USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM FINAL REPORT
NOVEMBER 2013 This publication was produced for review y the United States Agency for International Development. It was prepared by CARANA Corporation under contract number EEM-I-00-07-00006-00.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM FINAL REPORT December 2009 - November 2013
The authors’ views expressed in this publication do not necessarily reflect the views of the United States Agency for International Development or the United States Government.
Contents Acronyms 6 Executive Summary Program Overview
9 9
Program Results and Transformational Impact
10
Innovative Program Principles Piloted and Proven
12
Building Capacity and Promoting Sustainability
13
Background and Program Overview
15
Background 15 Program Overview Transforming the Workforce System
15 19
The Workforce Development System
19
The Approach
22
Promotiong Access to Formal Employment and Training
25
An Innovative Model of Job Placement for Vulnerable Youth
26
Persons with Disabilities Program
31
Demand-driven Training and Certification Programs
35
English for Work Program
36
IT Certifications for Professionals, Teachers, and Students
38
Improving Technical and Vocational Training
39
Bridging the Gap from School to Work
43
National Internship Program
44
Transforming the National System for Labor Intermediation
46
Online Vocational Orientational Tool
48
Customer-based Reporting System
48
Building Capacity and Promotiong Sustainability
51
Strengthening Public Sector Institutions and Systems
52
Light Touch Facilitation for Local Ownership
54
Associations as Platforms for Collboration
54
Local Capacity Building Initiative
55
Conclusions and Recommendations
59
Conclusions 59 Recommendations 62
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
5
Acronyms ALTHES
Asociación de Líderes de Talento Humano de El Salvador
ASI
Asociación Salvadoreña de Industriales
CASAS
Comprehensive Adult Student Assessment System
CASATUR
Cámara Salvadoreña de Turismo
CCI
Cámara de Comercio e Industria de El Salvador
CFA
Corporación de Franquicias Americanas
DOL
Diplomado de Orientación Laboral
EFW
English for Work
ESFE-AGAPE
Escuela Superior Franciscana Especializada (AGAPE)
EXSOURCEGROUP
Asociación Grupo Asociativo para la Competitividad (now CasaTIC)
FAA
Federal Aviation Agency (part of USG)
FEDISAL
Fundación para la Educación Integral Salvadoreña
FEPADE
Fundación Empresarial para el Desarrollo Educativo
FUNTER
Fundación Teletón Pro Rehabilitación
FUSALMO
Fundación Salvador del Mundo
GOES
Government of El Salvador
INJUVE
Instituto Nacional de la Juventud (formerly Consejo Nacional de la Juventud)
INSAFORP
Instituto Salvadoreño de Formación Profesional
ISRI
Instituto Salvadoreño de Rehabilitación Integral
IT
Information Technology
ITCHA
Instituto Técnico de Chalatenango (aka MEGATEC Chalatenango)
LCB
Local Capacity Building
M&E
Monitoring and Evaluation
MEGATEC
Modelo Educativo Gradual de Aprendizaje Técnico y Tecnológico
MINED
Ministerio de Educación República de El Salvador (Ministry of Education)
MTPS
Ministerio de Trabajo y Previsión Social (Ministry of Labor)
MVA
Microsoft Virtual Academy
NGO
Non-governmental Organization
OCA Organizational Capacity Assessment PATI
Programa de Apoyo Temporal al Ingreso
PfG
Partnership for Growth
PwD
Person with disability
SIL
Servicio de Integración Laboral
UDB
Universidad de Don Bosco
USAID
United States Agency for International Development
USG
United States Government
6
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
7
Executive Summary
The United States Agency for International Development (USAID) Improving Access to Employment Program was a $7.6 million initiative implemented by CARANA Corporation from December 2009 through November 2013. The USAID Improving Access to Employment Program is a key component of the joint United States Government (USG)–Government of El Salvador (GOES) Partnership for Growth (PfG). The Program is tasked, as part of the PfG Objective 3, with improving the quality of human capital.
Program Overview The Program had four initial core components, with a fifth added during the final year of implementation: 1. Promote Occupational Skills Standards and Competency Certification. In close conjunction with employers, the Program identified supply gaps in occupational skills and competencies and developed competency-based training and certification programs to close the gaps in a sustainable manner. 2. Expand Consumer-Based Employment Reporting and Career Counseling/Placement Services. The Program supported new pathways to employment by using technology to disseminate information on how to be successful in preparing for employment and significantly strengthening career counseling and job placement skills and processes throughout the public and private sector stakeholders that make up the workforce development system.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
9
3. Improve the Labor Market Information System. With the goal of transforming the workforce development ecosystem into a dynamic web of connected stakeholders providing youth, women, Persons with Disabilities (PwDs), the unemployed, and workers with the information they need, when and where they need it, the Program improved labor market information collection and dissemination through technology and vocational counseling. 4. Create Alliances with the Private Sector. The core operating principle underlying the Program was linking technical and vocational training with the needs of the business community. The principal operational mechanism the Program has piloted and proven in El Salvador is building alliances with the private sector. By means of these alliances, businesses identified and shared their occupational competency requirements and job candidate profiles with training institutions and co-invested in crafting and offering pre-training and training programs to prepare and place vulnerable groups, including vulnerable youth, women, and PwDs, in jobs. 5. Build Local Capacity. The Program transferred best practices to key stakeholders in the workforce development system and assisted them in strengthening their technical and administrative performance management systems in preparation to become potential implementers of future USAID programs. This final report summarizes the innovative activities in each component, and their impact.
Program Results and Transformational Impact The USAID Improving Access to Employment Program has been an undeniable success. Results achieved, as measured by key indicators, greatly exceeded Program goals and stakeholder expectations. See results on the opposite page. The Program piloted and rolled out innovative, sustainable initiatives that foster the development of skills most relevant to the labor market and facilitate the transition to work from both school and unemployment. For example, the Program developed tools such as the JOVEN360 and Elijomifuturo online platforms to help youth define their career paths; the Youth with Commitment activity piloted a model for private sector collaboration in training; and collaboration with the Salvadoran Ministry of Labor (MTPS) led to more effective dissemination of labor market information. The Program partnered with essential stakeholders such as the National Institute for Professional Training (INSAFORP) to jointly work toward the goals of PfG and with allies like the Chamber of Commerce and Industry (CCI), Fe y AlegrĂa, and AGAPE to promote USAID Forward.
10
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
PROGRAM MILESTONES AND ACCOMPLISHMENTS
14,622
5,777
6,545
with new and improved jobs
with new and improved jobs
with new and improved jobs
21
1,955
people
alliances with public, private, and non-profit stakeholders
women
J贸venes Comprometidos
youth
390
persons with disabilities
hired
with new and improved jobs
9
1,047
377 career
supported
completed
industries
66,963
Facebook fans sharing information
internships
17,413
website visits
to www.elijomifuturo.com
counselors trained
23,500 people
received career guideance
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
11
Results by Department
Cuscatlรกn People trained: 2 People employed: 1.125
Chaltenango People trained: 256 People employed: 557
Santa Ana People trained: 763 People employed: 2.848
Ahuachapรกn People trained: 233 People employed: 124
Sonsonate People trained: 1.380 People employed: 852
La Libertad People trained: 982 People employed: 4.181
San Salvador People trained: 4.186 People employed: 2.620
La Paz People trained: 451 People employed 452
12
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
Cabañas People trained: 115 People employed: 919
San Vicente People trained: 252 People employed: 49
Usulután People trained: 270 People employed: 54
San Miguel People trained: 505 People employed: 222
Morazán People trained: 110 People employed: 606
La Unión People trained: 121 People employed: 13
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
13
Innovative Program Principles Piloted and Proven The Program achieved transformational change by closely examining the workforce system to see where it faced challenges—identifying the human resources bottlenecks preventing businesses from growth, the gaps between skills of new graduates and private sector demand, the ways in which groups were excluded from the system, the lack of resources or know-how in institutions, and places where communication channels were not well-developed. Then, systematically, the Program sought to overcome these challenges and eliminate the root causes of weaknesses in the system. The following principles guided the Program’s approach: • Interventions are market-led. Training programs were designed around real demand for specific competencies and certifications. Assistance to institutions, like job placement centers, was based on customer demand—job seekers and employers in this case. • Activities are alliance-based. To ensure local buy-in and sustainability, every Program activity was done in alliance with local partners. The only way to integrate new models, build local capacity, and improve the system was through local ownership of interventions and full partnership in implementation. • Promote access to information. Lack of information can be the biggest obstacle for a functional workforce system. It is essential that accurate data be collected and disseminated to inform stakeholders on the supply and demand in the market, the efficacy of training programs, and the opportunities available and how to access them. Improved monitoring and data management systems, information portals, and social media all contribute to improved information access. • Build sustainable platforms for communication and collaboration. A donor program can play the role of facilitator and convener of actors within a system, but without establishing platforms like a human resources association or an internship portal, without linking Non-Governmental Organizations (NGOs) serving PwDs to businesses seeking PwDs in a sustainable way, these connections can be lost. • Utilize strategic communications. Communications can not only promote Program successes, but can serve development goals.
