistakingtosecurethesecommitments.AmongthefactorsthatcanbeidentifiedasinfluencingtheprioritiesandpracticesoftheDSFAinthisareaaretheincreaseddiversityevidentinitsclientbaseandastrongcommitmentonthepartoftheDSFAtodeliveringqualityservicesthathavethecapacitytoaccommodatediversity.ParalleltothisistheincreasingemphasisplacedbytheDSFAonmovingtowardsamoreactivistwelfarestanceemphasising theprovisionof supports and services that facilitate access toeducation,training andemployment in addition toproviding incomesupport. An importantelementofthelatterisESS.Themotivationforthisstancehasevolvedsincetheearly1990swhenitfirstemergedandnowencompassesnotaloneadesiretoprovideanddevelopservicestosupportclientsmaketransitionsfromwelfaretoemploymentbutalsotoimplementprogrammesandservices thatmake a contribution tomeeting high level goals in the areasof securing socialinclusionandaddressingpoverty.ThispositionhasrecentlybeenunderlinedintheprovisionsoftheSocialWelfareLawReformandPensionsBill(2006).SpeakingatthelaunchoftheBilltheMinisterforSocialandFamilyAffairsstatedthat:

‘Theimprovements,increasesandreformsinthisBillrepresentafurtherstepinawide-ranging programmeofreformsofsocialpolicy.Irelandisnowmakingsteadyprogressintacklingthecore issuesthatleadtopovertyandleavepeoplevulnerableandmarginalised.Investmentinwelfare supportsandentitlementsnowaccountsforoneineverythreeeurotheStatewillspendthisyear. Butpaymentsalonewillnotsolveorsocialproblems.Thatiswhywemustgobehindthepayments andtacklethecauses.’

7. Conclusions and Recommendations

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Notingtheabove,andbasedonthefindingsofthismeasurestudy,oneofthechallengesarisingisestablishingspecificlinkagesbetweenpoliciesandpracticesconcerningaccommodatingdiversityintheareaofcustomerservicesgenerallyandthedesignandimplementationofthetwomainelementsofESS.Onthispoint,itisclearthatwhilethepoliciesandpracticesoftheDSFAtakeintoaccountthediversitypresentintheclientbaseoftheorganisation,ESSwasdevelopedandhasevolvedprimarilyasalabourmarketmeasureconcernedwithincreasingemployabilityandsecuring transitions to employment for recipients of a range of qualifying welfare payments.While it is evident from the participation figures presented in this report thatmembers ofallfourgroupscoveredbytheWEOPareparticipatinginboththeBTWASandtheBTEASinsignificantnumbers,thediversityfoundamongparticipantsinthesetwoprogrammeshasarisenlargely in theabsenceofspecificactions tosupport theirparticipation. Havingsaid that, thelevelsofparticipationfounddoreflectthestrongcommitmenttoandcorrespondingeffortstoimplementtheprogrammesinanon-discriminatorymanner.

As ESS is one of the 10 measures of the EHRDOP required to address the wider equalityhorizontalprinciplethereisaneedtomakemoreexplicitthepoliciesandpracticesthatareinplacetoaddresstheissuesofaccommodatingdiversityandpromotingequalitywithinthedesignandimplementationofthemeasure.SuchpoliciesandpracticesshouldcontinuetobespecifiedinmeasuredocumentationsuchastheProgrammeComplementforESSandinreportsonthemeasure.Areastoconsiderinthisregardareidentifyingspecificactionstoenhanceparticipationby people with disabilities and members of theTraveller community in BTWAS and BTEAS(e.g., outreach or inter-agency work with members of theTraveller Community with a viewtoincreasingnumbersintheemployeestrandoftheBTWASand,moregenerally,consideringrelevantrecommendationsoftheReportoftheWorkingGroupontheReviewofIllnessandDisabilityPayments).Also,andasnotedbelow,theoperationoftheSpecialProjectsFund,couldbemoreexplicitlylinkedtoaidingincreasedparticipationbythegroupscoveredbytheWEOPinboththeBTEASandtheBTWAS.

