UNDP, UNICEF, WHO, ILO Joint Programme "Promoting Mainstream Policies and Services for People with Disabilities in Ukraine"

Final report

Models of job support and coaching for People with Disabilities (PwDs) in the European

Union (EU)

Commissioned by the UNDP in Ukraine

Prepared by Frank Kavanagh

Labour Market Consultant

January 2014

The views contained herein are the statements of the author and do not necessarily

reflect the views or policies of the UNDP in Ukraine and other organizations.

Content ____________________________________________________________ Page

List of Abbreviations…………………………………………………………………..……… ………..…... 3

Introduction……………………………………………………………………………………. …….…..……. 5

1. Overview of employment support services for PwDs in the EU ………..…..…. 6 2. EU policy position………………………………………………………………… …….…...……. 9 3. Czech Republic…………………………………………………..………………………. ….……. 12 4. Ireland………………………………………………………………………………...……….. ……. 17 5. Austria………………………………………………………………………………………. …....…. 26 6. Denmark………………………………………………………………………………...…….... ….. 32 7. Norway……………………………………………………………………………………….….…… 37 8. Poland……………………………………………………………………………………….….…….. 43 9. Sweden……………………………………………………………………………...…………..……. 49 10. Employment support and coaching services in Ukraine …………….…....…..… 55 Annex 1 Elements of Labour Market policies for PwDs in EU Countries …………….…..….……. 59 Annex 2 References (Selected useful and practical sources)…………………………………….…...... 60

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List of Abbreviations

____________________________________________________________

ALMP Active Labour Market Policy

AVGS German Activation and placement voucher (Aktivierungs- und

Vermittlungsgutschein – AVGS)

BGN Bulgarian Currency

DAC Development Assistance Committee

EFSi European Federation for Services to Individuals

EEO European Employment Observatory

ES Employment Services

ESF European Social Fund

EU European Union

FES Federal Employment Service

FSU Former Soviet Union

M+E-System Monitoring and Evaluation System

MWRL Ministry of Welfare of the Republic of Latvia

NGO Non-Governmental Organisation

NRW North-Rhine-Westphalia (Federal State of Germany)

NY No Year (for the publishing of the cited document)

OP EU Operational Program

PES Public Employment Service

PR Public Relation

SEA Latvian State Employment Agency

SME Small and Medium Sized Enterprises

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SLFS Swiss Labour Force Survey

SWOT Analysis system to assess a social system on Strengths, Weaknesses,

Opportunities and Threats

ToR Terms of References

VS Voucher System

UNDP United Nations Development Program(me)

USA United States of America

VAT Value Added Tax

WB World Bank

WIA Work Investment Act

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Introduction ____________________________________________________________ This report is based on the outcomes of research on the current general provision of employment support and job coaching programmes for PwDs across the EU. In particular it examines seven EU countries’ provisions in this area of the labour market. It also relies on the author’s own experience of managing the mainstreaming of employment services for PwDs in Ireland and on evaluations he conducted inter-alia on services to PwDs in some non-EU countries. The report focuses on mainstream employment placement supports both in the job seeking/guidance and counselling processes and during actual on-the-job periods. It does not envisage any in-depth analysis of sheltered workshops or institutional environments where in-house work is part of a therapeutic process. Chart 1 Percentage of people with disabilities by Member State and gender-2011 (as a % of the same age group; age: 16+)

EU-SILC 2011 & Eurostat

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1. Overview of Employment Support Services for PwDs across Europe ____________________________________________________________

Employment support and job coaching programmes for PwDs are widespread within the EU. Delivery models of such services vary across countries. Some Member States have established National policy-driven State-funded programmes entitled ‘Supported Employment1’ and Job-coaching services, other Member States provide such supports from a ground-up approach that are more dispersed and diverse, typically through NGO initiatives. Funding support ranges from central State funds to a mix of State and NGO sourced funds and many initiatives combine those types of funds with the European Social Fund (ESF) support. The trend in approach to employment of PwDs has been to move from a medical ‘disability rehabilitation’ model to an “ability” focused workforce development/participation-mainstreaming model. Whereas sheltered employment was a main employment support in the past, PwDs are since the 1990s, increasingly serviced by Public Employment Services (PES) as a first point of contact, where PwDs are invited to be mainstreamed clients of the PES. They can receive the same ALMPs as all other jobseekers with additional supports provided as required such as job coaches, career guidance, workplace adaptation grants, subsidies to employers to take on unemployed jobseekers, reader support for sight deficiencies, quota systems, flexible contractual arrangements and social benefits maintenance during the initial period of work placement. Most jobseeker services-PwDs are channelled through the PES (with some exceptions such as Austria), and most actual delivery of coaching and on-the-ground employment support services are delivered through NGOs and/or private sector providers. The shift to an ability-focused model has meant an increased emphasis on assessment of the individuals and the placement into jobs based on that assessment and ongoing support from a job coach. This has created demand for part-time and flexible jobs. In Denmark for example, ‘flex-jobs’ are part-time jobs for PwDs in the context of the European ‘Flexicurity’ model that was first described as such in Denmark. (Flex-Job employees receive the full rate of pay but can work reduced hours if necessary without loss of pay). Shorter working hours combined with flexible attendance patterns are more the norm for PwDs. At the EU level, based on the LFS2 figures, the average employment rate of PwDs is 38.1% as against 67% for people without disabilities (2011). 1 ‘Supported Employment’ is defined as a scheme that supports people with disabilities or other disadvantaged groups in obtaining and maintaining paid employment in the open labour market. Supportive measures must include assistance to the employee before, during, and after obtaining a job as well as support to the employer. Key to this is the job coach function. (Supported Employment for people with disabilities in the EU and EFTA-EEA good practices and recommendations in support of a flexicurity approach- EU Commission 2011) 11 EU Countries are members of the European Union of Supported Employment (EUSE). 2 The LFS does not collect data on PwDs in the normal Quarterly National Household Survey (QNHS). Special survey modules on PwDs were created in 2002 and 2011. In general we are using SILC data in this report, with the caveat that the samples taken for SILC are significantly smaller than the LFS and can thus affect reliability.

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Chart 2 Employment rate by disability status and Member State (age 20-64), 2011

EU-SILC 2011 and Eurostat

PwDs represent 12% of all part-time workers (2011 data-LFS special module). Countries with high rates of part-time jobs in the economy have also high part-time rates for PwDs. Croatia, Bulgaria and Slovakia have extremely low part-time rates whereas part-time employment rates are high in Germany, Sweden and the Netherlands. Chart 3 Percentage of persons with part-time and full-time work by Member State (age 20-64) 2011 (The percentage is calculated by dividing the number of persons with part-/full-time work by the total population of the same age group).

EU-SILC 2011

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The importance of part-time work increases with the degree of disability. For employed persons with a severe limitation, about 32% hold a part-time job and for employed disabled with a moderate disability, 27% work part-time. Chart 4 Reasons for working less than 30 hours in main job. EU, age 20-64 - 2011

EU-SILC 2011

Empirical research3 finds no employment effect from anti-discrimination legislation and there is mixed evidence on the merits or otherwise of PwDs quota systems. Personalised services, such as supported employment rather than large-scale uniform programmes (training or sheltered workshops), appear to be more effective in promoting a transition into the open labour market. PES also contribute to promoting the labour market inclusion of people with disabilities by collecting and disseminating evidence on the effectiveness of rehabilitation services, by developing the effectiveness of these services and by strengthening partnerships with stakeholders. Some PES use profiling4 tools to ensure that services are targeted to the neediest clients thus also ensuring that expensive PES support services for PwDs are maximised and cost effective.

3 PES approaches for sustainable activation of people with disabilities August 2013 DG Employment, Social Affairs & Inclusion (Agota Scharle-Budapest Institute) 4http://ec.europa.eu/social/keyDocuments.jsp?advSearchKey=pesprofilingintegration&mode=advancedSubmit&langId=en&search=Search&orderBy=docOrder

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2. EU policy position ____________________________________________________________

Under the European Employment Strategy (1997), the EU priorities were to attract more people into employment, and retain them; to increase labour supply; and to improve the adaptability of workers and enterprises. Bringing more workers into the labour market was a main aim and also activation of young and long-term unemployed. ‘Europe 2020’5 sets out to establish a smart, sustainable and inclusive economy in Europe delivering high levels of employment, productivity and social cohesion. Reduced work capacity poses a challenge to Europe in achieving inclusive and sustainable growth. Increasing the employment rate is one of the headline indicators in the “Europe 2020” strategy. The European Disability Strategy 2010-20206, adopted on 15 November 2010, is a comprehensive framework committing the Commission to empowerment of people with disabilities to enjoy their full rights, and to removing everyday barriers in life. The Strategy builds on the UN Convention on the Rights of Persons with Disabilities (UNCRPD)7 and takes into account the experience of the previous Disability Action Plan (2004-2010). There is no specific EU Policy on the ‘Supported Employment’ approach per se, but many EU countries use European Social Funding to fund supported employment initiatives and job coaching as part of those initiatives. While diverse forms of Supported Employment exist across Europe, in some countries there is still an unclear status for ‘Supported Employment’, unstable and unpredictable funding in some countries, a lack of awareness and knowledge about Supported Employment on national policy level and in Public Employment Services, a lack of monitoring and statistics, and a lack of financial and professional incentives for service providers. The European Disability Strategy 2010-2020 objectives are actioned in eight priority areas as follows: Accessibility: make goods and services accessible to people with disabilities and promote the market of assistive devices.

Participation: ensure that people with disabilities enjoy all benefits of EU citizenship; remove barriers to equal participation in public life and leisure activities; promote the provision of quality community-based services.

Equality: combat discrimination based on disability and promote equal opportunities.

Employment: raise significantly the share of persons with disabilities working in the open labour market. (Author’s underline)

5 http://ec.europa.eu/europe2020/europe-2020-in-a-nutshell/index_en.htm 6 Communication from the Commission to the European Parliament, The Council, The European Economic and Social Committee and The Committee Of The Regions, European Disability Strategy 2010-2020: A Renewed Commitment to a Barrier-Free Europe; European Commission Brussels, 15.11.2010 COM(2010) 636 final. 7 The purpose of the Convention is to promote, protect and ensure the full and equal enjoyment of all human rights and fundamental freedoms by all persons with disabilities, and to promote respect for their inherent dignity. http://www.un.org/disabilities/convention/conventionfull.shtml

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Education and training: promote inclusive education and lifelong learning for students and pupils with disabilities.

Social protection: promote decent living conditions, combat poverty and social exclusion.

Health: promote equal access to health services and related facilities.

External action: promote the rights of people with disabilities in the EU enlargement and international development programmes. At the EU level, on average 57% of persons with disabilities participate in the labour market (employed or unemployed) compared to 80% of persons without disabilities according to 2011 SILC data. There is a significant difference in the activity rates between people with and without disabilities in all Member States. The activity rate for PwDs is particularly low in Malta (36,5%), Croatia (38,6%) and Romania (40,3%). On the contrary, it is relatively high in Luxembourg (62,6%), Sweden (68,4%) and Germany (69,7%). Chart 5 Activity rate by disability status and Member State (age 20-64), 2011

EU-SILC 2011 The data in Chart 5 above, indicates that countries with similar good activity rates for non-disabled people can show big variations in the activity rate of people with disabilities. This indicates that there is a potential for increasing the activity rate of people with disabilities by the transfer of experience from one country to another. It is important to note that the six countries with the lowest activity gap (Germany, Luxembourg, Austria, Slovenia, Italy and France) have well developed quota schemes in favour of people with disabilities. Low activity rates are linked to poverty for both able and PwDs as set out in Chart 6 below.

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Chart 6 Percentage of persons who are either at risk of poverty or severely materially deprived or living in households with very low work intensity. Age 16-64.

EU-SILC 2011

The following Country Profiles of employment support and job coaching services illustrate the current state of play in seven EU countries. One of the main employment supports to PwDs in many European Countries is delivered by the network of Supported Employment organisations that are mainly but not exclusively established by NGOs (European Union of Supported Employment-‘EUSE’8).

8 http://www.eusetoolkit.eu

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3. Czech Republic ____________________________________________________________ 3.1 National Policy Job support and employment coaching for people with disabilities in the Czech Republic is governed mainly by the Employment Act 2004, which sets out the employment provisions for PwDs, such as financing for adaptation of the workplace, rehabilitation and job counselling. The approach in the Czech Republic could be viewed as being closer to a medical approach to PwDs, as the interventions are grouped under a “vocational rehabilitation” label, as being the main way to support people with disabilities into and during employment. There is no formal national policy for a “Supported Employment” programme that is common in some EU States9 but some of the elements of supported employment, including job coaches, are in the Czech approach and are delivered largely by NGOs. According to the Employment Act, vocational rehabilitation should be tailored to meet the individual needs of the person by the Public Employment Service (PES). PES Offices can contract provision of vocational rehabilitation services to NGOs or other providers. Under the provisions of the Act, a quota system is imposed so that all companies with more than 25 employees are obliged to employ PwDs, amounting to at least 4% of the individual company workforce. However this quota requirement can be met by an employer actually buying goods from a sheltered workshop which employs more than 50% PwDs or pay an annual fine (c EUR 2,500) in lieu of the hiring requirement for failing to reach the 4% target. This latter option is the one most commonly taken up by employers

3.2 Funding models Government finance for PwDs services comes through both the Employment/PES budget and the Social services budget. Service providers are in turn funded through these public funds with support from the European Social Fund (ESF). A good example is the support given to the Czech Union of Supported Employment 19 member organisations that provide counselling and job coaching services. The 19 organisations receive funding as follows:

51% from the Government funds 8.3 % from regional authorities, 4% from municipalities 31% European Social Fund 3.7% sponsorship 0.5 % from the Public Employment Service 1.5 % from other sources

9 e.g. in Austria, Cyprus, Finland, Germany, Ireland, Luxembourg, Malta, the Netherlands, Portugal, Spain, and Sweden.