14
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
Building Capacity and Promoting Sustainability The alliance-based mode of the Improving Access to Employment Program ensured that sustainability was considered from the outset of each initiative. For example, the Program has helped the GOES (specifically INSAFORP and MTPS) more effectively channel its resources dedicated to human capital development by introducing and piloting innovative approaches to public–private collaboration. The Program has enabled GOES programs to fulfill their missions through the donation of equipment, development of effective management systems, and capacity building of staff. The Program avoided direct implementation of interventions whenever possible, but instead worked through partner organizations, such as JOVEN360 and Fe y Alegria, and local trainers to achieve Program goals in a sustainable way. In summary, the Program met and exceeded its goals, both programmatic and systemic. Through extensive collaboration with local private and public sector entities, through the dedication and creativity of its implementing team, and with the commitment and leadership of USAID/El Salvador, the Salvadoran workforce development system is strengthened. The workforce system is serving and will continue to serve as an agile platform to launch at-risk youth, women, PwDs, and other job-seekers into successful employment. Challenges remain, but the Program successfully leveraged funding, business acumen, and educational and training expertise to leave a lasting legacy for the people of El Salvador and for workforce development professionals around the globe through proactive knowledge management efforts, innovating for better futures for at-risk youth and other vulnerable populations.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
15
Background and Program Overview
Background In 2009, El Salvador faced a significant challenge in developing the industry and skills required to improve competitiveness and attract the investment needed to upgrade living standards and create sufficient high-quality jobs. Paradoxically, while unemployment was high, industries poised for growth could not find the qualified human capital to fill vacant positions. Education and training providers in El Salvador were only beginning to respond to the evolving market requirements, especially with competency-based technical certifications. There was a need for scale—both to ensure opportunities for Salvadoran people, particularly vulnerable youth, and to help Salvadoran companies achieve their potential for new investment and job creation. The United States Agency for International Development (USAID) Improving Access to Employment Program was a very timely response to the labor market challenge, designed to relieve existing skill and competency bottlenecks while preparing for emerging opportunities. The Program also introduced innovative approaches to informing young people and workers of the long-term rewards of investments in improved skills consistent with the present and future needs of employers.
Program Overview The USAID Improving Access to Employment Program was a $7.6 million initiative implemented by CARANA Corporation and subcontractor RTI International from December 2009 through November 2013. The Program was a key component of the joint United States Government (USG)–Government of El Salvador (GOES) Partnership for Growth (PfG), which began in 2011. El
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
17
Salvador is one of a select group of countries partnering with the USG to accelerate and sustain broad-based economic growth by engaging governments, the private sector, and civil society to improve coordination, leverage private investment, and focus political commitment. The Program was tasked, as part of the PfG Objective 3, with improving the quality of human capital in the country. The Program took a multi-faceted and integrated approach to improving the quality of human capital and access to employment. The core components of the Program were the following: 1. Promote Occupational Skills Standards and Competency Certification. In close conjunction with employers, the Program identified supply gaps in occupational skills and competencies and developed competency-based training and certification programs to close the gaps in a sustainable manner. 2. Expand Consumer-Based Employment Reporting and Career Counseling/Placement Services. The Program supported new pathways to employment by using technology to disseminate information on how to be successful in preparing for employment and significantly strengthening career counseling and job placement skills and processes throughout the public and private sector stakeholders that make up the workforce development system. 3. Improve the Labor Market Information System. With the goal of transforming the workforce development ecosystem into a dynamic web of connected stakeholders providing youth, women, Persons with Disabilities (PwDs), the unemployed, and workers with the information they need, when and where they need it, the Program improved labor market information collection and dissemination through technology and vocational counseling. 4. Create Alliances with the Private Sector. The core operating principle underlying the Program was linking technical and vocational training with the needs of the business community. The principal operational mechanism the Program has piloted and proven in El Salvador is building alliances with the private sector. By means of these alliances, businesses identified and shared their occupational competency requirements and job candidate profiles with training institutions and co-invested in crafting and offering pre-training and training programs to prepare and place vulnerable groups, including vulnerable youth, women, and PwDs, in jobs. 5. Build Local Capacity. The Program transferred best practices to key stakeholders in the workforce development system and assisted them in strengthening their technical and administrative performance management systems in preparation to become potential implementers of future USAID programs.
18
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
A mid-term evaluation confirmed many Program successes, including the broad range of alliances and the very high job placement rate for participants. The evaluation made eight key recommendations, which shifted the Program’s focus slightly, encouraging the Program to build on some successes and add or deepen some activities that were not originally contemplated in the five components. As a result, in the final year of implementation, the Program developed a more proactive gender focus, promoted corporate social responsibility, strengthened its focus on innovative programs for vulnerable youth, and expanded activities for PwDs. Additionally, in the final year, the Program made evaluation of programs and knowledge transfer top priorities. A more detailed summary of the recommendations and follow-up actions can be found in Annex 3. While specific activities were undertaken under each component, they were integrated seamlessly into Program initiatives that improved the Salvadoran system for workforce development as a whole. For example, Component 1 was accomplished almost entirely through alliances with the private sector. Consumer-based employment reporting will feed into a complete labor market information system, which in turn serves as a tool for qualified career counselors. The Program achieved impressive quantifiable results, reflected in the table below. However, the most important results have been the paradigm shifts, the new linkages, and the strengthened institutions that work together to create a functional and effective workforce development system.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
19
Transforming the Workforce System
The Workforce Development System Successful workforce development programs are built on a solid understanding of the labor market and the workforce development system. Strong institutions and vibrant linkages create systems that align educational and training programs with national priorities and business needs; champion needed policy reforms; build human capital, preparing a nation’s populace for lifelong learning and employment; and boost inclusive socio-economic development. It is only by developing and tapping into the full human capital of all of society—including those disproportionately left behind such as women, lower-income individuals, vulnerable youth, and PwDs—that nations can boost productivity, innovation, and competitiveness.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
21
The workforce development system
Youth, workers, unemployed
NGOs and training organizations
Businesses Broad-based economic growth
Universities
This figure depicts the key stakeholders and institutions in the system, with linkages indicated by red arrows. The Program sought to strengthen stakeholders and their connections to improve the functioning of the system. Program interventiones complemented one another to strengthen the system as a whole. Throughout the document, the system graphic above is referenced for various Program interventions, highlighting stregnthened linkages with red arrows, and stakeholders stregthened in bold.
22
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
Government
The Improving Access to Employment Program took a holistic approach to strengthening the workforce development system in El Salvador. In addition to introducing innovative new models for employment, the Program built the capacity of all stakeholders in the system, and strengthened their connections to one another. The following table describes some of the key differences in the workforce development system before the Program’s interventions and today, from the perspective of each stakeholder group.
Systemic transformation: A stakeholder perspective Stakeholder Group
2009
Present (2013)
Youth, workers, unemployed
• Difficulty finding jobs without experience
• Internships allow youth to gain experience and build a CV
• Poor understanding of training and career options
• Career counselors and web portals such as elijomifuturo and renaceempleo guide job seekers and provide information
• Training programs not linked to employment, little funding for training for unemployed Businesses
• Difficulty finding qualified applicants due to lack of commitment, relevant skills, or experience. • Uncertainty about how to comply with law on PwD • Issues with recruitment and retention
Government
• INSAFORP had a limited scope, primarily serving current employees, inconsistent English programs, and inefficient results tracking systems • MTPS employment offices lacked sufficient regional coverage, equipment, expertise in career counseling and job fairs, online system was difficult to use; placement services were obligated to visit offices
Universities
NGOs and training organizations
• Lack of tools and linkages in career centers to help students achieve practical experience and find jobs
• Training in alliance with private sector allows for 80-90% placement rate in many programs now funded by INSAFORP • Identify competencies and standards for training programs, ensuring qualified labor pool • Full information and new tools to comply with PwD law • Partake in ALTHES for best HR practices, has new tools for recruitment through MTPS and internships • Access to skilled, committed employees • INSAFORP now serves to a much greater extent the employed and the unemployed through programs like Youth with Commitment • It has a complete management and tracking system for its Empresa-Centro program, and a national standardized English program. • INSAFORP has 18 new job placement centers, better equipment, certified career counselors and effective job fairs • The MTPS improved online job opportunities system now has management and job placement tools, with remote access to services • Certified career counselors have access to online tools and links to employers
• Lacked tools to effectively train for high-tech jobs
• Universities participate in JOVEN360, allowing students to gain experience through internships • State-of-the-art equipment and software for training in key sectors
• Few linkages to the private sector for employment of graduates and beneficiary groups
• Work in multiple partnerships with the private sector and government to identify opportunities and train beneficiaries for jobs
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
23
The Approach The Program achieved transformational change by closely examining the workforce system to see where it faced challenges—identifying the human resources bottlenecks that prevented businesses from growth, the gaps between skills of new graduates and private sector demand, the ways in which groups were excluded from the system, the lack of resources or know-how in institutions, and where communication channels were not clear. Then, systematically, the Program sought to overcome these challenges and eliminate the root causes of weaknesses in the system. The principles that guided the Program approach were the following: • Interventions are market-led. Training programs were designed around real demand for specific competencies and certifications. Assistance to institutions, like job placement centers, was based on customer demand—job seekers and employers in this case. • Activities are alliance-based. To ensure local buy-in and sustainability, every Program activity was done in alliance with local partners. The only way to integrate new models, build local capacity, and improve the system was through local ownership of interventions and full partnership in implementation. • Promote access to information. Lack of information can be the biggest obstacle for a functional workforce system. It is essential that accurate data be collected and disseminated to inform stakeholders on the supply and demand in the market, the efficacy of training programs, and the opportunities available and how to access them. Improved monitoring and data management systems, information portals, and social media all contribute to improved information access. • Build sustainable platforms for communication and collaboration. A donor program can play the role of facilitator and convener of actors within a system, but without establishing platforms like a human resources association or an internship portal, without linking Non-Governmental Organizations (NGOs) serving PwDs to businesses seeking PwDs in a sustainable way, these connections can be lost. • Utilize strategic communications. Communications can not only promote Program successes, but can serve development goals.