Moregenerally,thereisaneedtoensurethatthecurrentemphasisoftheDSFAindevelopingitsapproachtotheactivationofclients(mainlyforreasonsofsocialinclusionandcontributingtotheobjectivesoftheNationalAnt-PovertyStrategy) isparalleledbyanequalemphasisonaccommodatingdiversityandpromotingdiversitywithinactivationmeasuressuchasESS.Withregardtothis,considerationshouldbegiventodevelopingtheproofingtemplateadoptedduringthecourseoftheexpenditurereviewoftheBTEASandusingitatooltoimprovetheoperationsofESSintheareasofaccommodatingdiversityandpromotingequality.Also,whileacknowledgingthepresenceofparticipantsfromthegroupscoveredbytheWEOPamongparticipantsinESS-thoughnotingthelowlevelofparticipationbymembersoftheTravellerCommunity-thereisaneedtorespondtobarrierstoparticipationidentifiedasarisingforpeoplecoveredbytheWEOPbyputtinginplacemeasurestoaddressthesebarriers.AfurtherreasonfordoingthisisthatESSrepresentsasubstantialcomponentofactivelabourmarketpolicyanditspolicies,practicesandperformance in theareasofaccommodatingdiversityandpromotingequalitycanhaveasubstantialeffect intermsofaddressingthe labourmarket inequalityexperiencedbypersonsfromthefourgroupscoveredbytheWEOP.OnepossiblemechanismthatcouldassistinthisregardiseitherdrawingonexistingcustomerpanelsorextendingtheoperationofthecustomerpanelscurrentlyinplaceinrespectofdisabilitytocovertheotherthreegroundsoftheWEOP.ConsiderationofthefeasibilityandscopeofthisexercisecouldbeexaminedspecificallyinthecontextofenhancingthecapacityofESStoaccommodatediversityandpromoteequality.

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Givencurrentlabourmarketconditions-lowunemployment,highemploymentgrowth-thereis scopewithinESStomoreexplicitlyaddress the labourmarket inequalitiesexperiencedbygroupscoveredbytheWEOP.Moreparticularly,giventhescaleofESSaswellasthenatureoftheschemesitsupports,considerationshouldbegiventoensuringthatESSpaysparticularattention toengagingwithpeoplewithdisabilities andmembersof theTravellerCommunitywithaviewtoaddressingtheparticularlyseverelabourmarketinequalitiesexperiencedbythesegroups.

7.2 Conclusions and Recommendations Concerning the Special Projects FundTheSpecialProjectsFundisaflexibleandusefulresourcethattheDSFAhasdevelopedtoengagewith andmakeprovision forpeopleexperiencing severedisadvantage in accessingeducation,trainingandemployment.Themannerinwhichitoperates(i.e.,throughtheprovisionofco-funding,part-funding,aswellasoverallfunding)permitsittoactasaleverofadditionalfundsintoservicesforthetargetgroupsoftheFund.Italsoactsasmeansoffosteringinnovationandsupportingmulti-agency/inter-organisationalactioninrelationtoaddressingthelabourmarketneedsofitstargetgroups.

It is clear from the data on participation in projects supported by the Fund that all groupscoveredbytheWEOPbenefitfromtheservicesandprojectsresourcedbytheFund.Overall,approximately one in five projects (i.e., 18.2%)were engagingwith threeof the four groupscoveredbytheWEOP(i.e.,membersoftheTravellercommunity,peoplewithdisabilities,andmembersofminorityethnicgroups)anditisreasonabletoassumefromtheprojectdescriptionsprovidedintheadministrativedatabasefortheFundthatolderwelfarerecipientsareamongthebeneficiariesofprojectsthatreceivedfundingin2004(underheadingsincludingtargetgroupssuchaslong-termunemployed).

The general issues raised above regarding the need to ensure a clear equality dimensionto activation measures also applies to the Special Projects Fund. Our interpretation of theintroductionandoperationoftheFundisthatithasevolvedprimarilyasameansofaddressingsocial inclusion issuesand is referred tospecifically in thatcontext in thereportsonESS totheEHRDOPMonitoringCommittee. In that regard, it ismakingacontribution tosecuringthesocialinclusionobjectiveoftheEHRDOP(i.e.,topromotesocialinclusionwithparticularreference to the re-integration of the socially excluded and long-term unemployed into thelabourforce,EHRDOP,p.63).