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3.3 Service Delivery-organisational setup Employment support for PwDs is delivered through a combination of the Public Employment Service (PES) and NGOs. The Social Services can refer a PwD to the PES for “Vocational Rehabilitation”. The PES develop an individual action plan for vocational rehabilitation through vocational counselling, the delivery of which is normally contracted out to a NGO. However according to some sources only 15% of PwDs actually use the PES and most rely on self-referral to NGOs or with the help of family and friends. There are 39 service providers of supported employment in total, including 8 in Prague. 19 of these are members of the Czech Union of Supported Employment (CZuSE). Typically NGOs provide supported employment interventions that can include training on-the-job with a PwD assistant’s support and job coaching services. This type of intervention can last up to 24 months. In line with other jobseekers, the PwD can also be placed with a mainstream adult training provider. Support in the form of a subsidy, is available to adapt workplaces in the mainstream labour market for creating a sheltered working place. Job Coaches in supported employment agencies focus on PwDs’ motivation and support in the job-seeking process both before and during employment. The typical caseload of a job coach in the Czech Republic is seven clients. Job Coach training consists of 200 hours in a course run by CZuSE. The course is certified by the Ministry of Labour and Social affairs.

3.4 Eligibility requirements for PWD support/target groups For the purposes of social security benefit, the assessment of health conditions is made by doctors of the district social security administrations (OSSZ). In the sickness insurance system, temporary incapacity for work is assessed by a general practitioner, who in some cases requires the consent of an OSSZ doctor. OSSZ doctors may also monitor the work of GPs concerning certification of temporary incapacity for work. The most typical target group for supported employment coaching are people with learning disabilities, mental health problems, physical disabilities and those with a sensory disability. Job coaches also work to a much lesser extent with homeless people, ex-convicts, drug addicts and Roma. 3.5 Levels and types of support available Employers There are several incentives for employers as follows:

- Contribution to companies with more than 50% employees with disabilities. A wage subsidy of CZK 8,000 a month/person is granted (approx. EUR 325).

- Creation of jobs in sheltered work places - support for the establishment of a workplace and specialised equipment of up to 12 times the average wage per person (a once-off payment).

- Transport provisions and subsidies. - Wage subsidies can be provided for jobs in the open labour market for employing

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people with disabilities – described as socially purposeful jobs – for people who require special assistance/care up to 100% of the wage for one year. Employers can also receive a wage subsidy for the creation of such a job or for persons who wish to become self-employed. (Employers contend that these procedures are too cumbersome).

- Tax reduction - the employer (or the self-employed) is eligible for a decrease in the income base corresponding to a fixed amount of CZK 18,000 (approx. EUR 730) annually for less severely disabled; for severely disabled persons, a 60% tax reduction is given annually. In addition, employers may deduct CZK 6,000 year/person (approx. EUR 245) for social security contributions for each PwD.

Jobseekers PES and Supported Employment services are available to all PwDs and jobseekers can receive travel subsidies and support, housing /mobility benefits, tax exemptions, a personal work assistant, a flexible disability pension that can be retained when employed and flexible working arrangements. All the ALMPs available to other jobseekers are available to PwDs with the addition of the extra supports, as required. The Czech legislation provides the disabled employee with a standard minimum wage, and as stated, while in work they retain their disability benefit pension. Both the tax reduction legislation and the quota system legislation are designed to create strong motivation for the employer to employ a disabled person. However as stated above, employers have mechanisms to avoid the quota system.

3.6 Monitoring and evaluation The statistics available in the Czech Republic provide only overall information on the number of persons with disability registered as job seekers, the number of vacancies suitable for persons with disabilities and the number of persons with disabilities eligible for one vacancy. With regards to where PwDs are employed, there is only statistical data on new work places in sheltered workshops. Similarly, there is no overall data on the fulfilment of the disability employment quota. The Czech Statistical Office conducted a survey specifically focused on disability in 2007, which was published in 2008. The last National Census was conducted in spring 2011. Disabled people were not identified in the census. There is no official research institute or department responsible for research on disability equality and the collection of relevant data and statistics. The National association of Supported Employment10 (19 agencies) report that 34% of the total number of 1798 clients who completed their support service in 2012 were employed (compared to 2011- a growth of 14%).

3.7 Good practice example11 The PwD met with an Employment Support Worker (job coach) from the Supported Employment agency12 for an initial interview. The client was accepted into the project,

10 http://www.unie-pz.cz 11 Compendium of good practice Supported Employment for people with disabilities in the EU and EFTA-EEA European Commission 2011

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but because of waiting lists, the client was told that it would take three to six months before they could actively start looking for employment. Meanwhile, they drew up an Action Plan for the client's return to employment and had discussions about finding a suitable job. The prospective employee continued to participate in a job club at the Public Employment Service as an active jobseeker. A private wholesale company with 150 employees already had a trainee from the same Supported Employment agency on trial in the packing department. Due to lack of motivation and not fitting into the work environment, the placement did not work out well, and the employer decided not to employ the trainee. However the employer had been impressed with the good cooperation with the Supported Employment agency so he offered the job vacancy again to the Supported Employment agency to see if they could provide a more suitable client. The workplace is situated on the outskirts of Prague in an industrial area with poor public transport facilities. The Job Coach and the client visited the company for an interview, and the client informed the employer about his interests and skills. It was decided that he should start on trial in the packing department. The job suited him very well and after one day's work, the employer and colleagues found him so motivated that they agreed to sign a part-time contract with a standard three-month probation period. Mindful of the previous bad experience with the earlier client from the Supported Employment agency, the employer insisted that the Job Coach take full supporting responsibility and provide close monitoring at the workplace until everything went smoothly, and the client was successfully integrated into the job. The employer was especially concerned about support to enable the client to adapt to the work environment and stressed that the person had to fit in because he could not change the internal organisation of the workplace. Transport was another challenge, in that the client needed to become familiar with the travel route by metro and with connections to the firm's own transport facilities. Another issue evolved around how to dress appropriately for work. These issues were dealt with in cooperation between the Job Coach, the employer and the supported living social assistant. In the workplace, the Job Coach and the supported employee had regular talks about proper work attitudes and behaviour towards colleagues. The Job Coach also worked with the employee from the beginning to so that he would learn good packing routines and techniques and basic computer work. During the first month, the Job Coach attended the workplace two days per week, and then slowly reduced the on-the- job support to one day per week for the next six months. It is probable that the employee will always be dependent on the support of others, and now one of the firm’s own staff has been assigned the special task of monitoring his work. Particular care is taken that he does not work too much or too fast, but maintains a steady and manageable pace. The former Supported Employment client has now been in this job for two and a half years and has a permanent job contract. He hopes to stay there for a long period and enjoys his job and the work environment very much. He works two shifts of six hours

12 This particular Supported Employment agency has seven Job Coaches, each with a caseload of seven clients. All Job Coaches have attended a special course in Supported Employment run by the Czech Union of Supported Employment.

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in a week. He retains a full disability pension while working, in accordance with the Czech legislation. The employer pays a salary above the standard minimum wage and receives a tax reduction for employing a disabled person. According to obligations in legislation on the employment quota system, this employer is supposed to employ six disabled employees, and this placements a positive contribution to meeting the quota requirement. This example shows the importance of a good relationship between the Supported Employment agency and the employer, and demonstrates the importance of the Supported Employment agency taking responsibility for the inclusion process. The assistance from the Supported Employment agency made it possible to find a reliable employee with a disability to adhere to quota requirements. Close individual follow up by the Job Coach both off and on the job secured inclusion and acceptance at the workplace and fostered a well-functioning working relationship.

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4. Ireland ____________________________________________________________ 4.1 National Policy Following the Report of the Commission on the Status of People with Disabilities13, the principle of mainstreaming has been established policy since 2000, and was put on a legal footing in the Disability Act 2005. What this means is that all mainstream public services are expected, by Government, to be designed and delivered in ways that include people with disabilities, so that people with disabilities are considered by the public sector to be an integral part of the community they serve. This mainstreaming approach means that jobseekers with disabilities are serviced as mainstream clients of the PES on an equal footing with other jobseekers. The Disability Act 2005 places an obligation on public bodies to consider and respond to the needs of people with disabilities. Under Part 5 of the Act, 3% of jobs in public service bodies (local authorities, civil service, the Health Service Executive and so on) are reserved for people with disabilities. There is no quota for private sector employers. The National Disability Authority (NDA)14 has been to the fore of the recent developments in disability policy in Ireland. The NDA is an independent statutory agency that was established under by the Department of Justice, Equality & Law Reform by way of the National Disability Authority Act 1999. The role of the NDA is to ensure that the rights and entitlements of people with disabilities are protected. The NDA plays an important role in assisting in the coordination and development of disability policy and in carrying out research on disability in Ireland. The National Disability Strategy15 is a whole-of-Government approach to advancing the social inclusion of people with disabilities. In spite of the challenging economic and fiscal situation in Ireland, government feels it is important to continue to build on and consolidate the progress made to date. An Implementation Plan sets out the practical measures that are being taken to advance the National Disability Strategy over the period 2013 to 2015. Ireland has signed the UN Convention on the Rights of Persons with Disabilities, and it is the intention of Government to ratify the Convention once relevant legislation to secure compliance with the Convention has been enacted. Countries which have ratified the Convention are required to have a structured, planned approach towards progressively achieving the social, cultural and economic rights set out in the Convention. The National Disability Strategy Implementation Plan is designed to provide that planned framework to advance those rights. The Implementation Plan has been drawn up with due consideration to the obligations contained in the various articles of the Convention.

13 Commission on the Status of People with Disabilities. (1996) A strategy for equality: Summary of the report of the Commission on the Status of People with Disabilities 14 www.nda.ie 15 http://www.justice.ie/en/jelr/nda%20-%20policy%20-%202.Pdf/files/nda%20-%20policy%20-%202.Pdf

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A new comprehensive employment strategy for people with disabilities is currently being prepared and will be published in 2015 as part of the National Action Plan for Jobs. Employees with disabilities have the same employment rights as other employees. The Employment Equality Acts 1998-2011 outlaw discrimination on the grounds of disability in employment, including training and recruitment. However the Employment Equality Acts state that an employer is not obliged to recruit or retain a person who is not fully competent or capable of undertaking the duties attached to a job. The Employment Equality Acts also require employers to take reasonable steps to accommodate the needs of employees and prospective employees with disabilities. Reasonable accommodation can be defined as some modification to the tasks or structure of a job or workplace, which allows the qualified employee with a disability to fully do the job and enjoy equal employment opportunities. However, under EU legislation, employers are not obliged to provide special treatment or facilities if the cost of doing so is excessive or disproportionate. Under the Safety, Health and Welfare at Work Act 2005, employers must ensure the safety, health and welfare of all employees in their workplace. Special mention is made of employees with disabilities and employers are directed to take their needs into account, particularly with regard to doors, passageways, staircases, showers, washbasins, lavatories and workstations. 4.2 Funding model The main source of funding for services to PwDs is from the State. A number of Government Ministries channel funds for services to PwDs. The Ministries of Social Protection (PES Services), Justice (Equality issues), Environment, Community and Local Government (voluntary bodies for supported employment) and Ministry Jobs/Enterprise/Skills (training provision) are the main routes for State funds for services to PwDs. Some NGOs dealing with PwDs raise their own funds through various routes such as direct donations from the public. Some sheltered workshops produce an income from their activities.

4.3 Service Delivery-Organisational setup People with disabilities in Ireland are only half as likely to be in employment as others of working age. The reasons for this are complex, and include level of education and skills, fears around loss of benefits, employer know‐how, low expectations, and limited re‐entry to work following onset of a disability. Addressing the different obstacles to employment of groups experiencing labour market disadvantage requires a joined‐up multi‐pronged approach, spanning a number of key Departments and State agencies and also involves building capacity among employers and labour market providers to deal with the challenges involved. Up to the 1990s, a specialised employment service for PwDs was provided by the then National Rehabilitation Board (NRB). In line with the mainstreaming policy approaches outlined above, the PES services for PwDs were amalgamated into the main PES Agency-FAS. That has in turn been absorbed into the Department of Social Protection (DSP), since 2012. While the mainstreaming policy could be seen as politically correct, the actual outcome for PwDs seeking work was perhaps less than optimum, as the specialised assessment

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facilities and specialised counsellor expertise within the NRB was lost, to a certain extent. Partly to compensate for this, the Government/ESF funded Supported Employment Programme (SEP) was established where PwDs can get specialist coaching services and supports related to employment. Some SEP agencies have been recently rebranded to emphasise the positive employment ability focus and are now called “EmployAbility” agencies (e.g. www.employabilitywicklow.ie). Job Coaches are available from the Supported Employment Network 16 and Managers and professionals from across 12 European countries have come together to produce a ‘supported employment toolkit’. The toolkit acts as a handbook for job coaches as it explores the entire supported employment process, giving practical guidance for job coaches on each step of the process and setting out guidelines17 for best practice. Job coaches can come from a variety of backgrounds and specific training is available that will provide a national qualification. One such course18 is available at the Open College of Ireland.

4.4 Eligibility requirements for PWD support/target groups Typically a jobseeker with disabilities would have had the disability status confirmed by the local doctor/general practitioner with subsequent controls undertaken by the DSP. Jobseekers may then be entitled to disability allowance, amounting to EUR 188 per week. The jobseeker would then access the main PES just the same as any other jobseeker. Extra supports are available alongside the mainstream ALMPs available to jobseekers. These supports may include the provision of a job coach from an NGO providing the ‘Supported Employment’ programme. The decision as to whether a PwD needs a job coach is normally taken by the NGO and in some cases in collaboration with the PES(DSP). The service is technically open to all PwDs that need those supports in order to obtain and keep a job.

4.5 Levels and types of support available Labour market services for people with disabilities include helping them find paid employment or preparing them for work through training or employment programmes. Employment supports (see the model set out in section 5.7 below) are provided by the PES (INTREO)19 which as set out above, is now under the management of the Department of Social Protection (DSP). Employers Supports for employers in order to employ a PwD. There are a number of support schemes available if a new staff member who has a disability is hired. These employment supports are provided through the PES. Employers are encouraged to use these financial and practical supports by the PES officer dealing with the PwD clients. Various leaflets and websites provide a range of information on these subsidies and supports to employers

16 (IASE-http://www.iase.ie) 17 (http://www.iase.ie/pages/jobcoach/jobcoach_handbook.html) 18 http://opentrainingcollege.com/home/courses/certificate-in-supported-employment-phase-2/ 19 http://www.welfare.ie/en/Pages/Intreo---Contact-Information.aspx

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• Workplace/Equipment Adaptation Scheme: a grant towards the costs of adapting premises or buying equipment.