24
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
Social Media for Success The Program’s comprehensive communications strategy included events, workshops, print media, radio, television, and social media. The Program’s innovative communications team segmented the audience for each message and defined the most appropriate tool for each group. For a campaign targeting youth aged 18–26, the communications team quickly realized that they needed to go where the youth are and speak their language to get their attention. To accomplish this goal and to keep costs low, the Program launched a Facebook page and a dynamic social media strategy. By using Facebook, the program was able to convey key messages, such as advice on how to access training, how to prepare CVs, and how to interview; material on how to succeed in the job market; and information on where to find jobs. Beyond conveying Program messages, the Facebook page served as a platform for peer-topeer communication, becoming a community and a positive mutual support network. Early outreach helped the Program gain fans through a paid campaign on Facebook paired with flyers, banners, and stickers distributed at events. Through this strategy, the Program has achieved more than 66,000 fans; it is the top NGO Facebook page in El Salvador. Forty private companies share an average of 15 job offers per week. Likewise, 1,500 people share tips or information reaching 20,000 of their friends each week.
How to build a community through social networks Share • information • experience • advice to • Recuit training candidates • Provide guideance for career development • Train for successful employment • Support new hires and facilitate career development
The page became a tool not only in information dissemination, but for obtaining real-time feedback from youth to improve program interventions. Communications staff used Facebook analytics to see which events generated new fans; to learn which postings were “clicked;” and to determine the geographic disbursement, gender, and age of fans, as well as their activity patterns. This helped Program staff identify issues, such as an initial disinterest in sales occupations; The Program realized youth were skeptical about a commissionbased model and doubted sales could be a good career. Armed with this knowledge, the Program was able to adjust their message to more clearly explain the occupation and career path, recruiting more interested applicants, and negotiate with firms seeking sales personnel.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
25
Promotiong Access to Formal Employment and Training The Improving Access to Employment Program sought not only to train the employed workforce, but also to expand the reach of training programs and equitably integrate Salvadorans into the formal workforce development system and formal employment. This included providing equal access to opportunities for women, youth, and PwDs across all geographic areas of the country. Gender and geography were cross-cutting themes contemplated across all Program interventions, through broad geographic placement of training activities and comprehensive communications strategies paired with a policy of nondiscrimination and careful tracking of geographic coverage and gender participation. Across interventions, the Program reached people in 246 of El Salvador’s 262 municipalities, reflecting a 94% national coverage, and helped more than 2,200 women obtain new or improved jobs, exceeding its goal by more than 50%. The Program developed special programs to target PwDs and youth, which are described in further detail below. It is essential to note that Program interventions promoted the expansion of the role of the National Institute for Professional Training (INSAFORP), to participate and fund more programs that served unemployed people, particularly youth, to meet employer demand and form the future workforce of El Salvador.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
27
An Innovative Model of Job Placement for Vulnerable Youth In 2011, the Program held a focus group with human resources managers across a variety of sectors to better understand the demand for youth in entry-level jobs and the requirements to get hired. The group concluded that indeed there are opportunities for youth if they are committed and demonstrate it through their attitude and interest in professional growth. Thus was born the strategy for the Program’s Jóvenes Comprometidos initiative, Youth with Commitment in English, with the slogan “I make the difference.” The initiative sought to work with the vulnerable, disconnected youth referred to as “Ninis” in El Salvador, meaning that they neither work nor study. The initiative worked with employers to identify job openings and with the Salvadoran Ministry of Labor (MTPS) and youth-oriented NGOs to identify and recruit youth with the potential to demonstrate this commitment. The Program would then design and fund short, targeted training courses to prepare the youth for specific entry-level positions. It was essential that the courses be short and full-time, with travel and meal stipends so that the target group was able to participate. This strategy was in line with employer goals, as when hiring needs arise, they seek to fill the positions quickly. The Improving Access to Employment Program quickly found private sector allies with significant hiring needs. Program staff worked with employers to identify the basic competencies required for success on the job and developed training programs incorporating those competencies as well as critical “soft skills” for success in interviews and in the workplace.1 The Program announced training opportunities, which were linked directly to job vacancies, then held information and orientation sessions for prospective participants. Youth were able to learn the details of the job and the associated career path. Those that remained interested underwent preparatory assessments and participated in interviews for selection into the program. Selection criteria were different for each course, but each required some basic competencies in relevant areas and a complete understanding and strong interest in the job, as demonstrated in the preliminary interview. For all careers except motorcycle delivery, a high school diploma was required. Psychological assessments helped determine whether the youth would be a good fit for the tasks and the work environment. The selected youth then attended training courses, which lasted from one to three weeks, depending on the career, and then candidates interviewed for the jobs. While there were sufficient job openings for all participants, companies made the final hiring decisions. Program 1
28
“Soft skills” can be defined as the set of social and professional interaction behaviors, capabilities, and attitudes that complement the vocational skills (“hard skills”) required for career success. Also commonly referred to as behavioral competencies, soft skills vary by industry but typically include: communication skills, creative problem-solving, teamwork, and conflict resolution, among others.
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
Youth with COmmitment The Youth with Commitment program has strengthened the skills and access of vulnerable youth, it has improved the human capital in participating businesses, and it helped INSAFORP, a GOES-funded entity add a successful new program and better collaborate with the private sector. The new curriculum has strengthened implementing trainers, which implement in partnership with INSAFORP, and NGOs now have access to a successful employment program for their youth beneficiaries.
Youth, workers, unemployed
NGOs and training organizations
Businesses
Government
Universities
The model
1
2
3
4
Youth with Commitment identifies demand for specific positions and lack of training offerings, and builds alliances
Allied firms define entry-level profiles, and number and date of hires
Youth with Commitment determines required competencies
Subcontractors selects youth (a) Workshop on career orientation, self-awareness, and decision-making
(b) Interviews and (c) Candidate psicological tests selection by profile
X=√2+3
4
5
Subcontractors develop syllabus and define need for pedagogical resources
Training institutions carry out courses
7
6
Youth with Commitment and subcontractors follow up with youth and provide feedback
Youth with Commitment facilitates placement of graduates in allied firms
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
29
YOUTH WITH COMMITMENT OCCUPATIONS
• Customer service in restaurants • Customer service in supermarkets • Aero-maintenance assistants • Accounting assistants • Administrative assistants • Cashiers • Perishable food handlers • Banquet service for hotels
• Motorcycle delivery and messengers • Survey and data entry specialists • External sales representatives • Counter sales • Hotel housekeeping • Micro-credit analysts • Assistant managers in restaurants • Assistant managers in supermarkets
participants were required to make two commitments at the outset of training: (1) that they do their best to earn the job available to them, and (2) that they do such outstanding work when hired that the company will not hesitate in seeking out more Program graduates for future hiring needs. In less than two years, the Program allied with 21 businesses to carry out Youth with Commitment programs in 16 occupational areas. More than 1,900 youth, 78% of Youth with Commitment graduates, obtained employment after training. About half of them were young women (49%). These graduates are working in approximately 100 businesses, in 167 municipalities across the country. Thirty-eight percent of these youth obtained their very first job through the program. One major employer—the Corporation for American Franchises— observed that of a general pool of applicants, they select about 10% for jobs in their businesses. Remarkably, they have chosen to hire more than 90% of applicants from the Youth with Commitment program. Other business partners included large chains such as WalMart, Claro, Hilton, Megaboutique, and Pollo Campero. In evaluations, businesses noted that Youth with Commitment graduates were more motivated and focused on their jobs than their coworkers recruited through traditional means. The difference is that the graduates have made a decision that this job is part of their vision for the future and their career path. They take initiative and responsibility, they seek learning opportunities; they are, in a word, committed. This leads to an additional benefit for employers: reduced turnover rates. Taking turnover into consideration, a detailed analysis reveals that the cost to the business of hiring Youth with Commitment graduates, even if there were no training subsidy from INSAFORP, would be lower than using a recruiting firm in 8 of 10 occupations considered.
