Técnicas de Guiaje e Interpretación La Comunicación

4.2.1 Background

Canada has high labour force participation (population aged 15-64 years) compared to other countries in the G20 (OECD, 2013). However, there are very different participation rates across the ten provinces and three territories; unemployment rates range from 3.8 per cent in Saskatchewan to 17.8 per cent in Quebec (period February to March 2015, Employment and Social Development Canada). Long-term unemployment (those unemployed for one year or more) has remained unchanged at 12.1 per cent and youth unemployment remains problematic (OECD, 2008, 2014). These variations can account for the different approaches to service delivery for the unemployed as well as the range of profiling and targeting approaches adopted. Canada is viewed as having well-developed policy for unemployed Canadians.

All programmes, services and benefits are delivered through Service Canada. Service Canada provides a range of services (such as benefits, Social Insurance number, passport application and renewal, job vacancies and outreach services) to Canadians through a number of local one-stop centres. It operates a client-centred approach and its objectives are:

 To deliver seamless citizen-centred service by providing integrated, one-stop service based on citizens' needs and helping to deliver better policy outcomes.  Enhance the integrity of programs by building trust and confidence in our

May 2015 69  Work as a collaborative, networked government by building whole-of-

government approaches to service that enable information sharing and integrated service delivery for the benefit of Canadians.

 Demonstrate accountable and responsible government by delivering results for Canadians and government, savings for taxpayers, and transparency in reporting.

 Build a culture of service excellence by supporting our people, encouraging innovation, and building the leadership and capacity to provide citizen-centred service. (Service Canada website, 2015)

Customer feedback is essential to the improvement of their service delivery; this is achieved through ‘Citizens First’ initiative. The Canadian Government’s Department for Human Resources Skills Development Canada (HRSDC) administered through Service Canada is mandated to maintain a National Employment Service (NES). This provides vacancy and matching services through its website, Job Bank. 
 Job Bank offers a jobseeker the opportunity to upload a CV, search for vacancies and get email alerts of job vacancies.

In Canada, the support for unemployed individuals is available through a regular benefit called Employment Insurance67_{. It provides financial help for a limited period} (14 to 45 weeks) to give individuals time to find work or participate, for example, in some training. The amount of weekly benefit and the period for which an individual receives this insurance is dependent on the unemployment rate in the province, salary and on the hours of insurable employment accumulated during the qualifying period (Service Canada, 2015). Those that wish to apply for Employment Insurance can do so online or at a Service Canada centre. Around 85 per cent of applications for employment insurance are undertaken online. Employment insurance is available to those ‘individuals who lose their jobs through no fault of their own (for example, due to shortage of work, seasonal or mass lay-offs) and are available for and able to work, but can't find a job’ (Service Canada, 2015). Individuals are eligible where they have been employed in insurable employment. Employment Insurance comprises:

 Passive income benefits (EI Part I); and  Active employment measures (EI Part II).

Both are funded through contributions from employers and workers. Part I is administered by the federal government Service Canada, while the federal government has devolved responsibility for the administration of Part II active measures (such as careers counselling, training, job search assistance, etc.) to the provinces and territories in Canada. Each of the provinces and territories provide a range of services under the active employment measures (EI Part II) through their PES. It is up to each province to decide what services they are going to provide, but they have to supply data back to the federal government on outcomes. These data include the number of jobseekers served, outcomes in terms of those returning to employment and a calculation of how many weeks of the unemployment insurance claim period was saved (this is based on the number of weeks not used before the

Employment Insurance is exhausted).

When an individual applies for Employment Insurance, claimant information is collected and used to check eligibility by the federal government. Part of this information is then sent to the provinces and territories, which decide what information they require and, technically, how they would like to receive it in order to integrate into their own administrative systems. They also determine how they will use that data, how it should be protected and shared with third parties who may be delivering services. The information is used in the planning and delivering of services, which are different in each of the provinces and territories.

67 _{The benefit for unemployed Canadians was renamed in 1996 from Unemployment Insurance to}

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The federal government transfers funds to pay for the Employment Insurance to those jurisdictions each year under the terms of bilateral Labour Market Development Agreement. The provinces and territories use the funds in accordance with their regional and local labour market needs, and within the limits of the Employment Insurance Act. The Labour Market Development Agreements are set up differently for each province and territory, as they were agreed over a number of years. The Agreements include information sharing clauses that govern what personal information about Part I benefit claimants the provincial and territorial governments receive. During an Employment Insurance claim, the jobseeker or claimant must report to Service Canada every two weeks by submitting an EI report. This ensures that the jobseeker is still eligible to receive Employment Insurance.

4.2.2 Current state of profiling systems and tools

Understanding the approaches that different provinces and territories have in terms of targeting and referral is complex, as each set their own administrative rules and targets. Service delivery is then devolved to community and non-profit organisations, which have to meet set targets. Each organisation will have their own targeting and referral processes. These delivery organisations are considered very good at adapting to the needs of the communities they are operating in.