• The Employee Retention Grant Scheme can help retain an employee who has acquired an illness, condition or impairment that affects their ability to carry out their job.

• The Disability Awareness Training Scheme is open to all companies in the private sector. Disability awareness training can help staff provide the best service to customers or clients with disabilities and ensures that they also develop and maintain good working relationships with colleagues with disabilities.

• The Wage Subsidy Scheme provides financial incentives to employers, outside the public sector, to employ certain people with disabilities who work more than 20 hours per week. Jobseekers Through the PES, PwDs can access mainstream vocational training for the unemployed and for people who are re-entering the workforce through specific skills training and traineeships. Training for people already in employment is offered through apprenticeships and in-company training. People with disabilities are encouraged to make use of all these training options. Training courses for people with disabilities, who may need more intensive support than would be available in non-specialist training courses, are delivered by specialist training providers. Some key features of specialist training include adapted equipment, a more individual approach and longer training duration of up to 2 years (see http://www.nln.ie). Job Interview Interpreter Grant Scheme A jobseeker who is deaf, hard of hearing or has speech impairment can apply for funding to have a sign language interpreter or other interpreter accompanying the jobseeker to a job interview. Funding can also be provided to cover the costs of an interpreter during an induction period when the jobseeker starts work. Supported Employment Programme The already referenced Supported Employment Programme (SEP) helps people with disabilities find work and offers them ongoing support, including job coaches throughout their employment. The programme operates through a range of organisations around the country (http://www.iase.ie). As already indicated, the Ministries of Community and Local Government provide State funding to voluntary bodies to provide supported employment/job coaching and the Ministry Jobs/Enterprise/Skills provides funds for PwDs job training provisions. As set out above, Job coaches can come from a variety of backgrounds and specific training is available that will provide a national qualification, but is not compulsory. The key components or phases of the SEP can be described as follows: 1. Needs Assessment – identifying occupational aspirations, undertaking assessments of capacity and skills, identifying and addressing barriers to employment;

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2. Job Search / Job Development – identifying and approaching possible employers, preparing clients for specific jobs and / or job interviews, providing advice and assistance to both clients and employers in respect of job design and supports and adaptations, arranging work experience placements;

3. In Employment with Job Coach Support – providing of advice and support to both clients and employers in respect of mutual expectations and work performance, optimising clients’ capacities to undertake work tasks, developing supportive workplace relationships;

4. Aftercare and Mentoring – providing supports to aid integration, career development and independence. Support Options if the disability is developed while the client is already at work Employers are obliged to make reasonable accommodations for staff with disabilities and often, PwDs can continue working in an adapted workplace or with equipment and changes to the work practice and conditions of employment. Some possible options for the employed person and the employer include: • Partial re-deployment which allows the staff member to continue to do part of the original job (either part-time or with the addition of new tasks). Certain tasks can be dropped and others taken on that are currently carried out by other colleagues.

• Re-deployment: If unable to perform the previous job, but could carry out another function within the organisation, re-training and re-deployment are options.

• Flexible working arrangements by being able to work part-time, flexitime, job share or work from home.

• Adapting the workplace and assistive technology: an accessible workplace and assistive technology can allow performance of the job without difficulty. The Workplace/Equipment Adaptation Grant provides funding towards the costs of modifications or special equipment that will allow a disabled person to take up an offer of employment or to remain in employment.

• Personal Reader Grant: If blind or visually impaired and need help with job-related reading, the worker may be entitled to a grant to allow the employment of a personal reader. 4.6 Monitoring and evaluation In common with most EU countries, statistical data on PwDs employment outcomes in Ireland is weak. Outcomes from mainstream training and other ALMPs are generally not disaggregated to identify PwDs. However the 2011 census of population showed 33% of people with disabilities of working age20 in work, compared to 66% of non-disabled people. In total, there were 112,000 people with disabilities in employment.

20

Age 20 to 64

22

Chart 7

Employment rate of people with disabilities, 2011, by disability type

People with a hearing impairment are most likely of all disability groups to be at work. There are particularly low employment rates for people with physical disabilities, and those with intellectual or mental health issues.

The Supported Employment Programme (SEP) was evaluated and reviewed in 2008, as set out below21.

Table 1 Main Strengths and Weakness of the Supported Employment Programme as Identified by Employers in Ireland

Based on the views of employers it is clear that their generally high level of satisfaction with the SEP is due to the role that Job Coaches play in working with both clients and employers with a view to meeting their respective needs. This emphasis on meeting the needs of both employees and employers in a developmental and on-going manner can be seen as a unique feature of the SEP and one that differentiates it from mainstream employment services. Satisfactorily meeting the needs of both is essential to effectiveness. There is some evidence however that the SEP is performing less than fully effectively in securing employment for the majority of clients entering the programme. 21 The Operations and Effectiveness of the Supported Employment Programme. WRC Social and Economic Consultants May 2008

Strengths Weaknesses Providing support to both employee and employer

Actually ensuring clients can do the job are recruited to do

Enabling effective job matching and maximising the skills provided by employee and used by employer

Low levels of awareness of programme and what it offers among employers

Availability of service to resolve problems when they arise

Personnel recruited reluctant to work more hours - welfare restrictions

Practical advice and support on workplace / job design adaptations

Discontinuity of service due to changes in personnel

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Based on the views of Job Coaches, improving the effectiveness of the SEP requires action on a number of fronts, notably: (i) creating a national identity for the programme and branding and promoting it in an effective manner to potential clients including people with disabilities and employers; (ii) reconsidering what are found to be restrictive criteria in the areas of working hours and durations of support in the Operating Standards; (iii) addressing disincentives to taking up employment and increasing hours of work arising from the operation of the welfare system; (iv) creating more incentives for employers to recruit people with disabilities with assistance from the SEP; and, (v) developing more systematic and effective linkages between the operation of the SEP and other elements of labour market provision in which people with disabilities participate. Most of these recommendations had been subsequently implemented including the rebranding to “EmployAbility” for some SEP agencies. Based on the different point-in-time estimates of the proportion of active clients in employment with support from the SEP, it is estimated that between 35% and 40% have been placed in employment. Substantial variation was found in respect of the time taken by clients to access employment with support from the SEP. One in four (26.5%) clients obtaining employment did so within 12 weeks of entry to the SEP and a further one in five (19.5%) did so within 24 weeks. On the other hand, over one in five (21.4%) clients obtaining employment did so having been 18 months on the SEP. This suggests that the SEP is engaging with clients with different levels of “job readiness” and “employability”: some active clients - the majority - can be assisted to obtain employment within a relatively short time frame while others - albeit a minority - require considerably longer periods of support before they obtain employment. Table 2 Nature of Support Provided by Job Coaches

Actually identified job and directly contacted employer 33.6%

Guidance and on-going support 19.8%

Provided information on possible jobs / vacancies 15.3%

Arranged interviews 10.7%

Provided assistance with CVs and application forms 10.7%

Provided training on doing job interviews, interview preparation

3.3%

Made approaches to potential employers on behalf of client 3.3%

Arranged temporary work experience placement 3.3%

4.7 Good practice Supported Employment Process as practiced in Ireland Supported Employment in Ireland is a dynamic process driven by the individual and is provided in accordance with agreed European guidelines. The PES refers the PwD to the supported employment service or indeed the PwD can self-refer. A 5-stage process has been identified and acknowledged as a model of good practice and one that can be used as a framework within Supported Employment. Within each of the 5 stages there

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is a wide range of activities, some will be unique to a specific disability group, others will be more general and will apply across all disadvantaged groups. Across all stages and activities, service providers should consider their timescales as an opportunity to take responsibility for not wasting the individual’s lifetime. Stage 1 – Engagement This stage probably provides the broadest range of activities, the majority of which will be unique not only to specific disability groups but may be also unique to individuals from any other disadvantaged groups. The core values of this stage are to provide accessible information in an appropriate manner and to support the individual to use the information and experiential learning to make informed choices. The activities in this stage must be relevant, person centred and part of an agreed plan of action to ultimately support the individual into open employment. It is expected that at the end of the engagement stage the individual will make an informed decision as to whether or not s/he wishes to use supported employment to find work and whether s/he wishes to do so with that particular service provider. Stage 2 – Vocational Profiling The activities in this stage will provide an insight into aspects of the individual’s skills, abilities, strengths and weaknesses and will produce a detailed profile of employment related issues that will influence the remainder of the process. Supported employment gives job seekers the opportunity of actively selecting a job compatible with their interests, aspirations, needs, conditions and background experience. This planning process is based on an empowerment approach, in which participants are encouraged to make their own career choices and participate in the design of their own work project, in accordance with their interests and vocational aspirations. A person-centred Planning approach should be fully adopted within this stage. Stage 3 - Job Finding Job finding is a key stage where the activities involved can influence employers and secure employment for job seekers. There is no one best way to job search and Supported Employment providers must consider a range of activities that best suit the needs of the parties concerned. It is not to say who should or should not conduct the job search but at all times the job seeker must remain in control of the activities and be given the fullest advice and be equipped to make informed choices. Irrespective of the effects of disability or any other disadvantage, the ownership must rest with the job seeker, with the Supported Employment provider furnishing detailed guidance and advice. There are, of course, a number of methods that can be used to identify a suitable job or employer through:

• Compiling a Curriculum Vitae • Responding to job advertisements • Writing speculative letters to employers • Cold Calling • Job Tasters or Work Trials (both time limited) • Developing employer contacts and networks • Creating jobs by the supported employment provider

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Stage 4 - Employer Engagement

The activities in this stage will depend on what format the engagement or meeting with the employer takes. For the purposes of this work, there is an assumption that the Supported Employment professional and probably the job seeker will meet with the employer. This stage will determine what is potentially on offer from the employer.

• Potential areas to be discussed will include • Skills/experience required by employer • Hours of work (or Job Taster / Work Experience Placement) • Terms and Conditions of employment • Workplace culture • Support required by job seeker • Support available from Supported Employment provider • Support available from employer / co-workers • Issues surrounding disclosure • Awareness training for employer and co-workers • Health and Safety requirements • Availability of funding and support through Government Programmes • Guidance and advice to employers on their obligations / responsibilities under

legislation.

Stage 5 - On/Off Job Support

The levels, amount and forms of support to be provided will depend upon the individual’s needs, abilities and employment situation. Support is a key feature of supported employment and is present at all stages of the process. Professional support should gradually fade and be replaced by support from co-workers. The levels of support and fading strategy should be planned and reviewed with co-workers, employer and the individual. The provision of On or Off the job support enables the individual the opportunity to learn and perform appropriately, to be part of the work team, contribute to the company culture and also assists with career progression. It also provides the employer with a support mechanism and provides co-workers with knowledge and understanding, which in turn assists the development of natural support in the workplace. The package of support measures to be provided should be person centred and flexible and could include:

On the Job Support:

• Guiding and assisting with social skills • Identifying a mentor/co-worker • Determining workplace culture • Supporting the client to adapt to the workplace • Providing support to the employer and work colleagues • Identifying workplace custom and practice • Identifying opportunities for career progression Off the Job Support:

• Solving practical problems/issues (transport, work dress etc) • Discussing interpersonal work relationships • Assisting with welfare benefits bureaucracy • Maintaining liaison with Healthcare/Social Work professionals • Listening and advising regarding issues raised by service use.

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5. Austria ____________________________________________________________ 5.1 National Policy Labour market policy in Austria is characterised by close interaction between governmental and non-governmental institutions. The social partners are involved in a great variety of activities and bodies devising and implementing legislation and policy measures. In Austria employment-related services and supports for PwDs have a long and well-developed history. Austria is a Federal Nation and operates most government services on a decentralised basis. For example, the PES has a federal headquarters, 9 Lander offices, 67 careers information offices and 101 local offices. The current approach to employment of PwDs in Austria is one of mainstreaming services for PwDs. Job Coaching and supported employment are nationally available services funded by the state. There are two main players in the employment of PwDs sphere-the PES (AMS-Arbeitsmarktservice)) and the Federal Office for Social Affairs (Bundessozialamt- BSB). Both of these agencies are governed by the Federal Ministry of Labour, Social Affairs and Consumer Protection (BMASK). While the mainstreaming approach encourages PWD jobseekers to approach the PES, many of the special employment supports for PwDs are traditionally funded though the BSB. The BSB’s main function is to cooperate with all relevant players in order to coordinate labour market policy measures for PwDs, manage the transfer of knowledge and information, and ensure the exchange of experience on the issue of disability and work. Austria has ratified the UN convention on Disability rights and as a result the BSB assumed new key tasks in 2006 of enforcing the Federal Disability Equality Act-2006 (BGStG) and managing conciliation proceedings. Conciliation proceedings are effective anti-discrimination tools for people with disabilities. The disabled ask the BSB to initiate conciliation, which precedes any court proceedings. Employment and coaching supports for PwDs are ab-initio governed by the Disability Employment Act (DEA) of 1969 that has been amended many times. The PES is governed by the Labour Market Promotion Act and the Public Employment Service Act. The most important regulations within the DEA are:

- Quota system-Employment obligation of companies with more than 25 employees/workers (Firms with 25 employees must employ one “Benefited/registered disabled” Person and pro-rata for companies with more than 25 staff). In 2010, 22.8% of all employers who were obliged to employ people with disabilities fulfilled this obligation. The public sector fulfilled 66% of its employment obligations under the Act.

- Regulations concerning the penalty tax (Ausgleichstaxe) – a tax (at the moment set at 206€) which must be paid by companies for each quota position that is not filled.

- Utilisation of the penalty tax fund (Ausgleichstaxfonds) with which PWD. employment related support measures are being funded.

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- The Definition and regulation of the application procedure to acquire official ‘disabled’ status.

- The associated additional rights for this status (e.g. enhanced dismissal protection).

- The regulations concerning the “Integrative companies” (Integrative Betriebe) – the waged employment part of Austria’s Sheltered Employment sector.