30
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
There were three key success factors in the Youth with Commitment program, which are rarely considered in youth employment initiatives. • Training was based on actual job vacancies or upcoming hiring needs. Working through alliances with employers, the Program developed trainings based on specific competencies needed for entry-level positions and paired them with essential soft skills. The existence of immediate employment opportunities motivated youth and ensured that training funds were used as effectively as possible. Additionally, sufficient job vacancies for all trainees encouraged collaboration and mutual support among participants, rather than competition. • Orientation and pre-selection filtered potential participants. One of the most important factors in entry-level work is a complete understanding of the job functions and an interest in the employment opportunity and related career path. Youth were given a full explanation of the jobs and advancement opportunities, and if they remained interested, they underwent psychometric assessments and participated in interviews to determine if the job was a good fit.
“Youth trained by USAID’s program have the opportunity to learn from prestigeous institutions with professional staff that develop their working skills and, therefore, to perform satisfactorily at a work interview.
• Recognized certification and branding identified program graduates. In El Salvador, where gang participation is such a problem, businesses can have very negative stereotypes and images of youth, particularly those from specific geographic areas. Through pilots, the Program proved that the Youth with Commitment selection and training program did, in fact, build competencies and accurately convey information to employers regarding job candidate competencies. When managers saw the Youth with Commitment logo on participant’s polo shirts, they knew the quality of youth they were hiring. Youth with Commitment represents a comprehensive model in the Salvadoran labor market—from identification of opportunities to selection of participants, training, and results monitoring. This has led to a paradigm shift in El Salvador; the model has taken root and will continue, as management and funding of the program have been transferred to INSAFORP for long-term sustainability.
”
Vicky Castellanos, Coordinator at EmpresaCentro (INSAFORP) USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
31
IMPACT ON PEOPLE
Gerson Noé Rosales
Gerson (second from right) with his team. Gerson had one clear ambition: To become a professional soccer coach. After obtaining his high school degree—and not being able to afford college—he needed to find his first job. He saw an opportunity to earn an income doing what he loves when he learned the Government-sponsored Temporary Income Support Program (PATI) would provide him with a stipend in exchange for coaching a children’s soccer team. Gerson was accepted into the program and, through it, he was invited to participate in a Youth with Commitment training. He completed the training with flying colors and was immediately hired by fast-food chain Don Pollo. Gerson’s determination never faded and it was rewarded with a swift promotion to store and personnel manager. “Now
32
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
“The course I received thanks to USAID and its partners gave me skills in areas in which I had no experience before.” I have different responsibilities. I am a team manager. I always followed my supervisors’ instructions and now I am the one who must provide them to my staff. It’s a very different role,” he says of his new position. Today, thanks to his employer’s student benefits (which include a stipend and flexible schedules), Gerson is attending business school to further develop his career path. Meanwhile, soccer is still a big part of his life, and he continues to play ball with his colleagues and classmates.
“A person with disabilities is as good a worker as anybody.
”
Javier Simán, Presidente de ASI
Persons with Disabilities Program Inclusion of PwDs has been a cornerstone of the Improving Access to Employment Program. The challenge is complex; disabilities vary greatly, and disparate organizations are working with this group in various ways. The Program quickly realized there was no one way to solve the problem, but engaged in several activities to improve skills of PwDs, facilitate placement and successful employer–employee relationships, and change perceptions about PwDs. Building on the Law for Equality of Opportunities, which stipulates that a business must hire 1 PwD for every 25 employees, the Program has sought to connect qualified PwDs and employers seeking to provide equal opportunities and comply with the law. The Improving Access to Employment Program fully supported PwDs participating in its training and certification programs and developed some initiatives to target this group in particular. Demand-driven training programs designed specifically for PwDs included preparation for work in Spanish-language customer service centers, including DIGITEX and ATENTO, as well as training for jobs in the financial sector with Citibank. With a Program goal of employment for 224 PwDs, these various initiatives helped 390 PwDs obtain new or better jobs. The Program joined an MTPS working group to develop and implement solutions to the challenge of finding jobs for PwDs. These solutions included job fairs specifically aimed at PwDs, specific training for career counselors, and linkages with organizations such as the Telethon Foundation for Rehabilitation (FUNTER) and the Integrated Labor Service (SIL) to identify candidates and prepare them for interviews.
“We, persons with disabilities, don’t want priviledges. We want opportunities.
”
María Dolores García, person with disability and IT professional
The Program found that while many businesses knew of the Law for Equality of Opportunities in general terms and wanted to comply, they did not know the details of compliance and often had difficulty thinking of ways to integrate disabled persons into their workplace. Many employers had an image of disabled persons as people who use wheelchairs. In reality, the law covers a variety of disabilities, including deafness, for example. Likewise, after a lifetime of discrimination and challenges, many PwDs can begin to doubt themselves and their ability to perform in a work environment. The Program conducted workshops and produced a series of success stories targeting each group, one workshop sharing personal stories of success at work among PwDs and another that included private sector perspectives on their employees with disabilities, highlighting how these people had contributed significantly to their business success. Program staff also worked closely with private sector associations to disseminate these success stories and identify opportunities for PwDs. We supported interns at the Chamber of Commerce and Industry (CCI), the Salvadoran
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
33
IMPACT ON PEOPLE
Verónica Mejía “If you really set a goal for yourself and you put all your might into it, there is nothing, not even a disability, that can stop you.” Years ago, Verónica’s ability to walk was unfortunately limited due to a surgical procedure gone wrong. She knew this acquired physical disability would be an obstacle to secure employment, but also knew her will was strong enough to overcome it. She found out about USAID’s Program through a career fair for persons with disabilities; she expressed an interest and was eventually selected to participate in a cashier training for Wal-mart. Upon completing the course, she was hired and has shown outstanding enthusiasm for her job ever since. Her supervisor commented, “I hadn’t even noticed she had a disability. She works very hard and shows great commitment.” Verónica’s efforts have paid off because, in only three months, she was promoted and reassigned to the Customer Service department.
Chamber of Tourism (CASATUR), and the Association of Leaders of Human Talent in El Salvador (ALTHES) to promote the hiring of PwDs in member organizations and worked closely with the Salvadoran Industry Association (ASI) to identify specific occupations and job openings in which PwDs can succeed. Improving perception was not enough, however; a disabled person must be certified by the Salvadoran Institute for Integrated Rehabilitation (ISRI) to qualify as disabled under the law. The Program worked with CCI to share little-known information with their members on compliance. By getting their employees on a MTPS list for future certification, businesses were able to comply. Meanwhile, the Program also formed an alliance with ISRI to provide greater access to certification by equipping existing centers and opening two new certification offices. The Program has helped more than 600 PwDs obtain their certification as a result, greatly improving their job prospects.
34
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
35
Demand-driven Training and Certification Programs In addition to the highly successful Youth with Commitment model for certification and placement for vulnerable youth, the Program engaged in several other programs to improve competency-based learning and responsiveness to employer demand through technical and vocational programs. The Program focused on high-priority sectors that were identified in initial demand assessments that the Program conducted, including aircraft maintenance and tourism. The Program also targeted key skill sets demanded across many industries, such as English language and Information Technology (IT) skills. In short, these initiatives were designed to help boost economic growth by eliminating significant skills gaps in the labor market. The initiatives all had a few key elements in common: they were developed in coordination with employers, they were based on real demand, they have competencybased curricula, and they include practical or job-based training components.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
37
English for Work Program In the global context in which Salvadoran firms operate, one of the most limiting factors in the labor force has been a low level of English language ability. Early in the Program, in alliance with private businesses in key sectors, the Program identified significant need for English programs that included industry-specific vocabulary and practice for workers in those sectors. In partnership with the national tourism association, CASATUR, and several businesses, we designed a curriculum for the tourism sector focused on customer service. Over 250 people have participated and 118 have obtained new or improved jobs. In alliance with AEROMAN, the Program developed a curriculum for aircraft maintenance workers to help employees read and understand relevant technical information, follow English
IMPACT ON PEOPLE
José Alexander Chávez Figueroa
Aircraft maintenance company AEROMAN has been steadily growing and José was eager to grow with his employer. After being a member of the Salvadoran Air Force for seven years, José went on to study aircraft electricity and later joined AEROMAN as an Assistant Mechanic in 2008. After two years, he applied for a promotion but was denied because his English skills were insufficient, despite being otherwise qualified for the position. His merit and relentless disposition were noticed, however, and AEROMAN offered to include him in the EFW program, which would provide him with technical
38
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
“Learning English has been an enriching experience for me.” English skills that are up to international certification standards. After completing the coursework, José said, “English has made my job easier because now I fully understand the manuals and I am a strong candidate to get the promotion I have been fighting for.” A few weeks later, José successfully obtained his welldeserved promotion and raise.