There is no monitoring at the federal level, but jobseeker outcomes have to be recorded, monitored and sent to the federal government. Customer evaluations and surveys provide the information needed by service providers to improve the system. In Canada, there are two types of profiling. First, when an individual applies for income benefit their personal information and information from the Record of Employment68 _{is used in the ‘Targeting Referral and Feedback’ process. Second,} targeting can be based on local labour market demands or those needing more intensive support to get back into the labour market. Within each sub-region or municipality, different criteria for screening are set, but these can be changed at anytime. So based on these criteria, names, contact information and details are sent, by the federal government, to the province or territory. Criteria can be based on the needs of the municipality such that if a new factory is opening and there is a need for pipefitters, then the provincial or territorial government can ask for pipefitters for a period of time. Alberta and Saskatchewan’s unemployment rates are below four per cent, so no targeting and profiling is required as finding people employment is not problematic. In contrast, the unemployment rates in some rural communities, such as in Newfoundland are extremely high, so the PES is likely to target those who are about to exhaust their claim. Targeting is up to the province and is dependent on the local labour market conditions.

In Québec, information from the employment insurance applicants is used for identification and referral purposes. Québec is an interesting example of how data are consistently used across the province. They also operate a feedback loop where if a jobseeker does not attend the PES, they are invited again and informed that if they do not attend their details will be passed back to Service Canada who will follow up with them to get an update on their search for employment. This is to ensure that individuals are still eligible for benefit and that they are still actively looking for work. Other provinces and territories are using the jobseeker information to undertake outreach and engage with more activation approaches. For instance, the Targeted Initiative for Older Workers69 _{is a targeted policy enabling greater choice in work and} retirement decisions for those aged 55-64 years living in small communities where

68 _{The Record of Employment provides the employment history (salary, length of and type of employment)}

of an individual and can be accessed online at anytime by the individual. This Record has to be supplied by the employer for any employee who is experiencing an ‘interruption of earnings’.

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there have been a number of closures or where unemployment is high. It has been in operation since 2006. The programme provides help with employability issues, targeted skills training and reintegration into the labour market. All territories and provinces participate in the initiative. An evaluation in 2010 found that 75 per cent of programme recipients found employment during or after engaging with the programme (OECD, 2013). This initiative was renewed in 2014 with federal investment.

Some research has suggested that career assessment tools, including skills assessments, are being used in Canada. This is similar to the French bilans de compêtences. A study found that those who had undertaken these skills assessment had benefited (Michaud, Dionne and Beaulieu, 2006). Some reported benefits included career planning, recognising skills, change of occupation, choice of occupation, and securing employment. For instance, the Career Navigator (available through the Service Canada Job Bank website) gets users to complete an online quiz to build their profile. The results list their abilities and interests, suggests occupations, provides salary information, numbers of available jobs and an assessment of employment prospects.

4.2.3 Purpose and operation of profiling

The key to profiling in Canada is the administrative data collected by Service Canada at the time an individual makes a claim. This information is, used by most provinces and territories, for profiling and targeting purposes. Those provinces and territories that have not taken up the data have not done so because of a capacity issue in terms of handling the data and understanding what to do with it. There is now greater understanding that the data could be a useful tool, supporting and targeting the delivery of services and allocating resources.

No statistical profiling is undertaken in Canada at present, but there was a pilot aimed at determining jobseekers requiring additional help to return to the labour market. A review of profiling tools (Bimrose, Barnes, Brown and Hasluck, 2007) found evidence that Canada had piloted a statistical targeting system, The Service Outcome Measurement System (SOMS), from 1994 to 1999. The profiling Longitudinal Labour Force File, upon which SOMS was based, combined data from 19 different sources. The aim of the system was to identify the most appropriate services for jobseekers based on their characteristics. Each jobseeker was assessed and the probabilities of various outcomes from different service programmes predicted. Jobseekers were then referred to a particular service by their caseworker, who had some discretion in terms of referral. It is important to note that SOMS was an optional tool for caseworkers. With caseworkers resistant to the use of SOMS and a number of concerns around data protection, the system was withdrawn in 1999 (Colpitts and Smith, 2002; Loxha and Morgandi, 2014). There was some evidence to suggest that SOMS was able to reliably identify those at risk of being long-term unemployed. This is no longer in operation, but helps to identify possible reasons why some profiling systems are withdrawn and the role of the caseworker in the process.

The most recent reforms to the Canadian system of Employment Insurance is the implementation of Connecting Canadians with Available Jobs70_{, which in 2013 set out} requirements, timescales and support services for jobseekers. The aim of the initiative is to support the unemployed by providing enhanced labour market information and online job vacancies, plus supporting jobseekers match their skills to local jobs and providing additional support (such as job alerts from Job Bank, tools to assess and develop skills and support from provincial and/or territorial employment services and training assistance). The initiative is aimed at those receiving Employment Insurance. Jobseekers are categorised based on their previous Employment Insurance claim and contributions to Employment Insurance. Jobseekers are categorised as:

May 2015 72  Long-tenured worker – a jobseeker who has, in at least seven of the past 10 years, paid at least 30 per cent of the annual maximum Employment Insurance and who has received 35 weeks of less of benefit over the last five years;  Frequent claimant – a jobseeker who has, in the past five years, made three or

more Employment Insurance claims and received over 60 weeks of benefit;  Occasional claimant – a jobseeker who does not fit with either of the other two

categories.