The “National Strategy and Action Plan on Disability 2012 – 2020 is one of the Governments platforms for the implementation of the UN Disability Rights Convention. The Action Plan includes eight main themes on Disability Policy; Protection against discrimination; Accessibility; Education; Employment; Living Independently; Health and Rehabilitation; Awareness-Raising and Information. The Plan is also informed by the European Disability Strategy 2010-2020 5.2 Funding Models The main sources of funding for employment supports comes from the PES (AMS)-and the Federal Office for Social Affairs (BSB) with the latter providing a large bulk of the funding. The source of the employment related funds is mainly from the State, ESF and some from the regional insurance funds. For example the national supported employment initiative finance comes from through the BSB with 40% from the national State budget, 35% from the European Social Fund(ESF) and 25% from the Ausgleichstaxfonds i.e. the charges/tax paid by enterprises that do not meet the PWD employment quotas.

5.3 Service delivery-organisational setup In line with many of the models set out in this report, the mainstreaming approach means that PwDs are entitled to access PES services and all the ALMPs available to all jobseekers regardless of status. However because of the long history of supports to PwDs stemming from the 1969 Disability Act, the BSB regional social affairs offices play a big role in provision of supports and services. Seen as a central contact point for people with disabilities, the BSB‘s core task is to ensure employment, vocational and social inclusion of PwDs. As the competence centre for disability and work, the BSB is in charge of coordinating occupational rehabilitation and supporting a wide range of interlinked services in the field of employment. These services are provided to both employees and employers. The BSB‘s Länder offices act as regional players in the Länder (federal regions). They implement these tasks with due regard to regional specificities and individual customers’ needs and requirements. The Länder offices’ expert units offer initial consultation on the services and benefits available from the Federal Social Office and help file all the necessary applications on-site. The BSB’s main function is to cooperate with the PES (AMS) and all the related players in order to coordinate labour market policy measures, manage the transfer of knowledge and information, and ensure the exchange of experience on the issue of disability and work. The BSB funds and coordinates the national Supported Employment Programme (including Job Coaches and personal assistants). The Lander social offices contract out the supported employment services to 45 NGO service providers. These services

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include the provision of an employment assistant for up to 12 months and more intensive job coaching for 3-6 months if required (often the case for PwDs with intellectual difficulties). Job Coaches typically have caseload of 15 PwDs. No formal training/education is provided specifically for job coaches or employment assistants. Access to Supported Employment can be via the PES or the PwD can also access the service via the BSB office. Measures offered by the BSB (in collaboration, as required, with the PES) to ensure the vocational integration of people with disabilities include the following:

- Youth coaching (Jugendcoaching); - Training assistance programme (Berufsausbildungsassistenz); - Job assistance programme (Arbeitsassistenz) for people with disabilities and for

young people with disabilities, as well as other support measures; - Job coaching; - Skills development projects and Employment projects aimed at facilitating the

vocational integration of people with disabilities; - Personal assistance in the workplace; - Technical and other workplace support, as well as support to retain and create

jobs and training places; - Wage subsidies; - Support to ensure self-employment.

As already indicated the Public Employment Service also supports the employment of people with disabilities in mainstreaming approach by providing integration supports in the form of wage subsidies. In addition, a number of project-based employment subsidies are available. These transition-type jobs involving personal assistance, promote the integration of specially disadvantaged groups in the labour market. PES clients with special problems are offered supplementary support measures in external counselling and guidance centres. Whenever the public employment service uses extra support measures, e.g. job assistance, it cooperates with the Federal Social Office. The separation of roles between the BSB and the PES has been regarded as inefficient in the past but in recent years there has been better coordination between the two, particularly in relation to operational employment services for the PwDs.

5.4 Eligibility requirements for PWD support/Target groups The target groups are people with disabilities aged up to 65, young people up to the age of 24 without a school leaving certificate or with a poor school leaving certificate, with social and emotional disturbances, adults with the medical diagnosis of a disability of more than 50% disablement. Figures indicate that in 2012 94,910 PwDs were receiving special supports of whom 61.281 were employed or self-employed. According to AMS the unemployment rate of PwDs is 9.6%. 36,349 PwDs were registered with the PES in 2012. Approximately 30% of them found employment in the open labour market during the first year. The overall Employment Rate of PwDs in Austria is 48%

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5.5 Levels and Types of Supports available Employers In line with most European PES, AMS in collaboration with BSB offers the above-referenced supports to employers to take on PwDs. In relation to wage subsidies, employers recruiting people with disabilities are entitled to integration subsidies (Eingliederungshilfe). In the first three months, the subsidy covers 100% of the gross wage + 50% of additional expenses (Lohnnebenkosten: health and pension insurance etc). The next nine months, subsidies cover 50% of the gross wages and 25% of additional expenses. After this first year, the employer is entitled to permanent (year to year), financial support (IBH, Integrationsbeihilfe) from the social welfare administration (BSB) for employees with disabilities. This covers extra expenses for circumstances related to the disability. The high level and range of employer supports demonstrates the Austrian State’s commitment to the employment needs of PwDs. Jobseekers There is a highly organised and well developed network of Supported Employment services in Austria that can be accessed by the PWD either directly, by referral from the BSB or referral from the PES (AMS). There is a strong focus on young people in the Supported Employment network partly because in Austria there is a strong focus on the transition from school to work. All the measures offered outlined above are available to support jobseekers. All the mainstream ALMPs are also available through the PES. An interesting aspect22 of jobseeker support in Austria is enhanced employment dismissal protection for disabled people (Kundigungsschutz) which is acknowledged as having a negative impact on employers employing disabled employees - and thus making use of the Supported Employment facility. However the dismissal protection is only for those people registered as disabled according to the legal provisions of the employment quota scheme. A practical implication of these provisions is that some - mainly young disabled persons - choose not to register themselves with the scheme. Instead, they confine themselves to obtaining a "Behindertenausweis" (proof of disability), which is sufficient to become eligible for the Supported Employment scheme. In other words, some disabled persons bypass the system in order to be more attractive to the employer, but at the same time loose some rights. Older workers seem more concerned about being dismissed, so most formally register according to the provisions of the employment quota scheme.

5.6 Monitoring and Evaluation The BSB records gross success rates of job placement and job retention There are no statistics on ‘dead-weight’ i.e. whether the jobs created or retained would have

22 Supported Employment for people with disabilities in the EU and EFTA-EEA good practices and recommendations in support of a flexicurity approach-EU Commission/COWI 2011

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materialised without the help of Supported Employment. The registered success rates23 in 2009 were as follows (both placement and retention) by type of disability:

- Universal/general 62.5% - Blind/visually impaired 67.5% - Mental illness 51.1% - Physical disability 55.9% - Intellectual disability 55.8% - Deaf/hearing impaired 60.1%

The BSB estimates the average job placement rate (i.e. excluding retaining jobs) to be 40-50% - all of which are paid jobs with public or private employers. There are no official statistics on dropout rates - i.e. on Supported Employment relationships that finish early. There is some evidence of ‘creaming’ where the easier to place job-ready PwD may be prioritised over the more difficult to place PwD. The perception is that the current support time from Job Coach/assistants is too short, i.e. between six and twelve months with a maximum of 1.5 years.

5.7 Good Practice example24 The supported employee is a 40-year-old male with a hearing impairment (deaf). He has a qualified education in metal handicraft, but has never had the opportunity to find work matching his qualifications. For ten years, he was doing unskilled, low-waged, labour (cleaning, renovation etc). He has not participated in any labour market measure. All his efforts to achieve work according to his qualification failed. During all of these years, the Public Employment Service had not provided any help to achieve a job that matched his qualifications (skilled metal industrial worker). Before contacting the Supported Employment service, he was unemployed for about one year, receiving unemployment benefits. Due to waiting lists, the client was not immediately accepted into the service. It took about one year before he was allocated a personal Employment Support Worker (Job Coach). Meanwhile he attended the weekly open sessions at the service, where he received job search advice, access to the internet, and help to write a CV. The intensive job search together with the Job Coach lasted about another year. The client actively participated in job searching activities, and together with the Job Coach he applied all possible means to finding a job: sending applications to job vacancies, making cold calls, sending speculative letters and forwarding his CV to companies. Due to his hearing impairment, the task of making phone calls to employers was undertaken by the Job Coach. The Job Coach was also able to communicate with sign language. Compared to the service offered by the Public Employment Service, this kind of assistance made a major

23 ibid 24 Compendium of good practice Supported Employment for people with disabilities in the EU and EFTA-EEA 2011 (European Commission and COWI)

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difference in connecting to potential employers, however, they both experienced a great deal of reluctance from employers to offer jobs to disabled persons. The main reason given by some employers for not offering the client a job, even though he had all qualifications and skills necessary, was the particular protection against dismissing disabled persons. Employers repeatedly stated that they saw this as a regulation that restricted their liberty far too much. The client met weekly with the Job Coach and submitted job applications, but was rarely invited to job interviews. The PwDs present job was advertised through the employment service, and the Job Coach responded to the advertisement. It was a small business (12 employees) in the private sector, part of the advanced metal industry. The employer was initially reluctant to hire a person with disability because of dismissal protection, but the Job Coach informed him about ways to minimise that perceived risk. Partly due to the efforts of the Job Coach, the client finally got the chance for a job interview. He was instructed to attend the interview 'dressed for work', as the employer wished to start a Work Experience Placement (WEP) from the very first day. The employer, Job Coach and client agreed to a two week Work Experience Placement. After the first week, the employer was so satisfied about the client’s extraordinarily high skills and work ability that the placement was developed into an ordinary waged job. Since then the supported employee has been in paid, full-time work in this company and in a job that matches his competence, skills and education. The employer appointed a special mentor among his colleagues to assist and advise the client in his new job. At the outset, the role of the Job Coach was to introduce the employee briefly to the work place, culture, routines and circumstances and explain to co- workers how to pay attention to the employee’s special needs and how to facilitate communication between the employee and his co-workers. Contact between the employer and the Job Coach has continued. The employer or the employee may contact the Job Coach any time when they need help to solve smaller problems; this happens two to three times during a year. From the point of view of the employee the success lies in the support of his Job Coach, which paved the way for contact to employers, job interviews and ultimately a stable, well-paid job that matched his qualifications and skills. He is satisfied with his work tasks, the payment and his prospects to advance further within the company. He is also convinced that the Job Coach’s knowledge about his particular disability, her ability to communicate with him in sign language and her personal engagement were vital conditions for securing this job. From the point of view of the employer, the method of being contacted by the Job Coach was a very positive experience. The Job Coach provided valuable professional guidance related to formal obligations and duties as well as access to wage subsidies. The special dismissal protection for disabled people (Kündigungsschutz) had previously discouraged him from employing a disabled employee. However, due to the guidance of the Job Coach, the employer found a way of working around this issue. The success on the part of the employer was that the assistance from the Supported Employment agency made it possible not only to get a highly skilled employee, but also to get a loyal and stable employee.

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6. Denmark ____________________________________________________________ 6.1 National Policy The approach in Denmark is to mainstream employment services for PwDs. They access the same labour market services as all jobseekers. Additional employment supports are provided if required. A key element in the employment of PwDs is the ‘Flex-Jobs’ approach, discussed further on in this section. Denmark signed the United Nations Convention on the Rights of persons with Disabilities (UNCRPD) in 2007.

The Law on compensation to disabled people in employment (lov om kompensation til handicappede i erhverv 2001, 2002, 2005, 2006) offers among other things personal assistants to disabled persons, if it is necessary for employment. The Law on active employment effort (lov om aktiv beskæftigelsesindsats, 2005) contains among other things provision for flexible jobs, which are jobs with permanent wage support of 50 % or 65 %. The Law on social service (den sociale servicelov 1998ff) covers, among other things, personal assistance in daily life, assistive aids and equipment, adaptation to the home, sheltered employment and payment of special expenses that follow from the disability anti-discrimination legislation. The Law on Equal Treatment in the Labour Market (LBK nr 1349 af 16/12/2008) begins: “This act understands unequal treatment as any direct or indirect discrimination based on race, colour, religion or belief, political opinion, sexual orientation, age, disability or national, social or ethnic origin”

The Danish government launched a new National Action Plan on Disability in October 2013.25 According to the terms of reference (tor) for the development of the new national action plan,26 the background for the plan is Denmark’s ratification of the CRPD and a need to develop a multi-sectorial approach. The tor stated that the action plan will support the continued implementation of the CRPD and thus also the principles of inclusion, respect for differences, equal opportunities, accessibility, empowerment and self-determination of persons with disabilities. The plan covers citizenship and participation, education, employment, knowledge about conditions of people with disabilities and about the effect of possible interventions, connection and quality in social legislation and new technology and increased accessibility for people with disabilities. The action plan takes as its point of departure the existing knowledge of the situation and sets new goals. The strategy builds on four principles: equal treatment; compensation; sectorial responsibility; and solidarity.

In January 2013, a reform of disability pensions and flex-jobs was implemented. In the new rehabilitation model the disability pension is now unavailable for persons under the age of 40, unless it is evident that they will never be able to take up work again. From January 2013, the awarding of a disability pension requires prior participation in at least one rehabilitation program and young people can participate in additional

25 The description by the Ministry of Social Affairs, Children and Integration of the new policy is available at:http://www.sm.dk/Temaer/sociale-omraader/Handicap/handicappolitik/handicappolitisk-handlingsplan/Sider/default.aspx 26 Terms of reference the development of a new multi-sectorial Disability Action Plan, available at: http://www.sm.dk/Temaer/sociale-omraader/Handicap/Documents/Kommissorium%20for%20arbejdet%20med%20en%20ny%20handicappolitisk%20handlingsplan.pdf

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rehabilitation programs successively. Instead of disability pension, people with substantially reduced work capacity will be offered individually tailored rehabilitation and support measures for up to 5 years. The rehabilitation model will involve a close cooperation between the health sector and the relevant labour market institutions, social services and the education sector. There is no quota system for PwDs in Denmark but public employers are under an obligation to give a disabled person, who has difficulty finding employment in the ordinary labour market, preferential access to the vacant position if, in the opinion of the employer, the person with disability has the same qualifications as the other applicants.

6.2 Funding models Finance for services to PwDs is provided from a combination of State and Municipal sources. For example the State pays 35% of disability pension, 50% of social assistance and sick pay and 65% of the ‘flex-jobs’ costs.