“Through this Program we have designed courses that are related to the specific needs of businesses.
”
Juan Carlos Miranda, representative of INSAFORP
instructions, and explain maintenance processes that they perform. This training was essential for AEROMAN; to work with international airlines, many employees needed certification from the Federal Aviation Administration (FAA) in the United States. A total of 360 people have completed training for aircraft maintenance and 146 of them have received salary increases or promotions. Don Bosco University (UDB) also adopted the curriculum for its Aircraft Maintenance program so that future graduates are prepared for work in the sector. The sector-specific programs were undoubtedly successful in measurably improving relevant English skills in a targeted manner and helping participants obtain new or better jobs. As a major component of PfG efforts, though, the challenge of improving English in the Salvadoran workforce required a broader, national push. With this end in mind, and building on the successes achieved in individual sectors, the Program allied with INSAFORP to pilot a National English for Work (EFW) program in 2013. INSAFORP had in the past funded English training courses to respond to employer demand, but there were no standardized curricula at a national level. Additionally, the English taught was often general, and did not improve useful, businessspecific vocabulary or language skills. Working with the Central American Technical Institute of the Foundation for Educational Development (ITCA-FEPADE), the Program took the following steps to launch a National EFW Program with INSAFORP: 1. Adopted national English standards. These were based on State of Maryland’s standards for English as a Second Language, which are specifically focused on adult English learners in the workplace. Businesses in a wide variety of industries validated and suggested adaptations of these standards to meet the needs of El Salvador. 2. Developed a relevant work-focused curriculum. The curriculum is divided into 3 levels—basic, intermediate and advanced—and 18 modules (which take about 40 hours each to complete). Placement in each module is based on the internationally recognized, competency-based Comprehensive Adult Student Assessment System (CASAS), which uses evaluation instruments specifically to gauge English language proficiency in the workplace. 3. Trained trainers. The Program trained 60 trainers from 8 different institutions to ensure high-quality and consistent instruction across training providers. 4. Piloted the program. The Program conducted pilots in various training scenarios: private classes with an employer, classes for unemployed youth, and employees from various companies participating together at training institutions.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
39
The pilot program was recently evaluated and proved very successful. Employers reported an increase in employee confidence and English usage on the job, unlike previous programs they had supported. Participants left the course motivated and pleased with their knowledge; 93% rated their instructors as excellent. The program is poised to launch nationally in 2014 and grow quickly on a completely sustainable basis with INSAFORP, revolutionizing English language measurement, instruction, and ability in the country.
IT Certifications for Professionals, Teachers, and Students The Program teamed with CONCISA, an IT firm, to respond to a need in the IT sector for employees certified in various IT specialties, including Microsoft .NET, Oracle, and Java. None of the university or junior college IT programs in the country offered these specialized certifications at the time. CONCISA recruited 100 university graduates to participate in the rigorous certification programs and placed 75% immediately into jobs. The Program continued working to increase the number of people certified in Microsoft .NET through an alliance with the training institution, AGAPE, and Asociación Grupo Asociativo para la Competitividad (EXSOURCEGROUP, now CasaTIC), a private sector IT association. It began as a program open to both IT professionals and an extracurricular activity for students at one of AGAPE’s technical institutes, Escuela Superior Franciscana Especializada (ESFE-AGAPE). They were trained in Microsoft’s .NET software, which was a standard for designing internet applications, such as those used for online shopping. Microsoft has since enhanced and rebranded the software to a system known as Microsoft Virtual Academy (MVA). The initial program was successful, and the certification has been integrated into curricula at AGAPE’s two technical institutions: ESFE-AGAPE and Instituto Técnico de Chalatenango (ITCHA). More than 350 people have started the course; 139 have finalized the MVA Certification and 72 now have a new or an improved job. The Salvadoran Ministry of Education (MINED) had a goal of improving the quality of education in the country and was planning an initiative to increase use of technology in the classroom and in curricula. The Program saw this as an opportunity to improve opportunities for middle school teachers. In alliance with MINED, Microsoft, and the Savior of the World Foundation (FUSALMO), the Program developed a course on general ICT skills, including MS Office and Internet use, to certify more than 2,500 middle school teachers and technology coordinators. Before the course, only 41% used a computer for work, and after the course, 89% were using these tools regularly. These educators are contributing directly to the development of their
40
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
“Now we have digital tools that will help us remain current in the labor market.
”
Roberto Chávez, student at UDB
students; 85% of certified teachers have seen an increase in interest and participation among students as a result of the tools they integrate into their classrooms. A total of 636 of the certified teachers were given increased responsibilities or received additional outside income as a result of certification. Of the participants, 94% believe their improved skills will advance their future work prospects.
Improving Technical and Vocational Training The Program worked with INSAFORP, technical training institutions, universities, and NGOs to improve the quality of technical and vocational training in key sectors. The Program assisted AGAPE in upgrading their programs for electricians and tourism personnel with the addition of essential software. In each case, the Program helped introduce specialized software and relevant curricula to support graduates with the skills demanded by the private sector. In the case of electricians, use of AutoCAD software (a design program) was an essential skill that employers were seeking. After a pilot, AGAPE integrated the program into their curriculum, and now more than 270 students have been trained in the program. To improve employability of tourism graduates, the Program introduced hotel management software into their curricula in a similar manner, based on a need in local hotels. More than 250 students have been trained in using the software. Similarly, the Program worked with Fundación Uno to implement a bilingual course for 50 accounting assistants and introduced the use of QuickBooks, an English-language accounting software program. The Program also teamed with junior colleges (Modelos Educativos Graduales de Aprendizaje Técnico y Tecnológico (MEGATECs)) and universities that offer technical education programs to introduce relevant equipment to improve the quality of training and the skills of graduates. The Program strengthened the Aircraft Maintenance program at UDB by introducing equipment such as Compass Swing and an Air Data Test, allowing students to put theory into practice before they enter the labor force. Likewise, the Program strengthened the Catholic University’s regional center in Ilobasco, which offers a technical degree in Food Processing and Conservation. The Program equipped the laboratories so that students could analyze the properties of food at the microbiological and chemical level, allowing students the option of specializing in quality control, an important occupation for agro-industry. The MEGATEC in Zacatecaluca has a technical program in electronics that prepares students for careers in design, construction, and repair of electronic systems. The Program introduced modern automation equipment that was previously lacking, which opened new doors for technical program participants who now graduate with significant experience in procedures that require precision and knowhow.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
41
One of the largest and most effective training programs in the country is Empresa-Centro, which is funded by INSAFORP. Empresa-Centro programs cover a wider variety of technical careers and are implemented at various training institutions. What makes Empresa-Centro unique and effective is that participants undertake an apprenticeship at a company as part of their 12 to 24–month program. While the program is successful, there remains room for improvement. In 2013, the Program teamed with INSAFORP to review and update Empresa-Centro’s curriculum for auto mechanics. The revised curriculum was validated by training providers and presented at a special event to representatives of 38 companies, many of which had not previously participated in the Empresa-Centro program. The event generated interest and could lead to more participation in the private sector and thus more apprenticeship opportunities for trainees. The Program also helped INSAFORP implement a management and tracking system for all of the Empresa-Centro careers, which is described in detail in the following chapter. INSAFORP is committed to introducing more certifications into job readiness programs. With the Program, INSAFORP has created an innovative approach, never previously used, to recognize course competencies as demonstrated on-the-job, rather than in the classroom. To that end, INSAFORP and the Program identified approximately 250 employed youth who had satisfactorily worked for at least 3 months as either cashiers or customer service personnel in restaurants and awarded them proficiency certifications based on the evaluations of their employers.
“Thanks to the training, today I am employed.
”
Juan Carlos Andaluz, Fundación Uno participant 42
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
Technical and vocational certification programs Specialized demand-driven courses helped build skills among the labor force in key sectors for growth. They improved the link between curricula in technical and vocational programs offered at universities and technical schools and the needs of businesses for competitiveness and growth.