These categories determine what is considered ‘suitable work’ and a ‘reasonable job search’71 _{and the extent to which a jobseeker must expand their search for work. For} instance, a long-tenured worker is required to search for vacancies within their usual occupation at a similar wage (defined as starting at 90 per cent of their previous wage). Whereas for Frequent and Occasional jobseekers, this type of search is limited to six weeks. After these set periods, jobseekers have to expand their search for work to similar jobs at a lower starting percentage of their previous wage. Frequent jobseekers have to include work with on-the-job training. In 2014, less than one per cent of Employment Insurance claimants were disqualified and no longer entitled to claim because they did not search for work or refused to accept suitable work.

At the provincial level, the PES tier Employment Insurance claimants as part of the initial intake process. A jobseeker will have an interview with a caseworker and based on specific criteria set out by the provincial government will be categorised in to one of a number of tiers. Tier 1 jobseekers are considered to have the highest employment readiness and higher Tier jobseekers have the lowest employment readiness. This categorisation acts as an indicator to the specific services jobseekers can access and the rate of pay the agency receives for administering services (for example, the higher the Tier, the higher the payment).

To examine profiling at the provincial level, the profiling approach adopted in Québec is described; it is the only Canadian province to adopt this approach. In 1999, profiling was established in Emploi-Québec72_{. Emploi-Québec has implemented an} identification, referral and feedback mechanism for employment insurance claimants (Emploi-Québec, 2012). This uses demographic and socio-professional characteristics data provided by the jobseeker at the point at which they make a claim to the Federal government. This approach is considered a compromise imposed by the technological limitation at the time of deployment. It was not possible to profile jobseekers based on the economic estimates of the likely benefit period or risk of exhausting their benefits. The aim of the current profiling approach is to make efficient use of available resources. This is achieved by:

 Providing early intervention and support for jobseekers at risk of prolonged unemployment (they are referred to Emploi-Québec by Service Canada as soon as they apply for EI benefits);

 Identifying (in probabilistic terms) those jobseekers who seem better able to find employment without help from Emploi-Québec and those jobseekers at risk of various lengths of prolonged unemployment who would benefit from help from Emploi-Québec;

 Regulating the volume of jobseekers who can receive Emploi-Québec services, in a context where the number of initial claims for regular employment insurance benefits is four times higher than the number of active jobseekers that Emploi-Québec can help.

71 _{‘Suitable work’ are defined by a jobseekers personal circumstances, working conditions and wages,}

commuting time and hours of work. A range of activities, such as assessing employment opportunities, preparing a CV, attending job workshops and submitting job applications and attending interviews, are defined as undertaking ‘Reasonable job search’.

72 _{Emploi-Québec is an agency under the Canadian Ministry of Employment and Social Solidarity. It took}

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Jobseekers are referred to Emploi-Québec by Service Canada and categorised into:  ‘Rapid Re-employment’ – jobseekers whose most recent employment was in an

occupation in demand and who are vulnerable to prolonged unemployment unless efforts are deployed to help them find a job and speed up their return to work;

 ‘Employability Development’ – jobseekers who are vulnerable to long-term unemployment (over a year) and require a needs evaluation (assessment of their employability) in order to identify the appropriate measures to improve their job readiness and employability. These jobseekers are seen at risk of exhausting their benefits and becoming long-term unemployed without an intervention.

Emploi-Québec provides Service Canada with the criteria73 _{that Employment Insurance} claimants have to meet in order to be referred. The criteria correspond to ‘at-risk’ situations (see Table 4). Jobseekers are categorised by meeting one Basic criteria, which may be combined with one of more of the Additional criteria.

Table 4. Basic identification and Additional criteria used to profile jobseekers

Rapid Re-

employment Employability Development

Basic Additional Basic Additional

1. Low education x x

2. Hourly wage for last job x x

3. Length of uninterrupted

unemployment x x

4. Cumulative length of

unemployment x x

5a National Occupation

Classification for last job in demand

x

5b National Occupation

Classification for last problematic

job x

6. Age x

7. Number of years in seniority x

8. Place of residence x

9. Reason for end of employment x

10. Presence of a disability x

Source: Emploi-Québec, Forum of Labour Market Ministers (2012)

Typically a jobseeker applies to Service Canada to make a claim for Employment Insurance. Where the jobseeker answers ‘No’ or ‘Unknown’ to the question ‘Will you be returning to work with this employer?’, the claim is automatically processed by the profiling tool (Emploi-Québec, 2012). This has been automated since 2007. If the jobseeker’s characteristics correspond to the criteria set by Emploi-Québec, they should automatically be identified and referred to Emploi-Québec. A jobseeker is then invited to Emploi-Québec and upon attending are offered support and services. When a jobseeker declines the invitation or fails to show up, Emploi-Québec notifies Service Canada (unless the person has returned to work). The current profiling approach uses