6.3 Service Delivery-Organisational setup

The main access point to the open labour market for PwDs is through the PES. Employment services have for many years been highly decentralised in Denmark where the municipalities have a strong management role in employment service delivery. In relation to the flex-jobs option, the municipality assesses the working capacity of the PwDs and if it is sufficiently reduced, the person has a right to a ‘flex certificate’ from the job centre that allows them to approach employers for a flex-job. All the mainstream ALMPs are also available to the PwDs via the PES jobcentres.

The PES has gone through quite a few reforms in the last 15 years. Currently a new configuration is in place since 2014. The Danish Agency for Labour Market and Recruitment (Styrelsen for Arbejdsmarked og Rekruttering har fire kerneopgaver-STARS is the new acronym) is the new PES agency (was previously AMS) under the Ministry of Employment. The overall objective of the agency is to help ‘ensure27 that Denmark has a flexible, dynamic and efficient labour market. The main focus is on moving people from unemployment and social security benefits into education and employment. It is also the objective to increase the available workforce in Denmark to the benefit of employers in Denmark and Danish society at large. This is to be achieved by retaining people on the Danish labour market, and supporting the efforts to recruit highly qualified professionals from outside Denmark’. STARS has 8 Regional offices and the 93 job centres in the municipalities work in collaboration with the STARS structure.

At a local level, municipalities manage employment measures for citizens and enterprises within the frameworks of legislation. All municipalities have a Job Centre that manages all employment-directed tasks for all groups of citizens: employed people, recipients of unemployment benefits, recipients of social cash benefits, recipients of sickness benefits rehabilitees, etc. The employment regional structure plays a central role in ensuring accountability, as well as supporting flexibility in employment policy in Denmark. Employment regions

27 http://www.star.dk/da/English.aspx

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fall under the remit of STARS. Each region has set up an advisory regional employment council consisting of the social partners, the municipalities, the Regional Council and the Disabled People’s Organisation in Denmark. The employment regions and the employment councils have annual formal agreements with the Minister for Employment on how the regions must work to ensure good results and effects in employment measures in cooperation with the Job Centres. Employment supports, job coaching and work assistants are available via the Job centres and through NGOs such as ‘NextJob.28’

6.4 Eligibility requirements for PWD support/target groups

All jobseekers who have a difficulty accessing the labour market because of physical or mental disability are entitled to access to the employment services at municipal level. Since there is no national supported employment structure in Denmark there are no national eligibility guidelines for NGO-managed job-coaching. Ethnic minorities make up a large part of the target group for both the current reforms of the disability pensions, flexi-job schemes and the cash benefit scheme. These reforms are intended to strengthen the efforts to help ethnic minorities with limited labour market attachment gain employment. Ethnic minorities make up about 1/5 of the people in flexi-job (see below) and on disability pension and 1/3 of the recipients of cash benefits

6.5 Levels and types of support available

Employers Subsidies are available for work aids, IT and other physical tools, small-scale workstation design and layout and specialised training material. Subsidies are also available for personal assistants/job coaches. Wage subsidies are available for up to a year for PwDs who are school leavers for whom support may be granted for employment with a public or private employer for a period of up to two years after leaving school. Jobseekers

PwDs who are jobseekers can invoke all the above-mentioned supports. All other ALMPs are available through the jobcentres, in the mainstreaming approach. A unique feature of PwDs employment support in Denmark is the concept of Flex-Jobs. The Flex-Job scheme was introduced in 1998 as part of a more active employment policy. It was expected that more people could stay in the labour market although their working capacity had declined and that the scheme would thereby reduce the number of early retirees.

The flex-job and early retirement reform of 2003 was implemented to further support this ambition. Employers hiring workers who have been approved for flex jobs are entitled to a partial wage subsidy equivalent to one half or two thirds of the agreed wage. To be eligible, the individual had to be below 65 years of age, have a working capacity permanently reduced by more than 50% and have exhausted all other

28

www.nextjob.dk

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avenues of obtaining ordinary employment. Flex- jobs holders are entitled to both unemployment benefits and flex benefits, which can amount to the going pay rate for the particular occupation. Flex-jobs are effectively subsidised employment and can be created at both private and public sector employers (state, region and municipality). The municipality assesses the PWD jobseeker’s working capacity and if it is sufficiently reduced, the person has a right to a flex certificate for the job. A ‘flex certificate’ may make it easier to find a flex-job as it tells the employer that the person is referred for a flex job and what needs they have. The certificate also gives some general information about the flex job system. The jobcentre will grant a flex certificate on request from the municipality. The work is planned according to the PwDs needs and the work pace is adjusted and the person gets necessary breaks. It is also possible to agree on a daily reduction of working time without reduction of wages. The working conditions are established in cooperation with the unions. The salaries for flex-jobs follow the labour market agreements. The municipality must offer the worker a full time flex-job, but if preferred they may be offered a part-time flex job, or if the last job was a part time job and the employment for the latest 12 months has been part-time. The employer gets a public subsidy equal to 1/2 or 2/3 of the minimum standard wage depending on the working capacity of the person. The subsidy is kept under review and may be increased, reduced or waived completely, if the work capacity changes. The municipality where the person lives assigns the flex job. The municipality pays the subsidy to the employer and gets a share (65%) of the cost reimbursed by the State. Flex jobbers have a form of unemployment insurance that is similar to, but not quite identical to, the ordinary unemployment insurance. In case of unemployment it gives a right to unemployment allowance. The maximal unemployment allowance is equal to between 91% and 82% of the highest amounts of the ordinary unemployment allowance.

The high numbers of people in flex jobs with low progression rates in employment prompted a 2012 reform of the disability pension scheme and flexi-job scheme. As mentioned above, the reform is intended to ensure that the future will see an increased emphasis on developing the resources of the individual and their working ability. Reinforced rehabilitation teams have been established in all municipalities so that the employment-related, social and health-related resources and challenges of the individual will be jointly clarified, focusing on training, employment, and financial independence. Only those with very low work capacity will be allowed to enter the flex-jobs scheme. Flex-jobs will only be granted temporarily, initially for five years, with regular reviews during the 5-year period and the focus is now on the temporary aspect of the scheme to avoid PwDs being parked in the scheme indefinitely.

6.6 Monitoring and Evaluation Eurostat statistics on income, social inclusion and living conditions (SILC) data for 2011 indicates that the employment rate of PwDs was 54% compared with 78% for non-disabled people and that the unemployment rate was 15% and the activity rate was 63%. The Danish Agency for Labour Market and Recruitment collects data on PwDs in the PES system. A recent 2014 evaluation29 of the Flex-Jobs scheme using

29 Unemployment under the flex job scheme increases the risk of permanent social security benefits

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administrative data raised the issue of a low placement rate of people on subsidised flex jobs. Recipients of disability pension or flex job allowance totalled 270,000 persons in Denmark in 2000. By 2009, this number had grown to nearly 337,000 corresponding to a percentage rise of 25.Calculated as full-time workers, flex job holders make up 2.3% of total work force (16-66-year-olds), recipients of disability pension are at 8.9%.

Research30 indicates that 53% of persons with disabilities are in work and are managing well. For others, there are a number of problems. In some workplaces there are negative attitudes that create barriers to employing disabled people, both among employees and employers. Employers may not know about the schemes of public support for helping with disability related problems in work. An important conclusion from the research is that the bottleneck for employing more people with disabilities is not the supports provided by the State. It is argued that new legislation is not the answer to the issues. It is rather a question of fully utilising the legislation that already exists. Disabled persons’ own attitudes and self-reliance are also important. 6.7 Good Practice example31 NextJob32 offers a labour market training programme entitled "Job and Clarifying" for people over 18 years of age with different kinds of mental disabilities and/or learning disorders who do not receive early retirements.

The aim of the labour market training programme is to provide individual support to potential jobseekers through job consultant services to identify skills and workability, as well as to provide support for obtaining and maintaining jobs with salary subsidies or flex jobs. The programme also provides support to jobseekers by finding potential employers and internships. Four job consultants are currently employed in the Job and Clarifying programme, where the average caseload of the job consultants is usually seven.

Another local job centre in Denmark offering various services in the field of Supported Employment is the "Work4You" centre in the municipality of Viborg. In cooperation with the local job centre in Viborg, the Work4You centre provides individual support to people with disabilities as well as other disadvantaged groups in the labour market, who experience difficulties in accessing the open labour market. The main aim of the Work4You centre is to help potential jobseekers identify their work abilities and work preferences in the form individual job coaching, rehabilitation activities and internships at local workplaces. The maximum length of support time for the jobseekers is 12 weeks, in which time the same job coach assists the individual jobseeker for the entire period. Up to 125 people are connected to the centre each year (including disabled people as well as able people), and the average caseload of job coaches is 25.

Vibeke Jensen1, Birthe Lundager1, Anette Luther Christensen1 & Kirsten Fonager Danish Medical Journal April 2014 30 Thomas Clausen, Jane Greve Pedersen, Bente Marianne Olsen, Steen Bengtsson: Handicap og beskæftigelse - et forhindringsløb? (Disability and employment – an obstacle race). Copenhagen: Socialforskningsinstituttet 31 Supported Employment for people with disabilities in the EU and EFTA-EEA good practices and recommendations in support of a flexicurity approach EU Commission 2011 32 www.nextjob.dk

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7. Norway ____________________________________________________________ 7.1 National Policy The approach in Norway is one of mainstreaming employment services for PwDs and a ‘work-first’ approach. There is a long tradition of providing employment supports and coaching for PwDs on a national basis in Norway (“Arbeid med bisand-AB”-Supported Employment Programme). The Employment and Welfare Authority (NAV), with local branches all over the country, is responsible for public employment services and support for disabled people seeking employment. The NAV (PES) can subcontract supported employment providers to provide support services to jobseekers referred to them by NAV. There are a number of legislative measures that are significant in relation to employment of PwDs. The main ones are the Labour Market act of 2004, which aims to facilitate an inclusive working life in a well functioning labour market. The Act33 sets out the basic the basic rights of and services for PwDs. The Law on Discrimination and Accessibility outlaws discrimination including employment (article 4), a duty for public employers and private employers with more than 50 employees to work actively to promote equality (article 3), and requirements on individual accommodation (article 12). The Law on Physical Planning and Building Codes (article 29-3) provides the legal basis for the regulation of universal design of work places. There is also a tri-partite agreement34 between the social partners aimed at reducing sick-leave as well as providing better opportunities for PwDs to obtain and to stay in employment. There is no quota system for the employment of PwDs in Norway. However employment rates of PwDs are reasonably good at 45-48% (but not as good as other Scandinavian countries), compared with the total working population which is at 75%. The Jobs Strategy for People with Disabilities35 was introduced in 2012. This initiative is supplementary to the Government’s overall policy of contributing to a more inclusive workplace for vulnerable groups. The main target group is people with disabilities under the age of 30. In the Jobs Strategy a number of barriers are identified as preventing people with disabilities from gaining employment. These are discrimination, cost, productivity barrier and information/attitudinal barriers. These barriers affect both jobseekers and employers. Instruments covered by the Jobs Strategy are geared to reducing these barriers. Many measures (for more on this follow the link in footnote 33 below) have been launched aimed at increasing labour market participation and assisting employers who employ persons with disabilities or who provide places for work experience programmes, including facilitation and follow-up measures.

33 https://www.nav.no/en/Home/About+NAV/Relatert+informasjon/Legislation.358719.cms 34 https://www.regjeringen.no/en/topics/labour/the-working-environment-and-safety/inclusive-working-life/ia-tidligere-avtaleperioder/inkluderende-arbeidsliv.-avtaleperioden-2010-2013/summary-of-/id592754/?regj_oss=10 35 https://www.regjeringen.no/en/dokumenter/jobstrategy/id657116/

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7.2 Funding models Resources for NAV and Supported Employment services are provided by the State via the Ministry for Labour and Social Affairs. Tri-partite agreements on budgets for supported employment means that national funding for the employment of PwDs is stable. Jobseekers with reduced working capacity by at least 50% due to illness, injury or defects receive Work Assessment Allowances. Work Assessment Allowances cover living expenses and are normally granted to persons who participate in vocational measures to which they have been referred by NAV. On employment, the salary of employees is paid by the individual employer, often in combination with wage subsidies or disability pensions. 7.3 Service Delivery-organisational setup An important context for service delivery is the current very low official unemployment rate of 2.7% (Dec 201436) (the LFS37 indicates 3.8%). From July 2006 a new Employment and Welfare Administration (NAV)38 was established by merging a number of existing public bodies, the Public Employment Services (PES), the National Insurance Administration (NIA) and the municipal Social Assistance Offices. NAV is responsible for implementing labour market policies and represents a merging of employment and welfare administration-i.e. the PES. These ‘One Stop Shop’ PES NAV services are established in all municipalities and counties to provide coordinated services for the public. Those seeking to claim disability benefit must register with the NAV where a PES officer assesses their ability to work. If assessed as needing more support they are referred to supported employment (AB) services. Key organisations in the context of employment supports and coaching in Norway are:

• The Norwegian Labour and Welfare Administration (NAV) - the PES. • Labour Market Enterprises and their branch organisation, Attføringsbedriftene - Association of Rehabilitation Enterprises • Labour Market Co-operatives (sheltered workshops), Vekstbedrifter, and their branch organisation, ASVL - National federation for companies providing permanent jobs adapted to the individual • Forum For Arbeid med Bistand (F-AB), the Norwegian national Supported Employment organisation. The supported employment (AB-Arbeid med bistand) units are usually located within, and managed by, Labour Market Enterprises and Labour Market Co-operatives (sheltered workshops). These are service providers which also offer other state-financed labour market measures, and who are often organised as private limited companies in which a local municipality or county council holds the majority of the shares.