Youth, workers, unemployed
NGOs and training organizations
Universities
Businesses
Government
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
43
44
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
Bridging the Gap from School to Work
While educational attainment varies greatly in El Salvador, job seekers at all educational levels face a challenge making the transition from school to work, and often, from one job to the next. Universities, training institutions, and employment offices have lacked the resources and skills to guide youth and adults in selecting their educational and career path, which should be based both on labor market demand and on an individual’s interests and competencies. In particular, youth have difficulty finding their first job when their experience is only academic, rather than practical. Accurate labor market information and sage guidance can make all the difference for job seekers, helping them to make smart investments in education and certification programs and to choose career paths that will generate sufficient income and be personally fulfilling. With this in mind, the Program embarked on several initiatives to increase availability of information, improve the quality of resources, and provide opportunities to gain experience and learn about careers.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
45
National Internship Program University students in El Salvador faced a vicious cycle when attempting to enter the labor market; businesses were not willing to hire youth without any experience, but they had no way to gain experience without getting a job. That is, until the Program teamed with Search, a private sector firm, to create the JOVEN360 internship platform. Through internships, youth are able to gain key skills and experience while companies have an opportunity to complete special projects and recruit top talent. The innovative online JOVEN360 platform enables youth to create a full profile, including their capabilities, leadership roles, voluntary activities, and interests. Even without experience on their CVs, they are able to demonstrate their value to potential employers. Meanwhile, employers are able to post new internship opportunities and search the database of candidates. The site also features virtual job fairs and career guidance. Today, there are more than 20,000 students registered in the JOVEN360 portal, along with 600 businesses. In just two years, JOVEN360 helped 1,047 students from universities and technical schools start internships in 294 different institutions (923 students in 260 businesses, 92 in 34 NGOs, and 32 in 11 government agencies). The Program undertook a follow-up assessment to determine how many interns had found employment as a result of the experience. In total, the Program estimates that 431 interns (41%) had been hired, although hiring was not an immediate goal of the internship initiative. A key success factor of the JOVEN360 program was an extensive outreach campaign. Representatives visited universities and technical schools to generate excitement about the platform. The JOVEN360 Facebook page has 15,000 likes and 3,462 people are following JOVEN360 on Twitter. JOVEN360 also partnered with CCI, ALTHES, and CASATUR. These three organizations hired interns through JOVEN360 to handle the task of outreach to member firms to encourage hiring of interns. JOVEN360 also conducted workshops for businesses and provides tools online to help organizations develop intern projects and manage the internship process in a way that is beneficial for both the student and the firm. Building on the JOVEN360 platform, Search created a parallel program in 2012: Joven con Valor, or “Youth with Value” in English. This program is a complement to JOVEN360, in which university students participate in a nine-month, value-enforcing workshop concluding with a certification based on Franklin Covey’s “7 Habits of Highly Effective Youth,” ideally paired with an internship. The graduates are then hired by sponsoring companies or assisted by Search to find jobs. There have been a total of 15 corporate sponsors and 546 (308 women, 488 youth) participants in the program. An evaluation found that Youth with Value
46
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
JOVEN360 The National Internship Platform has helped University students gain experience, improved the pool of qualified labor for businesses, and provided a resource for Universities requiring or recommending internships as part of their programs.
Youth, workers, unemployed
NGOs and training organizations
Universities
Businesses
Government
www.JOVEN360.com homepage
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
47
IMPACT ON PEOPLE
Ivania Villalta “This was a win-win experience.” As graduation approached, Ivania, a Chemical Engineering student at the Central American University, knew she needed to differentiate herself before diving into the working world for the first time. Thanks to JOVEN360’s efforts to promote pre-graduation working experiences, she realized an internship could be exactly what she needed. In order to make the most of an internship experience, Ivania enrolled in the Youth with Value certificate program as well. With the aid of these credentials, she was offered an eight-month long internship at Sherwin Williams. The company provides all interns with a mentor to ensure they have adequate support while developing workplace skills for the first time. “In the beginning, I had to go back to what I learned in my first classes in college,” explains Ivania, “but this time applied to the workplace.” Ivania has now been hired as a full-time analyst at Sherwin Williams and has been working with them for ten months.
participants were more likely to be hired and received higher salaries than other participants in the JOVEN360 program. This program is developing future leaders from a pool of outstanding youth.
Transforming the National System for Labor Intermediation Accessible and accurate sources of employment information paired with qualified career counselors can play an essential role in helping job seekers understand the labor market and where they may best fit within it. The Program worked closely with the MTPS from early on to revamp their national system for labor intermediation. In 2010, the Program helped MTPS open and equip 18 new employment offices to serve additional municipalities and strengthen their national employment network. Five of those offices have since closed for various reasons, while others have opened based on demand. The equipment provided by the Program has been shifted accordingly to centers where it is most needed. MTPS reports that in those offices,
48
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
they have provided job placement assistance to more than 17,000 people since opening in February 2011. Of those, more than 10,000 have found jobs. To improve services in the employment centers, the Program developed a certification program for career counselors: the Diploma of Labor Orientation (DOL). The Program worked with the Salvadoran Integrated Education Foundation (FEDISAL) to train more than 250 job placement specialists in MTPS employment offices across the country as well as career counselors in NGOs, universities, and specialized training institutions. The Program provided specialized training to these counselors in placing PwDs as well. MTPS was not maximizing the effectiveness of job fairs it hosted, which were often held in cramped environments with loud music blaring, hindering communication. Registration for participants was disorganized, and services for job seekers did not exist. The Program worked with MTPS to hold 12 job fairs, adopting a new strategy in which they helped both employers and job seekers prepare for the fairs, conducted the fairs in an organized and professional manner, and then reached out to employers for feedback and information on hiring done at the fair. Based on this strategy, the Program created a best practice manual for MTPS staff to use as they continue to hold future job fairs. Additionally, the Program helped the MTPS redesign their internet portal for job-matching, www.renacempleo.gob.sv, which now serves as an effective tool for MTPS job placement staff as well as individuals seeking jobs. The new software is updated daily with accurate information and features a user-friendly interface. It includes several innovative features new to El Salvador, including the following: A strong search engine which allows even unregistered users to see the jobs available
“I am grateful for all the support we received from USAID to provide better services to Salvadorans.
”
• A strong search engine that allows even unregistered users to see the jobs available • A system for registered users to send their CVs to employers with interesting job vacancies • A case management system which allows MTPS supervisors to see the workload and job placement success of subordinates and job placement offices as a whole • Online capabilities so extensive that there is no longer a need for businesses to physically visit job placement centers; they can use the entire system and interact with career counselors online
Humberto Centeno, Minister of Labor of El Salvador USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
49
Online Vocational Orientational Tool The Improving Access to Employment Program staff realized early in Program implementation that youth, in particular, often lacked direction when selecting their careers: there was no clear source of information about demand, and they did not have the tools to prepare their CVs or conduct themselves in interviews. The Program decided to create the first website in El Salvador dedicated to vocational orientation for youth. The website, www.elijomifuturo.com, means “I choose my future” in Spanish. The site contains psychological tests that can help youth better understand themselves and what type of career they would succeed in. It also includes models for CVs and instructional videos on how to interview for job. Additionally, there is a database of job openings for youth to put their new skills and knowledge to work. The program allied with Fe y Alegría, a local NGO, to develop and administer the site, ensuring sustainability after the Program ended. Today, more than 17,000 different people have accessed the website to better understand their own strengths, research promising occupations and opportunities, compose quality CVs, and prepare for interviews.
Customer-based Reporting System Transparent feedback on the efficacy of training programs is an essential component of a comprehensive labor market information system. In 2013, the Program developed a customer-based reporting system on the quality of INSAFORP’s Empresa-Centro training programs, which will allow graduates to report on the quality of the training programs and provide salary information so that prospective students can better assess training options and their likely impact on their future professional careers. This model could be replicated in the future for other training programs as a useful tool for career counselors in providing guidance to job seekers and to INSAFORP in improving its courses. It could be adopted by training institutions to track all courses, and INSAFORP could expand it to cover programs like Youth with Commitment in the future as well. The program also facilitates efficient management, a reduction in cost, and error avoidance.
“Thanks to Elijo Mi Futuro, los jóvenes pueden descubrir habilidades que no sabían que tenían.
”
Daniel Pérez, counselor at Fe y Alegría 50
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
“I choose my future� vocational orientation website This web portal provides youth with information about career paths, helping them link to universities and training providers where they can obtain the skills they need for indemand jobs where they can succeed.