Given thatESS isoneof the tenmeasuresrequired tospecificallyaddressandreporton itsactionsinrespectofthewiderequalityhorizontalprinciplethereisaneedtobringaclearerequalityfocustotheoperationsoftheSpecialProjectsFund.Thiscouldbedoneby:

• developingprojectselectionguidelinestoensurethatprojectsfundedbytheFund accommodatediversityonthegroundscoveredbytheWEOP;• makingpro-activeeffortstoensurethatgroupsworkingwithandonbehalfofthegroups coveredbytheWEOPareawareoftheFund;and,• developingacapacitytomonitorparticipationbypersonsfromthefourgroupscovered bytheWEOPinprojectsresourcedbytheFund.

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Currently,theapproachtomonitoringdoesnotincludethecapacitytoclearlyidentifyparticipantsonthebasisoftheirmembershipofgroupscoveredbyequalitylegislation.Also,whiletherearerequirements in place for reportingon theoutputsof projects resourcedby the Fund, suchreportscanbe limited intermsof identifyingtheoutcomessecuredbymembersofthefourgroupscoveredbytheWEOP.

7.3 Conclusions and Recommendations Regarding Data and Reporting on ESSFor the twomain elements of the ESS (i.e., theBTWAS and theBTEAS) data in respect oftwogroundscoveredbytheWEOPareavailable(i.e.,ageanddisability),thoughinthecaseofdisabilitythisisbydefaultdefinedbyreceiptofanillnessordisabilityrelatedwelfarepayment.No specificdata in respectofmembershipofminority ethnic groupsormembershipof theTravellercommunityarecurrentlycollected.However,asnotedinthebodyofthisreport,dataonnationalityareavailableinthecaseofpersonsqualifyingfortheschemesbyvirtueofbeingrecipientsofanunemploymentrelatedwelfarepayment.

EffectivemonitoringoftheextenttowhichESS isaccommodatingdiversityrequiresthattheprofileofparticipantscanbecomparedtotheprofileofqualifyingpersonsbrokendownacrossall fourgroundscoveredbytheWEOP. Aspartof itsDataandStatisticsStrategytheDSFAshouldincollaborationwiththeEAexamineitscapacitytoobtainsuchdataandtoincorporatetheminitsreportingonthemeasure.Also,anyfutureevaluationsoftheschemesandactionssupportedbyESSshouldexamineparticipation,outputsandresultsonthebasisoftheequalitygroundscoveredbytheWEOP.AlloftheforegoingpointsareconsistentwiththeemphasisanddirectionoftheDSFA’sDataandStatisticsStrategy.

7.4 Concluding Comments and ObservationsFrom its overall organisational approach to and in its policies and practices in respect ofaccommodatingdiversity andpromoting equality it is clear that theDSFA is pursuing a highstandard. Thekeychallenge identifiedarising fromthefindingsof this report isapplying thisstandardtotheoperationofmeasurestakenundertheheadingofactivationandspecificallytotheimplementationofESS.Thecommitmentandinfrastructuretodothisisinplacebutthereisaneedtomakethismoreexplicitthemannerinwhichissuesrelatedtoaccommodatingdiversityandpromotingequalityareaddressedarereportedupon.

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Annex 1:The10MeasuresofEHRDOPtowhichtheWEOPSpecificallyApplies

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Implementing Agency

FÁS(withelementscontractedtolocalbodies(e.g.,inrelationtoimplementingCE)

St.Patrick’sandDIT(CentreforEarlyChildhoodDevelopmentandEducation

HEA,InstitutesofTechnology,VECs

VECs(inrespectofoutofschoolcentresandSeniorTravellerTrainingCentres

FáilteIreland

FÁS

DSFA(EmploymentSupportServiceUnitwiththeDSFA)