36

https://www.nav.no/en/Home/Work+and+stay+in+Norway/Relatert+informasjon/Labour+market+informatio

n+in+English.84136.cms 37

http://ec.europa.eu/eurostat/data/database 38

Employment Policy & Practice For People With Disabilities In Three International Jurisdictions-National

Disability Authority 2009

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In an AB unit, jobseekers can receive support from an individual job coach/Employment Support Worker (ESW) for a maximum period of three years and this period can be extended for special cases (former psychiatric patients and prisoners can receive support through the programme for up to three to five years. During this time, the job coach can give individual support throughout the whole process, from assessing the jobseekers' needs and abilities, finding a suitable job, to on-the-job support to both employer and employee when the jobseeker is placed in mainstream employment. AB Job Coaches have a caseload of 12 jobseekers. There are no formal qualifications or educational requirements for becoming a Job Coach. Optional Formal training for Job Coaches is available at Akershus University College in cooperation with the AB service providers. Another optional course within broader vocational rehabilitation education is run by the Association of Rehabilitation Enterprises in cooperation with Østfold University College. There are no formal qualifications or education required for becoming a job coach/employment support worker39. Many job coaches in AB have competencies within care-oriented fields, social work and pedagogies. Additional knowledge and experience from other sectors, public administration, marketing or private industry is, however, seen as a valuable background for being an effective job coach, particularly with regard to contacting and co-operating with employers. 7.4 Eligibility Requirements for PWD support/target groups The mainstreaming approach in Norway means that PwDs are treated as all other jobseekers are; all that is required to access AB services is to be a jobseeker and levels of disability are assessed in the PES (NAV) prior to referral to a job coach in the AB service, as required. A majority of services to PwDs are delivered via the PES where PwDs have access to the full range of PES ALMPs. Currently 7435 PwDs40 are in supported employment out of a total current 203,900 PwDs employed41.

7.5 Levels and types of support available Employers

A number of supports are available as follows:

- Employment Subsidies (fixed time-60% of salary up to 3 years, indefinite subsidy of 75% for the first year and 66% thereafter-sheltered employment)

- ‘Adaptation contribution’ (tilretteleggingstilskudd) - subsidy for workplace adaptation costs

- Adaptation guarantee' (tilretteleggingsgaranti) - a formal guarantee to ensure that the PWD and the employers receive all the necessary assistance from NAV ( e.g.

39 Supported Employment for people with disabilities in the EU and EFTA-EEA good practices and recommendations in support of a flexicurity approach EU Commission 2011 40 https://www.nav.no/no/NAV+og+samfunn/Statistikk/Arbeidssokere+og+stillinger+-+statistikk/Tabeller/Personer+med+nedsatt+arbeidsevne%2C+antall+og+prosent.395562.cms 41https://www.nav.no/no/NAV+og+samfunn/Statistikk/AAP+nedsatt+arbeidsevne+og+uforepensjon+-+statistikk/Nedsatt+arbeidsevne

40

dedicated contact person within NAV) - Work place assessment by a physio-occupational therapist

(arbeidsplassvurdering), - Job Coach/functional assistant/interpreter supports

Jobseekers Norway has modern social security systems42 that provide adequate income support, encourage employment and facilitate market mobility. There is a comprehensive and generous universal welfare system, comprising a scheme for social welfare assistance and subsistence, different kinds of benefits and pensions and national programmes for particular vulnerable groups, such as unemployed, immigrants, long-term social assistance recipients. This universal welfare system provides basic rights for getting assistance, benefits, support and schemes according to the individuals‟ needs. These instruments are frequently applied within the Supported Employment scheme and are significant factors for success. The PWD is entitled to avail of all PES services and ALMPs. Additionally, all the supports outlined above for employers are accessed as the jobseeker requires them when entering employment. A main support available is the Job Coach who assists them at all stages of their job-seeking and also into employment for up to three years. Jobseekers can be provided with different degrees of disability pension combined with a salary so that there is no benefit trap for PwDs in Norway and encourages entry into the labour market. It is also possible for a PWD to combine part time supported employment with supported education and training options. Parallel support may be given by municipalities to PwDs such as technical adaptations and assistance, ravel and housing grants, childcare, medical and social welfare assistance.

7.6 Monitoring and evaluation Statistics from NAV indicate that 35% of participants of the AB supported employment programme found employment in the open labour market. However, an evaluation in 200443 has shown that many of the former participants lose their job within a year after the AB process has ended. The main recommendation in that evaluation is to ‘improve possibilities for a steady job by putting more effort in the support of disabled workers to maintain and retain their job’. Another outcome is the fact that services provided by the AB have lowered the perceived risk among employers of hiring a vocationally disabled person. Many employers stated that they would not have offered AB participants jobs without the services provided by the AB.

42

Supported Employment for people with disabilities in the EU and EFTA-EEA good practices and

recommendations in support of a flexicurity approach EU Commission 2011 43

ECON (2004). Arbeid med bistand, hva skjer når bistanden opphører? Rapport 102.

Oslo: ECON.; ECON (2005). Arbeidsmarkedstiltak i motbakke. Rapport 054

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In another evaluation44, a total of 92% of employers reported that they did not experience any problems, or had only experienced only minor problems, in connection with the employment of an AB participant. Only 8% of employers had experienced major problems by employing disabled workers. 7.7 Good Practice Telenor Open Mind is a job training programme45 offering people with physical disabilities or mental health challenges a unique chance for employment. After completing the programme, three out of four are offered permanent jobs at Telenor or elsewhere. Since 1996, Telenor Open Mind Programme has enabled about 200 people with physical disabilities, hearing or visual impairment, and mental health related challenges to enter the job market through a two-year empowerment programme described below. Training and work experience The programme consists of an initial period of three months of computer training and coaching courses to enable the participants to feel more confident and goal-oriented. After this follows 21 months of work training for Telenor. The participants work in a variety of departments such as administration, accounting, helpdesk, support, management, surveillance and customer service. Who can apply? The Open Mind Programme welcomes applications from people who have some form of physical disability, hearing or vision impairment or mental health related challenges. Qualifications may range from high school/A Level diplomas to degrees in higher education. The most important requirement is motivation and the desire to work. Potential candidates can apply through their local Open Mind office. Candidates outside the countries where the programme is offered are not allegeable to apply. Admissions to the programme take place 3 times per year, in January, April and September. What are the benefits? All parties benefit from the programme: • The participants gain work experience and a chance to prove themselves • Telenor acquires motivated and qualified employees • Society benefits from having a larger tax-paying population

“Telenor Open Mind is not about charity, but about adding value to the company,” says President and CEO of Telenor, Jon Fredrik Baksaas.

44

Spjelkavik, Ø., Frøyland, K. and Evans, M., Supported employment in Norway – A

national mainstream programme . Work Research Institute‟s Occasional Papers, No. 6/04,

Oslo, 2004. 45

http://www.telenor.com/career/programme-for-work-integration/for-the-physically-challenged/

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A globally expanding programme The Norwegian-based programme has also been introduced in Sweden and Pakistan. Telenor aims to bring Open Mind to its other operating countries in the near future. A model used by other companies Telenor Open Mind is Norway’s largest work training programme integrating people with different work disabilities in regular working life (“Supported Employment”). The programme has received several awards for its efforts to bring people with physical challenges into permanent employment and has generated interest outside Telenor as well. Open Mind is already exchanging expertise and manpower with outside companies and has put together a training-kit for companies who wish to start similar programmes.

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8. Poland ____________________________________________________________ 8.1 National Policy Employment supports and job coaching services for PwDs appear to be less well developed in Poland when compared with the other countries in this report. The approach had been more in the nature of the medical/rehabilitation model rather than the mainstreaming “ability” focused approach. Supported Employment and Job coaching is not a nationally funded programme. Some pilot programmes have been run, including one in the PES. The basic legislation covering employment of PwDs is the 1997 Act on Vocational and Social Rehabilitation and Employment of Disabled Persons. This covers inter-alia a quota system for employment of PwDs in the public and private sectors where employers with more than 25 staff are obliged to have 6% of staff as PwDs. More severely disabled persons may count as double or triple. In instances of non-compliance, employers face a penalty for each disabled person that should have been hired. The State Fund for Rehabilitation of Disabled Persons also subsidises disabled employees’ salaries by up to 75% of the payroll costs of commercial employers and up to 90% for sheltered employment. Various supports for the adaptation of workplaces are also specified in the Act that has been amended a number of times since 1997. The Act specifies a role for the PES in the registration of PwDs for employment and that they can have access to ALMPs including training, internships etc. but the funding for such activities comes from the State Rehabilitation fund rather than the main Labour Fund. Since a 2004 amendment of the Act on Rehabilitation, an employer can be provided with a subsidy to provide an “assistant” to a disabled employee. The numbers of hours of this type of support cannot exceed 20% of the monthly hours that the PWD actually works. The UN Convention on the Rights of People with Disability was ratified in Sept 2012 An amendment to Act on Social Rehabilitation and Employment of Disabled Persons introduced the concept of necessary reasonable improvements. The new regulation, in force since 1 January 2011, obliges employers to ensure necessary reasonable improvements for a person with disabilities who is employed, participates in the recruitment process or undergoes training, internship, etc. unless such measures would impose a disproportionate burden on the employer. The Act on Equal Treatment (2010) prohibits disability-based discrimination in the context of: a) vocational training, including further vocational training, in-service training, vocational retraining and professional practice, b) conditions of access to employed or self-employed activities, c) membership of and involvement in trade unions, organisations of employers or workers, d) labour market instruments . The Act on Employment Promotion and Labour Market Institutions adopted in 2004 increased the role of territorial self-governments in developing employment-related programmes according to local needs. Previously, decentralisation in Poland was

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limited to the delivery of public employment service and did not concern other areas of policy-making. Today, in addition to centrally designed employment policies and programmes, the self-governments may develop and implement their own programmes, for which they may receive funding from the Minister’s reserve in the Labour Fund. 8.2 Funding Models The extent of supported employment and Job Coaching services has been limited in Poland, according to the available data. The main funding comes from a combination of ESF and State funds (State Fund for the Rehabilitation of Disabled Persons and the Labour Fund). Between 2008-2010 an average of EUR 2 million was spent on a pilot Job Coach programme that ended in 2010. Supported employment and rehabilitation funding amounted to approximately EUR500,000 annually for each of the years 2008-2011 according to Eurostat’s LMP database. The Polish National Reform Programme (NRP)46 for 2013 allocated circa EUR 8 Million from ESF and EUR 900,000 from State funds to interventions for PwDs but that covered a wide range of services and supports but employment supports for PwDs would be a fraction of that amount. The 2013 NRP envisaged ESF funding of ‘projects aiming at developing guidelines on designing facilities and premises and adjusting workplaces to the specific needs of disabled persons, as well as guidelines on recruitment, training and monitoring the work of job coaches’. 8.3 Service delivery-organisational setup Employment support is provided in Poland mainly through NGOs, local governmental bodies and with the PES playing a less active role than in other countries. However the PES is legally tasked to provide employment services to PwDs. One of the issues appears to be the low value put by PwDs on any engagement with the PES. A significant feature of the PES in Poland is its decentralised structure where local government bodies have a significant oversight role. The decentralisation of employment service began in 1998 and was completed in 2002. Since decentralisation, local-level poviat labour offices (PUP) report to local mayors (starosta or prezydentmiasta na prawach powiatu). However, State structures at a regional level supervise the performance of both the PUP and, at the regional level, the voivodeship labour offices (WUP). These offices must follow some centrally-defined rules and legal standards: for example, a Ministerial guideline in 2007 defined minimum numbers of staff they should employ by main function. However, their operational costs are in principle borne by the respective territorial levels of government. Under-financing is common, and there are concerns that decentralisation has led to more uneven service provision and performance. Local budgets may be used to finance the outsourcing of some PUP labour market services, but local authorities usually find that in-house provision is cheaper. As indicated, there is no comprehensive framework or system for supported

46 http://ec.europa.eu/europe2020/europe-2020-in-your-country/polska/national-reform-programme/index_en.htm

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employment in Poland, however, more and more initiatives of supported employment projects have been developed and implemented recently. Since 2001 the Wrocław Assembly of Persons with Disabilities has been operating the Job Coach Project which supports persons with intellectual disabilities and mental health problems to find and maintain employment in the open labour market47. A good example of this kind of activity are Centres of Career Counselling and Support for Persons with Intellectual Disability run by the Polish Association for People with Mental Handicap, already in 10 towns in Poland. These are training institutions and employment agencies operating in the area of work service, personnel consultancy and career counselling48. At the end of 2007 a new targeted programme titled ‘Job Coach – supported employment of people with disabilities’ was launched by the State Fund for Rehabilitation, and continued until the end of 2010. One of its main purposes was to develop a model for an agency of supported employment. This programme was targeted at local self-governments and to NGOs.49 8.4 Eligibility requirements for PWD support/target groups Under the above referenced legislation, all PwDs are eligible to access employment services but as stated above, the numbers that use the PES are low. Jobseekers with disabilities use alternative routes to employment in the open market through the support of NGOs and other local government initiatives. The majority of PwDs working are in sheltered employment. However despite being eligible for PES and other services, the employment rate of PwDs in Poland is very low and depending on the statistical source, is estimated to be between 22.450-3451% (As against the EU Average of 47.3%.-rates of over 60% are recorded in Sweden, Luxembourg, Finland) 8.5 Levels and types of support available Employers

A number of incentives are available to employers such as:

- reimbursement of expenses incurred for the adaptation of work places and enclosed spaces for people with disabilities and adaptation or purchase of equipment to facilitate their functioning

- reimbursement of costs related to equipping workplaces, - partial reimbursement of expenses for training organised by employers for

employees with disabilities, - subsidies for disabled employees’ salaries of up to 75% of the payroll costs of

private sector employers and up to 90% in the case of public sector employers. - Reimbursement of the cost of providing an assistant to the PWD at work.

47 OSI/EUMAP 2005 48 Głaz, Gawron & Marcisz, 2006 49 SFRDP 2007a 50 2013 http://www.niepelnosprawni.gov.pl/english-version-/statistical-data/labour-market/ 51 EU SILC 2011

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- employers may also be reimbursed for the purchase and authorisation of the software necessary for disabled employees as well as for assistive technologies and equipment. The reimbursement cannot exceed twenty times average remuneration.

- employers who employ PwDs who have been unemployed or seeking jobs for at least 36 months, may also apply for reimbursement of costs of up to 15 times average remuneration for equipping workplaces.