Youth, workers, unemployed
NGOs and training organizations
Universities
Businesses
Government
www.elijomifuturo.com homepage
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
51
52
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
Building Capacity and Promotiong Sustainability The alliance-based mode of the Improving Access to Employment Program ensured that sustainability was considered from the outset of each initiative. By teaming with local partners, the Program was able to build capacity and transfer programs to local ownership. The Program played a critical role in introducing new and innovative models and funding pilots to prove their efficacy. Now, Program partners will move these initiatives forward, increasing impact exponentially. In addition, the Program also worked intensively with three local organizations to build their capacity to implement future workforce development programs with USAID funding.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
53
Strengthening Public Sector Institutions and Systems The Program has helped the GOES more effectively channel its resources dedicated to human capital development by introducing and piloting innovative approaches to public–private collaboration. The Program has enabled GOES programs to fulfill their missions through the donation of equipment, development of effective management systems, and capacity building of staff. Strong public institutions and programs that do not rely on donor funding will ensure long-term sustainability of program interventions. As is mentioned throughout this report, one of the Program’s most important allies was INSAFORP. After signing an agreement in 2010, the Program and INSAFORP, both key participants in PfG, have worked in close coordination to roll out several initiatives to meet common goals. These included specialized and national EFW programs, Youth with Commitment, and improvements to the Empresa-Centro program. Collaboration with INSAFORP was essential for the Program for three key reasons: 1. Credibility.Certification programs through INSAFORP hold more weight with the private sector. 2. Scale.The only way for a relatively small USAID program to have significant impact at a national level was to roll out programs with the support and funding of INSAFORP. 3. Sustainability. As a permanent GOES institution, INSAFORP has the ability to continue Program initiatives indefinitely. Likewise, Program support was indispensible to INSAFORP, as it helped the institution make the transition from primarily serving employed workers to reaching vulnerable youth and future employees. As a tax-funded institution, INSAFORP could take few risks; but the Program was able to bring innovative ideas and pilot the programs before INSAFORP adopted them and contributed funding. Another key alliance for the Program was with MTPS, whose employment centers and job-matching system are the only resource many job seekers access. Strengthening the capacity of staff through career counselor certification, specific training on placing PwDs, and on conducting job fairs empowered public sector employees to effectively facilitate job placement. The Program’s mid-term evaluation found that these interventions had promoted behavioral change and raised performance standards in terms of customer relations and service delivery. Improving their online management and placement system, opening new centers, and providing equipment has given the MTPS the ability to effectively serve job seekers and employers for years to come.
54
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
“Through USAID, we bring businesses’ offerings to job seekers.
”
Héctor de Paz, Eastern Regional Manager at MTPS
Capacity building at MTPS Expansion, equipment, online systems, and training for career counselors have enabled MTPS job placement offices to improve their services for matching job seekers and employers.
Youth, workers, unemployed
NGOs and training organizations
Universities
Businesses
Government
www.RENACEMPLEO.GOB.SV homepage
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
55
Light Touch Facilitation for Local Ownership The Program avoided direct implementation of interventions whenever possible, but instead worked through partner organizations and local trainers to achieve Program goals in a sustainable way. In the case of JOVEN360, the Program knew it was essential to ally with a committed partner for the outset. Search had the interest, the resources, and the private sector understanding to lead the internship initiative. While Program staff provided guidance and shared best practices from other countries, it was Search that led the JOVEN360 initiative and will continue to do so in the future. Likewise, Fe y Alegría is committed to providing youth with access to opportunities. Their ownership of the elijomifuturo portal will ensure that it exists long into the future. The Program also understood that training programs can only be effectively delivered by well-trained instructors. It is generally not feasible for local organizations to bring in specialists to conduct training programs. Thus, in training areas where local capacity has been limited—such as IT and English—the Program engaged in a Training the Trainers model to develop a cadre of top professionals to continue imparting courses. International specialists worked with these groups in a mentorship role as they conducted their first courses. The Program also engaged multiple training partners to ensure that this capacity would be widespread.
Associations as Platforms for Collaboration The Program worked closely with business associations as a means of reaching the private sector and creating a dialogue with training providers and public institutions. Important Program allies included CCI, ASI, CASATUR, and EXSOURCEGROUP. ASI tapped its business network to support the hiring of PwDs, while CASATUR and EXSOURCEGROUP helped design and implement demanddriven training courses. CASATUR also worked with the Program to promote internships and the hiring of PwDs. These associations will build on their successful experiences with the Program and continue to champion demand-driven training for their members and opportunities for vulnerable groups, such as youth and PwDs. The Program’s alliance with CCI was one of its most beneficial and transformative. CCI committed itself as a full partner in many initiatives, including JOVEN360 and Youth with Commitment. As both a training provider and as the voice of the private sector, CCI will be a key driver of future business and education collaboration, with a close relationship with INSAFORP and a clear commitment to human capital development. CCI is driven to continually improve its services to members and promote development in the country; so much so
56
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
that CCI devoted significant time and resources to participate in the Program’s local capacity-building activity in preparation for a leadership role in future workforce development programs. Recognizing that career development does not end with a career counselor, but also requires strong human resources support, the Program teamed with six businesses to form ALTHES. The goal of the association is to improve human resources management on a national level and create a platform for communication among businesses and with public institutions and NGOs. Businesses recognize the value in improving human resources to improve productivity and competitiveness. There were originally 52 corporate and individual founding members; now that total is 87. ALTHES has obtained legal status and implements monthly meetings with human resources professionals with the objective of professionalizing the human resources occupation in the country. The organization has now achieved financial sustainability. Member organizations pay annual dues to cover the cost of a director and administrative assistant to run ALTHES. Monthly meetings are sponsored by one member each month and often include experts in specific human resources topics. They are developing resources such as manuals and tools for knowledge sharing in key human resources areas. Like other associations, ALTHES has been a key ally in identifying opportunities for internships and placement of PwDs.
Local Capacity Building Initiative In 2013, the Program undertook a special initiative at the request of USAID/El Salvador to build the capacity of three Salvadoran organizations technically and administratively to implement future USAID programs. This initiative, in line with USAID/Forward principles, expanded the scope of the Program, adding Component 5. The Program quickly initiated a seven-month plan to assist the organizations in preparing administrative, human resources, and Monitoring and Evaluation (M&E) systems consistent with Federal regulations and USAID best practices. The three selected organizations were CCI, Fe y Alegría, and AGAPE. The Program invited four other organizations to participate in related trainings: JOVEN360, which implements the National Internship Program JOVEN360; Fundación Sirama, which provides training to women as entrepreneurs and as employees; Fundación Forja, which implements a values-in-theworkplace program with JOVEN360; and FUNTER, which works on the rehabilitation and job placement of PwDs. Following an orientation, the organizations undertook comprehensive self-assessments using CARANA’s Organizational Capacity Assessment (OCA) Tool, which was adapted to specifically address capacity in workforce development programs. The results were carefully
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
57
reviewed and verified by the Program’s Local Capacity Building (LCB) team, in coordination with each institution. Using the OCA Tool, organizations rate their capacity in eight areas, with many subcategories. Possible ratings are Low Capacity (1), Basic Capacity (2), Moderate Capacity (3), and Strong Capacity (4). The broad categories included Governance, Administration, Human Resources Management, Financial Management, Organizational Management, Program Management, Project Performance Management, and Demand-Driven Workforce Development and Training Programs. Additionally, the OCA determined whether organizations policies and practices were in line with USG rules in 16 subcategories. Each organization prioritized their needs for organizational growth and the Program developed an action plan to address common needs through training and individual needs through mentorship. The Program’s training and workshops covered communications, M&E, USAID regulations, personnel policies, procurement, internships, and workforce training programs. Additionally, organizations attended financial management training at USAID and participated in a Capstone Integrative Exercise, which involved developing a concept paper for a potential workforce development program. A post-OCA revealed that each organization had significantly improved their organizational capacity by updating policies and procedures and applying best practices learned in the workshops. The organizations also put considerable time and effort into the capstone activity, developing thoughtful concept papers that included expansion and strengthening of current programs. These concept papers also included such new ideas as entrepreneurship programs for self employment, strengthening of MEGATECs through private sector alliances, and certifications that could address human capital needs in specific sectors and occupations.
58
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
Improving the Enabling Environment for Youth Employment Alignment of stakeholders within the workforce development system is key to success. Government leadership in particular can facilitate the operation of a workforce system through targeted incentives or hinder it through excessive regulation or inappropriate laws. The commitment of the GOES to human capital development is demonstrated through funding of INSAFORP, MTPS initiatives, and participation in PfG. The Program supported selected national initiatives and legal reform to improve the enabling environment for youth employment. Program staff conducted research to support laws and initiatives, participated in working groups, wrote recommendations, and assisted in implementation when possible. National Youth Employment Action Plan The Program participated as a core member of the Inter-institutional Working Group in the preparation of an action plan to jumpstart more appropriate youth employment interventions. In August 2012, MTPS recommended that the El Salvador Action Plan for Youth Employment be made “official� by the Minister of Labor; the GOES response is still pending. MTPS proceeded in 2013 to implement several components of the plan, often with USAID assistance, such as training for employment, vocational orientation, and expansion of training centers. First Job Law In the first quarter of 2013, the GOES passed a First Job Law, which provides a small incentive, about $30 per job created, to businesses to hire youth that have never been employed in the formal sector in newly created jobs. Subsequently, the Program trained nearly 100 MTPS job placement counselors in its implementation. The trainees included 82 job placement counselors who had received the DOL certification, as well as 14 new job placement counselors.