VECs,Non-VECSchools,CommunityGroups

FÁS

FÁS

Measure

M3ActiveMeasurefortheLTUandSociallyExcluded

M4EarlyEducation

M9ThirdLevelAccess

M11BEarlySchoolLeavers-YouthreachandTravellers

M12BSectoralEntryTraining-Tourism

M13SkillsTrainingfortheUnemployedandRedundant

M15EmploymentSupportServices

M21LifelongLearning-BacktoEducationInitiative

28BTrainingofTrainers

32BTrainingInfrastructure

ImplementingDepartment

DETE

DES

DES

DES

DAST

DETE

DSFA

DES

DETE

DETE

Annex 2:RecommendationstoStrengthenEmploymentSupportsforPeoplewithDisabilities(fromReportoftheWorkingGroupontheReviewofIllnessandDisabilityRelatedPayments)

1. In principle there should be a range of employment support options/schemes available to fit the different situations of peoplewith disabilities and peoplewho are ill, e.g. those capable of some work, capable of part-time work, in need of rehabilitation/retraining etc. This would represent a considerable easing of the existing qualification criteria and would pose control problems unless it was possibletoensurethatindividualclientswereonthemostappropriatescheme.

2. Statistical information should be systematically recorded on those availing of various employment/training support measures, focussing, in particular, on outcomes and distinguishing between the different supports availed of, e.g. CE, FÁStrainingetc.

3. The introduction of measures for the active casemanagement of those identified as having employment potential and for targeting more effectively the existing employment supports at particular groups would avoid the need for reliance on inappropriateconceptssuchas“rehabilitativeworkoremployment”.

4. The imposition of a time limit on exemptions from the Rules of Behaviour in the caseof“therapeutic”employmentwouldappeartobeinappropriate.

5. ForDB recipients who are likely to drift into long-term illness, the possible benefits of early intervention measures should also be explored through the establishment of a pilot project, which would assess the potential of such measures in terms of re-integrationbackintotheworkforce.

6. Early intervention measures should also be introduced to cater for the potential difficultiesinvolvedinpayingDAtoyoungpeoplewithdisabilities.

7. A“one size fits all” approach, whereby the same range of additional supports, such as Free Schemes etc. are made available to all people with disabilities, regardless of their circumstances may not be the most suitable approach, particularly given the potential employment disincentive effects involved. Any examination of possible mechanisms for overcoming the potential disincentive effects posed by the loss of these additional benefits by people with disabilities on taking up employment should also encompass an examination of the appropriateness of the provision of thefreeschemesetc.tothisgroup,inthefirstinstance.

8. In the absence of a comprehensive Needs Assessment procedure for people with disabilities, the application process for receipt of illness and disability payments should be adapted so as to better ascertain information on the claimant’s current andfutureemploymentpotential.

9. Where people with disabilities and long-term illnesses have been assessed as having employment potential, there should be a more active engagement with themthroughtheintroductionofalocally-basedcasemanagementprocedure.

10. Ideally such a case management system should involve the various agencies concerned, but in the interim the (DSFA) Job Facilitators are well placed to carry out such a role. However, due to the limited numbers of Job Facilitators currently available, the potential benefits of a case management procedure should be exploredthroughtheestablishmentofapilotproject.

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11. Based on the experience of the operation of a case management process, the various employment support measures should be operated in a more targeted way, with existing supports being adapted where necessary and new supports beingintroducedtomeettheneedsofparticulargroups.

12. Subject to the difficulties outlined in paragraphs 9.4.5 and 9.4.8 being satisfactorily resolved, a specific payment should be introduced in order to address the gap in provision for people with disabilities who only have a partial capacity for work. This payment would need to be tied into a suitable assessment procedure and case management structure and should be structured in such a way that it does not act as a disincentive to people in maximising their employment/earnings potential.

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Equality Studies UnitMeasure 33A of the Employment and Human Resources Development Operational Programme

Funded by the Irish Government and part-financed by the EuropeanUnion under the National Development Plan, 2000-2006 Your Plan – Your Future

2006

EUROPEAN SOCIAL FUND

measure 15 of the ehrdop implemented by the department of

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