Jobseekers PwDs have equal access to PES and the complete range of ALMPs; to NGOs operating employment agencies where they can also get career counselling, job coaching; to local councils of employment and to training institutions. The incentives to employers to employ PwDs set out above can be activated by the jobseeker when placed in work. Finance is available to start-up business activity and subsidies are available for the payment of interest on business-related bank loans. As indicated, supported employment is available on a project basis in a limited amount through NGOs and some recent Job Coaching pilots (see above) have also taken place in the PES partly funded by ESF (about 2% of PwDs accessed such services in 2009). Despite training being available through the PES for example, education and training participation of PwDs in Poland is low at 1.7% (age 25-64) as against the EU average of 6.9%. The 2014 National Reform Programme52 (NRP) of Poland points to the need to improve the activation measures for jobseekers with disabilities and that legislative changes are required to eliminate the “benefit trap” for jobseekers where some benefits are lost when employment is taken up by the PWD thus discouraging PWD jobseekers for taking up paid employment. The need for more supported employment resources for disabled jobseekers was also acknowledged in the 2014 NRP and is evidenced by the comments in the NRP from the Foundation Institute for Regional Development which proposes ‘new guidelines for the new support system for disabled persons, to reform the disability assessment system, reform the benefit scheme, implement a (pilot) scheme for the services of personal assistants of disabled persons and the supported employment scheme, place increased focus on professional activation programmes, ensure stable financing for the social and professional rehabilitation, perform an analysis of the efficiency of support for professional activity of disabled persons’. 8.6 Monitoring and Evaluation Since Coaching and Supported employment services are quite limited in Poland, the amount of evaluative studies and data are sparse. The overall labour market monitoring of the situation of PwDs in the labour market indicates a poor level of activation. The results of the 2013 labour force survey (BAEL) indicate that the situation of disabled people in the labour market has improved in recent years. It is posited that this improvement ‘could be related to the financial support received by employers who decided to employ a disabled person’. The activity rate of disabled people of working age was 22.6% in 2007, 24.6% in 2009 and 26.3% in 2011. In 2013 the activity rate of disabled people increased to 27,3% and 22,4% of disabled people of

52 http://ec.europa.eu/europe2020/pdf/csr2014/nrp2014_poland_en.pdf

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working age in Poland were employed (23% in 2012, 22.2% in 2011). The unemployment rate of disabled people rose to 17.9% in 201353 (16.2% in 2012, 15.5% in 2011). At the end of December 2013 there were 84,447 disabled people employed in the open labour market and 166,767 employed in the sheltered workshops. Although the number of employees working in sheltered workshops is still very high and in December 2013 it amounted to 66.4% of all disabled employees registered, there is a clear downward trend. In December 2013, 6.2% of people registered in local PES offices were disabled which may indicate the low level of confidence in the PES. According to EU SILC data for 2009, the proportion of disabled people (aged 16-59) living in households at-risk-of-poverty or social exclusion in Poland was 21.2%, compared to 5.4% for non-disabled people (20.5% for disabled men and 21.9% for disabled women). 8.7 Good Practice Example54 Individual employment paths Project(2009-12) (Warmińsko-Mazurskie Voivodeship-Voivodeship Labour Office in Olsztyn Elbląska Rada Konsultacyjna Osób Niepełnosprawnych) (The Elbląg Counselling Union for Disabled People-The voluntary union of associations, clubs and foundations helping people with disabilities, the elderly and their families from the region of Elbląg. It has been operating since July 1992. The union runs, among others, the Employment Agency for Persons with Disabilities providing job placement services, vocational guidance and personal counselling and the Department of Professional Activity). This project is based on the classic supported employment approach. The final product of the project is stated to be the “Model of supported employment of people over 45 years old. – ‘a new method of supporting employment of long term unemployed age over 45’, including people with disabilities, combining new tools (job training, coaching) with tools that are already used (vocational trainings, guidance counselling, psychological support). This new model has been enhanced with such elements as “strengthening” and “keeping in employment”, i.e. those elements that increase the chances for successful the functioning of the labour market. The model consists of two elements:

- Model of recruitment.

Multiprofile diagnosis of deficits of the unemployed, conducted by an interdisciplinary team of specialists (psychologist, guidance counsellor and physician) providing a full, comprehensive assessment of psychosocial, occupational and health-related status of the unemployed. This team – with a job coach, co-operating directly with the unemployed – identifies the profile of the

53 The Government Plenipotentiary for Disabled People http://www.niepelnosprawni.gov.pl 54 www.fundusze.uj.edu.pl/documents/31275205/68e6ba05-7f39-4baa-9b16-d0acc7bb123a

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beneficiary, i.e. areas which need to be reinforced and those that should be eliminated.

- Personal Development Plan (PDP).

PDP is developed by the coach working with the unemployed, after determining the profile of the beneficiary by the interdisciplinary team. The plan takes into account all relevant spheres of life of the end beneficiary of innovation, not just its professional dimension. The unemployed person participates in the development of PDP and eventually accepts it. PDP includes the stage of preparing to enter the labour market, with the support of a coach (including inter-alia vocational training, job training, strengthening professional attitudes, training in life, identifying and finding the job) and the stage of job retention through contact with the employer and monitoring the employment path of the innovation’s end beneficiary.

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9. Sweden ____________________________________________________________ 9.1 National Policy Job support and coaching for PwDs in Sweden is governed by the Law on Support and Services (LSS) of 1993. The Law puts an obligation on the State to place PwDs in work-related activities. Originally the focus was on sheltered employment but now partly due to the influence of the national Supported Employment Programme, the emphasis is on getting the PWD into regular open employment. A national programme to implement the law was established under the PES entitled the Special Introduction and Follow-Up Support (SIUS). The employment-focused approach is to regard PwDs as mainstream clients of the PES (Arbetsförmedlingen). As with all PES jobseekers, the PWD is assessed as to work capacity by the normal PES adviser and based on that assessment the client may be referred to the specialised SIUS consultants within the PES. SIUS is a national Government supported programme and approximately 500 SIUS job coaches are distributed across 68 local PES offices. A number of specialists are also employed within the SIUS programme, such as social workers, psychologists and occupational therapists. There appears to be no quota system for the employment of PwDs in the private sector. To assist the large number of people with sickness or disability-related problems back into work, the government is engaging in a quasi-market approach to contracting private providers of vocational and placement services in order to service employment needs of some PwDs. Under the Swedish 2013 National Reform Programme55, PwDs with reduced work capacity will be able through the PES, to acquire practical work experience within central government authorities and agencies. To secure the continued development of policies for PwDs, the Government has appointed several review commissions. A review of labour market policy measures aims to increase opportunities to employ more people with complex issues, review the regulations regarding work aids, conduct a dialogue with representatives of companies and works to communicate good examples and the development of workplaces with sound and supportive work environment factors. In addition, the Swedish Agency for Administrative Development has mapped out existing forms of subsidised employment, including new-start jobs, and analysed the design of individual measures and their interaction, as well as other labour market policy measures at workplaces. 9.2 Funding Model On average, OECD countries spend 1.2% of GDP56 on disability benefits alone and this figure reaches 2% when including sickness benefits. Prior to the recent jobs crisis, this was almost 3 times as much as what was spent on unemployment benefits. However in Sweden, expenditures are much higher, exceeding 3.5% of GDP. Sweden spends just less than 0.5% of GDP on general active labour market spending on employment programmes and vocational rehabilitation.

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Sickness, Disability and Work: Breaking the Barriers A Synthesis of Findings across OECD Countries-

OECD 2010

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The main SIUS programme is funded though central State funds that are specifically allocated to the provision of supported employment measures. Regional and local public funding is also applied and innovative projects may receive support thought the European Social Fund(ESF) 9.3 Service Delivery-organisational setup In Sweden the main player in providing employment services to PwDs is the PES. Clients can approach the PES independently as a jobseeker or be referred by the Social Insurance Authority (SIA) if the PWD is claiming disability benefit. The PES officer assesses the work readiness and capability of the PWD and if required will refer the PWD to a specialist placement officer in the SIUS section of the PES. Local authorities and NGOs can be funded through the PES to provide contracted services to PwDs. As in many European Countries there is a network of Supported Employment providers. The SIUS service provides job-coaching and support assistance to the PWD clients for an initial 6 months and this can be extended to 18 months. A well-developed staff training system is in place in the PES and staff disability awareness is a high priority. Specialist training is provided for the SIUS Job Coaches. These coaches are not tasked with providing subsidies to the employers. The PES placement officer authorises the subsidies. This division of functions had been designed so that the SIUS coach can focus solely on employability of the PWD with the employers and doesn’t get involved with financial matters. Due to institutional reforms in recent years the SIA and the PES are better organised to deliver services in a consistent manner across the country, and in a joined-up way. Staff members across agencies now have good ongoing relations together with better knowledge about the functioning and advantages of the other agency, particularly in relation to helping sickness beneficiaries return to work. The new policy framework requires this good cooperation and continuous information exchange to continue, particularly as they require work-capacity assessments for very different purposes: the SIA assessment is largely medical and to determine benefit entitlement; the PES assessment is instead focused on vocational ability and potential. Other important actors include “Samhall”57 which employs PwDs in a partly sheltered environment and provides services and goods to clients in a range of sectors: manufacturing, assembly and packing, warehousing and logistics, ground and property maintenance, cleaning, as well as services for the elderly. Samhall employs 20 000 people in about 200 localities throughout Sweden and has an estimated annual turnover of SEK 7 billion. It is a state-owned Swedish company assigned to provide meaningful work that furthers the personal development of people with a high level of disabilities. According to legislation, 40% of the employees must have a severe disability and employment of individuals with multiple disabilities is actively encouraged. Samhall receives a state subsidy covering most of the wages paid to its employees. Many of the referrals to Samhall come from the PES. Employment in Samhall is often preceded by a

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http://www.samhall.se

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practice period. The job seeker, the employment office, and Samhall together establish clear objectives for employment. Roughly 60% have some kind of physical disability. The remaining 40 percent is divided into the groups of people with intellectual disabilities, mental illness and socio-medical disability.

9.4 Eligibility requirements for PWD support/target groups PwDs are treated as any other jobseeker and have the same social security provisions. As set out above, the SIA can establish the medical status but the focus is on getting the PWD to engage with the PES for employability assessment and access to SIUS job coaches if required. The PWD then has access to all the available supports. Target groups include people with intellectual/learning disabilities, mental health issues, physical disabilities, deaf or blind clients, drug users. 9.5 Levels and types of support Employers Generous employment subsidies are available to employers to take on PwDs. This can amount to 80% of the minimum wage. Subsidies can continue for up to 4 years. The SIUS job coaching service is also available to employers to provide support directly to them in their endeavours to employ PwDs. Employers who employ a PWD are entitled to a tax reduction equivalent to twice the employers social security contribution. The longer the PWD had been inactive, the longer the period of time that employers’ social security contributions are reduced. Over a period of five years, this would constitute approximately half of the total non-wage cost. The employer is also not obliged to pay the first 14 days of sickness absence for employees previously receiving a disability benefit. In addition, an in-work tax credit was introduced to increase the supply of labour, generating further incentives for people with disability to take-up work. Technical aids and workplace adaptation grants can also be provided as required. Recent legislation in Sweden, requires employers to seek alternative jobs in their company for a worker who has been sick for over three months. ‘Employer circles’58 are being established by the employers themselves to help place workers no longer suited to their own job into other jobs or in companies involved in the employer circle. Jobseekers All ALMPs available to jobseekers are open to PwDs. They can receive additional SIUS support if they have a reduced working capacity because of a functional impairment. They also receive support from a SIUS consultant during the employment itself. The consultant works together with the employer during the initial period of recruitment and is responsible for the PWD receiving the agreed support. This can sometimes entail the SIUS consultant physically working side-by-side with the PWD for a period of time. The support is progressively reduced and ceases completely when the PWD can carry out the tasks independently. The initial support can be for six months and the follow-up support for at least one year after beginning the employment.

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During the introduction period, the PWD receives the same compensation that was received while registered as unemployed. The PWD is not considered as being employed during the introduction period, but is regarded as an employee with respect to certain conditions in the Work Environment Act (health and safety). Consequently, the employer is responsible for the work being carried out in a safe manner and for ensuring that there is personal safety equipment if the PWD needs it. The employer does not incur salary costs during the introduction support period. PwDs are insured for work-related injuries and death. The state may also provide compensation for any damage that the PWD may cause. In order to avoid a ‘benefit trap’, under changes to regulations in recent years, PwDs are guaranteed not to be reassessed for State benefit if they leave work having tried paid work. They are allowed to earn a substantial amount of income and still keep their benefit while working and to earn up to 42,800 SEK (EUR4,500) per year before their benefit starts to progressively reduce. Allowing them to resume benefits anytime and without hindrance helps overcome their fear about failing in the attempt and having to endure a long and drawn-out re-assessment process. An additional benefit to the State of this policy is that any work and income taxes of PwDs contribute to the economy and contribute funds for services to PwDs. The Swedish PES launched a campaign in 2010 called ‘See the potential!’ (Se kraften!), to encourage employers to identify skills rather than focusing on the disabilities of job seekers and to increase their willingness to hire disabled people by convincing them that disabled individuals can make a valuable contribution in the work-place. The campaign includes TV-ads, radio-spots, letters and brochures to employers followed-up by personal contact from advisors. In a related project59, the Swedish Agency for Disability Policy Co-ordination (together with the National Collaboration for Mental Health) launched a national campaign, called Hjärnkoll, directed towards media and training for special targeted groups, such as employers, healthcare staff and police. The campaign is run by a large network of people with their own experiences of psychosocial health problems, who are themselves the spokespersons of the campaign. The effects of the first two years of the campaign have been evaluated and results show that it is possible to change negative attitudes and behaviours towards employing PwDs. 9.6 Monitoring and Evaluation. The employment rate for PwDs in Sweden is one of the highest in the EU at 55% (compared for example with Ireland where it is 40% or Poland where it is c. 23%). There are no overall statistics to report on the PWD client numbers in the various NGOs. A recent (2013) Report on conditions in the labour market by the Swedish Statistical Office indicates that 1.6 million people between the ages of 16-64 have a disability and that 53% or 800,000 people have a reduced work capacity. The PES maintains records on SIUS outcomes and Table 3 below indicates that in 2012 for example, 219,311 PwDs received a service from the PES and that 67,693 were placed in jobs and 2,973 into education. This represents a placement rate of circa 32%.