Defining a Regulatory Framework for Internships In creating the first-ever national internship program in El Salvador, the Program noted that the legal framework to support their implementation was insufficient. A lack of clarity in the private sector led to some hesitancy about hiring interns. Businesses were concerned that they could encounter legal problems for engaging in these short contracts or for failing to pay minimum wage. The Program investigated the issue and found that there was no law supporting or prohibiting internships. Furthermore, Program staff confirmed that the MTPS has not been penalizing companies for hiring unpaid interns. In fact, the recently enacted Salvadoran Youth Law (2012) actually suggests that youth should be participating in internships. Given the tacit support, the Program set out to define the framework and provide a model for internship agreements. The Program developed a template, defining the nature of the relationship as a learning activity, which clearly differs from a labor contract, and includes the terms of the agreement and responsibilities of each party. The Program, in alliance with CCI and JOVEN360, presented the model to MINED, MTPS, and Instituto Nacional de la Juventud (INJUVE), a public entity supporting youth under the Ministry of Health, in hope of endorsement. Further, the Program has recommended to MINED that it create a formal regulation for internships.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
59
60
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
Conclusions and Recommendations
Conclusions The USAID Improving Access to Employment Program has been an undeniable success. Results achieved, as measured by key indicators, greatly exceeded Program goals and stakeholder expectations. More importantly, the workforce development system has been transformed in critical ways—actors have greater communication and positive experiences co-investing in successful training for employment; businesses are able to increase productivity and competitiveness with access to qualified human capital; governmental institutions have greater capacity to implement critical national functions; and youth and other job seekers have the tools to understand labor market demand and access to effective training and placement programs, giving them both a roadmap of career opportunities and the means to achieve their training and employment goals. The Program worked in alliance with essential partners, such as INSAFORP, to jointly work toward the goals of PfG and with allies like CCI, Fe y Alegría, and AGAPE to promote USAID Forward. A midterm evaluation found that the Program’s alliance-based strategy was substantively strengthening the capacity of training providers and government actors while effectively matching supply and demand. The Program multiplied its success in the final year of implementation by building on successful models and adding initiatives to further support youth, PwDs, private associations, and government institutions.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
61
Some specific conclusions include the following: • The Youth with Commitment model for job placement is extremely effective. As evidenced with a 77% placement rate, low turnover, and high employer satisfaction, the program exemplifies how an agile, integrated workforce system can collaborate among stakeholders. The model engages NGOs for identification of vulnerable youth, those youth commit to a career path, training institutions provide training based on competencies identified by the private sector, the private sector fills its human resources needs with qualified and motivated personnel, and the entire process is facilitated and funded by governmental and private sector institutions. Essential components of the model include pre-selection and screening of participants, real job vacancies, certification of program graduates, and the integration of soft skills. • Social media, principally Facebook, was a transformational tool for cost-effectively reaching youth, developing positive peer networks, and improving the Program through immediate feedback. It was central to an effective communications strategy. • The Program greatly increased access to information and resources for job seekers. Online tools such as the elijomifuturo and renaceempleo platforms, paired with effective career counselors and improved job placement offices, provide essential information about career pathways and current openings in addition to tools for obtaining a job. • The EFW program is helping El Salvador overcome a critical skills gap on a national level, in a standardized, cost-effective fashion. • Internships are now a viable pathway to experience and employment. JOVEN360 changed paradigms among businesses and youth around the issue in El Salvador. Now university students have a new tool to transition from school to work. • INSAFORP’s role has expanded to serve more Salvadorans. The Program’s partnership with INSAFORP spurred a transition into training unemployed and vulnerable youth for future employment. Its services have expanded to include programs like Youth with Commitment, and existing programs like Empresa-Centro and English training have been dramatically improved. • Technical and vocational training institutions have adopted demanddriven certification programs to improve training quality and relevance in high-demand occupations.
62
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
Lessons Learned
1
Businesses are willing to be active participants in training and hiring inexperienced people if job candidates reliably demonstrate the competencies employers need.
2
Demand-driven curricula and aligning training with priority sectors are paramount for achieving high employment rates for graduates.
3
4
Certification is key to boosting performance and signaling competencies for multiple stakeholders in the system, such as for providing employment for PwDs and for strengthening vocational counselors in MTPS. Signaling competencies to business is essential to assisting youth to obtain their first job. Youth do bring assets to the workforce, but they are not visible until they are identified and showcased through a program like JOVEN360.
5
“Soft skills� are critical to entering the workforce. Youth with Commitment is a path-breaking innovation in identifying and developing appropriate job-specific soft skills in conjunction with vocational skills.
6
Building local capacity involves strengthening both institutional/operational capabilities and also capacities to provide technical expertise, develop partnerships, and serve clients and markets.
7
Social media offers cost-effective tools for outreach and program scale-up and assists youth to develop broader, positive peer networks.
8
Strengthening relevant governmental and public–private partnership institutions multiplies program impact and provides platforms for sustainability.
9
10
Scheduled trainings meet employer needs. Upon graduation, trained individuals signal to the workplace that they offer current skills. A period of unemployment can signal that skills have atrophied and puts students at a disadvantage relative to more recent graduates. Job training and placement offer both women and men opportunities for advancement. Equitable mechanisms for recruitment, training, and job placement are vital to tapping the full potential of a nation and achieving national goals of equitable growth.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
63
Recommendations The Program has achieved impressive results and taken significant measures to achieve sustainability. Upon Program close-out, the workforce development system will be losing a key champion and facilitator. To ensure that El Salvador is able to take full advantage of the progress made in the last four years toward PfG objectives and build on the strengths developed through the Program, it is strongly recommended that the USG and GOES continue to support programs and play a role in human capital development. In particular, it is essential to note that this component of PfG is not a stand-alone objective, but rather directly links economic growth, education, and crime and violence prevention. The following are recommendations for building on the successes achieved. • Scale up the successful Youth with Commitment model. Continue and expand the model for job placement, seeking new employer participants and developing training for additional occupations. Additional participation of NGOs, particularly those that specifically serve women, at-risk youth, and PwDs would be beneficial to ensure equitable access and broad recruitment of program participants. • Collect and disseminate information on training quality in additional programs. The customer-based reporting system developed for INSAFORP’s Empresa-Centro should be expanded to cover Youth with Commitment and vocational-technical institutes as well. • Continue to develop demand-driven curricula. Build on the successful update of the Auto Mechanic curriculum under the Empresa-Centro program, updating additional curricula and conducting outreach to the private sector for increased participation. • Consolidate disparate initiatives serving PwDs. In particular, develop a shared database of PwDs to facilitate placement when employers express a need. Undertake detailed tracking of employment and retention as well to keep the system up-to-date and identify successes and challenges. • Incorporate gender best practices more fully in employment programs. Although programs like Youth with Commitment achieved equitable results, it is important to understand the reasons for this success, and to continue to identify any hidden discrimination or inequity. Future programs should utilize the “Manual for Best Practices for Integrating a Gender Focus into Job Placement Programs,” developed at the end of the Program, based on a specialist’s evaluation of gender results and international best practices. The report is available on www.accesoalempleo.org. • Engage in long-term impact evaluation, undertaking tracer studies of program participants. Disseminate the information widely and ensure that lessons learned are used to adapt programs accordingly.
64
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
• Emphasize job placement in all youth-focused programs. The Program complemented other donor initiatives serving youth by helping place their beneficiaries in jobs. These programs should be required to collaborate with an employment program or include job placement as a part of their programs, rather than just training. • Engage the organizations that participated in the Local Capacity Building Activity in future USAID programs. These organizations have proven their commitment to youth and have devoted significant time and energy to updating their management practices. They have implemented specific initiatives under the Program, and have developed ideas to expand and build on those initiatives. The organizations should coordinate their efforts to avoid duplication and generate synergies. Ideally, they should continue to collaborate with international experts and experienced program managers as they transition from implementing specific activities to larger program leadership roles.
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
65
Results compared to Project Goals
Indicator
Goal
Result
16,195
Participants People with new or improved jobs
4,480
14,622
Women with new or improved jobs
2,240
5,777
Youth with new or improved jobs
1,792
6,545
PwDs with new or improved jobs
224
390
Youth with Commitment hired
1,000
1,955
Alliances with public, private, and non-profit stakeholders
15
21
Industries supported
8
9
Internships completed
1,000
1,047
Career counselors trained
20
377
People received career guidance
10,000
23,500
10,000
683,644
10,000
17,413
Internet interactions providing Program information Internet interactions through “I choose my future� website
66
FINAL REPORT: DECEMBER 2009 - NOVEMBER 2013
USAID IMPROVING ACCESS TO EMPLOYMENT PROGRAM
67
U.S. Agency for International Development | El Salvador USAID Improving Access to Employment Program