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Table 3 SIUS Outcomes

PwDs receiving a PES service 2010 2011 2012 189,78

7 206,667

219,311

PwDs placed into work by PES 2010 2011 2012 56,242 64,617 67,693 PwDs placed into education by PES 2,440 2,757 2,973

Source: Arbetsförmedlingen; database

The lack of detailed evaluation and impact assessment of employment supports for PwDs is recognised by the Swedish authorities. In order to improve evaluation of employment supports for PWD, the Government announced in the current National Reform Programme60 that it ‘considers it important to review and scientifically evaluate the effects of new forms of employability oriented rehabilitation. Knowledge of how different measures affect young people’s opportunities to become established in the labour market is limited. The Swedish Public Employment Service and the Swedish Social Insurance Agency have therefore been assigned to implement a project focusing on the method Supported Employment. The purpose is to evaluate the effects of the project, both on the basis of cost-effectiveness and effects on the transition to work’. 9.7 Good Practice Example This good practice example relates to a supported employee who is a 40-year-old male with an intellectual impairment and depression and back problems. He has previous work experience from a food production enterprise working full time. He has worked for the current company for three years and performs a repetitive job. He works part time (50% of a full-time employment). The salary paid to him is above the minimum wage as agreed in the collective agreements covering the sector. The client made contact with the Supported Employment system through the formal channels, i.e. he registered with the labour office in his local area. They assessed his ability to work, and he was deemed to have a 50% working ability. He was then referred to a SIUS consultant in the PES. The client met the SIUS consultant (i.e. the Job Coach), who assisted him in identifying the match between his wishes and the possibilities in the labour market. The Job Coach met with the employee several times to become acquainted with his employment aims and abilities. Job search was carried out primarily by the Job Coach but also by the job seeker. The Job Coach made contact through his own network of employers, the network of his colleagues and by cold calls (speculative approaches to employers). In this case, it was

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a cold call that established the contact. After the first telephone contact, the Job Coach visited the employer and explained about the job seeker and his skills/abilities. He also discussed with the employer the job seeker's impairment and the tools of the Job Coach /SIUS consultant. The employer was advised that full support would be given by the Job Coach if the company considered hiring a person with disability. In this particular case, it was important to the employer that there was an opportunity to receive a wage subsidy. The wage level was suggested to the employee by the employer, who wanted to pay a bit more than stipulated in the collective agreement for the sector. The client receives the full time equivalent of SEK 19,000 (EUR 2050) per month. The employer receives a wage subsidy of EUR 1,440 per month. In addition to this, the job is of a repetitive character and does not require advanced technical skills. The employer therefore saw it as a potential opportunity for someone requiring this sort of work. The employee was accompanied to work during the first period of around four weeks. Technical instructions were given by the employer and the practical and social introduction by the job coach. The employee was in Work Experience Placement for a two-month period, which was prolonged for an additional four months. The employee was paid during this period. After this period, the employee was hired. The assistance provided by the SIUS consultant to get a job was acknowledged and greatly appreciated by the supported employee. It was evident that the employee had benefited from the proactive job seeking of the SIUS consultant, who also assisted in the wage negotiations. It should be noted that one of the tasks of the Job Coach is to support the client in an empowering way, whereby the client will not always be fully conscious of the entire range of support rendered. Employers often stress the fact that the support is not only rendered to the employee but also to the employer as key to their decision to employ an employee with disabilities. To this employer, it was a positive feature that the SIUS consultant could take responsibility for the introduction period and the wage subsidy was also of importance. The clear-cut role of the SIUS consultant to concentrate on the relationship with the client and with the employers makes it possible for the Job Coach to focus her/his efforts to the benefit of people with disabilities

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10. Establishment of Employment Support and Coaching Services in Ukraine ____________________________________________________________

The development of a well-designed National Strategy for the employment of PwDs is a prerequisite for the further development of employment support and coaching services for PwDs in Ukraine. The current joint Programme for “Promoting Mainstream policies and Services for People with Disabilities in Ukraine” is a good vehicle for the exploration of the strategic options. It will be clear from the examples in this report that a strong PWD-focused legislative framework for Public Employment Services and supports for PwDs is necessary for the successful reintegration of PwDs into the workforce (and for the maintenance of employment for those already in work who develop a disability during their working life). It will also be clear from the country profiles in this report that a well-functioning and modernised Public Employment Service is crucial to the provision of employment services to PwDs. Public Employment Services are an integral part of a country’s labour system. As such, they have a key role in the promotion of workforce inclusion and activation for all segments of the population and thus contribute to social inclusion and poverty reduction. Most PES in countries with an extensive rehabilitation system appear to use one of two possible arrangements:

- a dedicated unit within the PES that provides services directly to disabled job seekers (e.g. Denmark, France, Italy, Malta, or Sweden),

- well-trained counsellors who refer disabled job seekers to external service providers, mainly NGOs with a specialisation on the specific disability (e.g. Finland, Germany, Ireland, the Netherlands or the UK).

In countries where rehabilitation measures are less developed, and counsellors are not specialised, some PES offer at least diversity awareness courses for counsellors61. The role of counsellors depends on the business model of the PES. The monitoring function of the PES is strongest when services are outsourced and providers are paid at least partly depending on the outcomes, as in the case of the Netherlands and the UK. The PES in Ukraine in their current and potential role for social inclusion and poverty reduction can be benchmarked against other European PES. This can be done by looking at the PES strategic drivers in the overall economic and labour market contexts, the institutional capacities of its governance and operational structures and functions, how it’s work is organised/the work-flow, links to other service providers, services to jobseekers (with a special focus on disabled clients), services to employers, active labour market programmes, special programmes for disadvantaged groups, information and communications systems both from an organisational and client perspective, human resources, staff training, financial resources both operational and for programme funding, monitoring and evaluation systems and procedures. One of the key elements in providing services to PwDs is PES staff training. This should include at a minimum, disability awareness training but should ideally include the possibility for

61 In general courses are offered in-house, using largely internal expertise and are rather ad hoc in nature. More formal training structures exist, e.g. Slovenia, France, Finland, Belgium, Ireland (European Commission, 2012).

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staff to be trained in general guidance and counselling of job seekers and include a special focus on people with disabilities. It may be worthwhile to consider developing a training programme for PES staff along the lines of the example below from Ireland, which was developed and implemented by the author. Box 1 Second-level professional adult guidance programme for employment advisers/mediators in Ireland

The course aims to develop the critical awareness of participants about their professional role by:

Developing participants’ knowledge on adult guidance and counselling;

Facilitating the exploration of issues of marginalisation and exclusion as they relate to employment and unemployment;

Enabling participants to develop the key skills and competencies involved in working with clients.

The Diploma would extend over two academic years on a part-time basis and would be delivered in an open learning format, incorporating e-learning materials, and workshops. Course hours include 212 hours of home-based learning and 216 hours of workshop (total 428 hours) The workshops are to be provided over 2 x 3 day and 6 x 2 day sessions each year and one week-long psychometric testing workshop in the first year. Participants are expected to attend on average one workshop per month. Introductory module Unit I: Course guide Unit II Study skills for adults returning to learning Unit III Learning as a way of being 1. Psychology of human development Unit I Transition to adulthood Unit II Developmental stages in adulthood Unit III Development and change in the context of social exclusion 2. Sociological perspectives on work, employment and everyday life Unit I Work, employment and everyday life

4. Group work Unit I Group facilitation: skills and styles Unit II Experiential approaches to group dynamics and process Unit III Theoretical perspectives on group work 5. Theory and Practice of guidance and counselling Unit I Applied guidance skills Unit II Applied counselling skills Unit III Theoretical perspectives on counselling 6. Research and evaluation methodologies Unit I Quantitative approaches to research Unit II Qualitative approaches to research Unit III Applied research techniques 7. Psychology of work and working life Unit I Organisation systems and dynamics Unit II Human resource management Unit III Occupational psychology 8. Professional issues in adult guidance and counselling Unit I Working with difference Unit II Working with disability Skills Application: twice a year, participants are required to submit a taped interview together with a written commentary. This would be completed in the light of both the theoretical and practical aspects of the course. The case studies will assess participants’ capacity to demonstrate a competent use of skills. A portfolio of home based learning activities is to be completed by each participant and assessed to gauge the

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Another key element in the provision of Services for PwDs is the existence of a strong well-funded NGO sector that focuses on the needs of PwDs. The reinforcement of a network of supported employment providers such as the EU network, might be considered in Ukraine. This would also provide a focus for the development of a training programme for Job Coaches as described earlier in this report. The job coach guides and handbook developed at European level provide a good basis for the design of a curriculum for job coach training. (www.iase.ie/pages/jobcoach/how_to_guides.html). Strong partnerships between PES and NGOs both formal by way of memorandum of understanding and informal on a local level, are a perquisite for the successful provision of supported employment and job coaching to PwDs. In order to tackle the issue of employer motivation to hire PwDs the choice in many countries to impose quota system does not always work, as described earlier in this report. A national awareness programme of PwDs employer supports and subsidies has proved effective in many countries but as will be evident from this report, one of the main key elements in getting employer support is the pivotal role of the PES officer and the Job Coach who work with the employers and be advocates for PwDs.

In most countries funding for employment supports and job coaching comes from the State. The source of these State funds can come from taxes, social insurance levies and a system of financial penalties on employers who don’t meet a legally established PwD employment quota system. EU Commission funding is also generally available for such services in countries in a pre-accession process.

An already referenced62 recent report sets out succinctly the requirements for an improvement in the labour market integration of PwDs at European level and could also apply to Ukraine, as follows:-

- A bolder move towards activation and away from cash transfers, - A shift of resources from sheltered work to supported employment,

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PES approaches for sustainable activation of people with disabilities August 2013 DG Employment, Social

Affairs & Inclusion (Agota Scharle-Budapest Institute)

Unit II Work and unemployment Unit III Historical overview 3. Vocational Guidance Unit I Career information and Information Technology Unit II Theory and practice of career development and behaviour Unit III Theory and application of psychometric testing

understanding of the material. Essay/Research: Participants are required to submit two essays throughout the course. One of the essay must be completed from the module Theory and Practice of Guidance and Counselling. Participants will also complete a research project integrating perspectives from various modules. Self- and Peer Assessment: Twice during the course participants will submit a learning statement on their personal development and learning progress.

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- Strengthening activation in early stages (during sick leave) with better cooperation with healthcare providers ,

- Stronger performance incentives, e.g. carefully designed outcome based financing for external service providers and

- More systematic data collection, monitoring and impact evaluations.

Annex 1. Main Elements of Labour Market initiatives/policies for PwDs in the seven Countries __________________________________________________________________________________________

Annex 2. References (Selected useful and practical sources) _____________________________________________________________

- The European Union of Supported Employment (EUSE) has developed a series of ‘How To Guides for supported employment professionals/Job Coach toolkit and Training. To review the information use the following links: www.iase.ie/pages/jobcoach/how_to_guides.html www.iase.ie/pages/jobcoach/jobcoach_handbook.html (The main website for EUSE EUSE.org is ‘under construction’ at the time of writing. This link is to the IASE site and is very informative on basic design of supported employment and development of Job Coaches)

- A training course for job coaches can be accessed via

http://opentrainingcollege.com/home/courses/certificate-in-supported-employment-phase-2/

- Supported Employment for people with disabilities in the EU and EFTA-EEA good practices and recommendations in support of a flexicurity approach EU Commission and COWI 2011

- Compendium of good practice Supported Employment for people with

disabilities in the EU and EFTA-EEA 2011 (European Commission and COWI)

- Communication from the Commission to the European Parliament, The Council, The European Economic and Social Committee and The Committee Of The Regions, European Disability Strategy 2010-2020: A Renewed Commitment to a Barrier-Free Europe; European Commission Brussels, 15.11.2010 COM(2010) 636 final.http://ec.europa.eu/europe2020/europe-2020-in-a-nutshell/index_en.htm

- ANED - The Academic Network of European Disability experts (ANED) was

created by the European Commission in December 2007. ANED established and maintains a pan-European academic network in the disability field to support policy development in collaboration with the Commission's Disability Unit (www.disability-europe.net)

- For Statistics on PwDs in Europe the main sources are the Labour Force

Survey (LFS) and special LFS modules conducted in 2002 and 2011 on PwDs http://ec.europa.eu/eurostat/web/health/disability/data/database This includes data on Prevalence of disability (source LFS) (hlth_dsb_prv) Health problems of disabled people (sources SILC or EHIS)

(hlth_dsb_hlth)

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Access to education and training for disabled people (source LFS) (hlth_dsb_educ)

Access to labour market for disabled people (source LFS) (hlth_dsb_lm)

Housing conditions of disabled people (source SILC) (hlth_dsb_hcon) Income distribution and poverty among disabled people (source SILC)

(hlth_dsb_pe) Material deprivation among disabled people (source SILC)

(hlth_dsb_md) Social participation of disabled people (source SILC) (hlth_dsb_socp)

- For the main overall EU Labour market statistics use the following url:

http://ec.europa.eu/eurostat/web/lfs/data/main-tables

- Supported Employment for Key Policy Makers-www.iase.ie/pages/jobcoach/documents/SupportedEmploymentKeyPolicyMakers.pdf

- Sickness, Disability and Work: Breaking the Barriers A Synthesis of Findings across OECD Countries-OECD 2010

- PES approaches for sustainable activation of people with disabilities August

2013 European Commission - DG Employment, Social Affairs & Inclusion (Agota Scharle-Budapest Institute)

- For an in-depth understanding of European PES across a range of 27

aspects of the PES business model and operations follow this link to the ‘PES to PES Dialogue’ website;- http://ec.europa.eu/social/main.jsp?catId=964

- Commission on the Status of People with Disabilities. (Ireland 1996) A

strategy for equality: Summary of the report of the Commission on the Status of People with Disabilities

- The Operations and Effectiveness of the Supported Employment Programme. WRC Social and Economic Consultants Ireland May 2008

- Unemployment under the flex job scheme increases the risk of permanent

social security benefits-Denmark. Vibeke Jensen1, Birthe Lundager1, Anette Luther Christensen1 & Kirsten Fonager Danish Medical Journal April 2014

- Disability and employment – an obstacle race? (Handicap og beskæftigelse -

et forhindringsløb?). Copenhagen: Socialforskningsinstituttet Thomas Clausen, Jane Greve Pedersen, Bente Marianne Olsen, Steen Bengtsson:

- Employment Policy & Practice For People With Disabilities In Three

International Jurisdictions (UK/USA/Norway)-National Disability Authority Ireland 2009