Technical note Making Employment Services and Active Measures Sensitive to the Needs of Young People Recommendations for Youth Employment Programs in Kosovo1 January 2020 1 This technical note was prepared by Kevin Hempel (Consultant, World Bank and Prospera Consulting) with the support of Bardha Ajeti (Consultant, World Bank) under the guidance of Stefanie Brodmann (Senior Economist, World Bank and Task Team Leader). The team would like to thank the NGO representatives who shared their experiences on youth-sensitive programming in Kosovo (see Annex 1). The team acknowledges financial support from the Rapid Social Response Multi-Donor Trust Fund. Standard disclaimer: This technical note is a product of the staff of the International Bank for Reconstruction and Development/The World Bank. The findings, interpretations, and conclusions expressed in this paper do not necessarily reflect the views of the Executive Directors of The World Bank or the governments they represent. The World Bank does not guarantee the accuracy of the data presented in this work. Making Employment Services and Active Measures Sensitive to the Needs of Young People EXECUTIVE SUMMARY  Young people are particularly disadvantaged in Kosovo’s labor market, facing high unemployment and precarious working conditions. In response, promoting youth employment has become a policy priority for the Government of Kosovo.  Supporting young people’s employment prospects must take into account that young people are different than adults. First, they face age-specific barriers in the labor market, such as lack of work experience and limited professional networks. Second, the youth years are a time of transition where young people build autonomy and identity and are strongly influenced by their social environment. These realities need to be considered for program design and implementation.  Youth employment policies and interventions should therefore be sensitive to the specific needs and preferences of young people. In practice, interventions can be considered “youth sensitive” when they respect the following 10 principles. There are many good practices in Kosovo, neighboring countries and the European Union that can serve as inspiration. 1. Know your clients, in order to be able to design interventions according to the specific beneficiary profiles. 2. Develop socioemotional skills, such as social skills, communication and self-control. 3. Coach youth through goal management, to help think about the future and pursue their goals. 4. Strong guidance and follow-up support, including after placement as needed. 5. Facilitate direct exposure and contact with the labor market, to help see and feel the realities of different types of work. 6. Create positive adult-youth relationships, based on caring and supportive interactions with program staff. 7. Adopt peer-to-peer engagement strategies, for example through peer trainers or mentors, interactive learning formats, and youth-led activities. 8. Adopt age-appropriate communication channels, such as leveraging social media where appropriate. 9. Work with multiple stakeholders and across settings, involving young people’s families and fostering collaboration with other relevant agencies and institutions (e.g. schools) 10. Support staff engagement and development, to ensure commitment and contribution  Adopting the principles of “youth sensitive” programs is particularly important for public sector agencies working with young people such as the Public Employment Agency and the Ministry of Youth, in order to better serve their clients and become more attractive service providers. Practical steps to enhance the youth-sensitivity of current and future youth employment programs could include: i. Conducting a more in-depth diagnostic of current interventions to assess their strengths and weaknesses regarding their “youth-friendliness”; ii. Engaging with non-public providers implementing youth employment programs in Kosovo to foster inter-institutional learning and exchange; iii. Considering partnerships between public agencies and non-public providers in order to enhance the public providers’ service offering for young people; and iv. Sensitizing current staff and ensuring that future recruitments consider the requirements for counselors, trainers, etc. to implement youth-friendly services. 2 Making Employment Services and Active Measures Sensitive to the Needs of Young People I. RATIONALE In response to young people’s difficulties in the labor market, promoting youth employment has Young people are particularly disadvantaged in become a policy priority for the Government of Kosovo’s labor market. Young people in Kosovo rate Kosovo. For instance, the Government put in place an the lack of job opportunities as their biggest intersectoral Action Plan on Increasing Youth challenge.2 As in many other countries in the world, Employment 2018-2020. Moreover, improving the they face more difficulties in the labor market than employment situation for young people has been adults. For instance:3 featured as a key objective in the Ministry of Labor and Social Welfare’s Sector Strategy 2018-2022 as • High unemployment: 55 percent of Kosovar well as in the Employment Policy for the Employment youth (ages 15-24) are unemployed, compared to Agency of the Republic of Kosovo 2019-2021. less than 30 percent for adults. Around 50% of unemployed youth are long-term unemployed In order to successfully support young people’s (more than 12 months). transition to employment, Public Employment Services and other agencies must develop a strong • Low quality employment: Those youth who find understanding of this specific target group and employment often have poor quality jobs, design its services and measures with a youth-lens in working for low wages and under precarious mind. Promoting employment is no simple task, and conditions. More than half of the youth are either requires a policy mix that spans efforts strengthening self-employed, unpaid family workers, or work in the demand for workers (e.g. strong business a very small firm. Close to 60 percent are working environment and adequate sectoral policies), the without a contract. Among those with a contract, quality of labor supply (importance of education, approximately 80 percent are working under a health, and an enabling environment to work), and temporary employment contract. adequate labor market and social protection policies • Young women are particularly affected: They face to facilitate the matching between supply and higher unemployment rates than young men, and demand. This is where relevant ministries, Public often transition from education into inactivity (as Employment Agency, and other service providers can they often start a family in their late 20s but lack play an important role, fostering young people’s affordable child-care services). transition to work through targeted support This underutilization of young people’s potential is measures. Yet, for these measures to be successful, it costly for the youth and society. Cross-country is crucial that they are designed with a good evidence suggests that an unsuccessful school-to- understanding of the key target groups. This note work transition for young people can lead to long- therefore seeks to summarize existing experience lasting “scarring” effects. Indeed, it has been shown from other countries and good practices from Kosovo that unemployment and low earnings early in life can on how employment services and activation negatively affect future job prospects, life-time measures can be made more sensitive to the needs of earnings, as well as their physical and mental health.4 young people in order to make them more effective. At the same time, high levels of youth inactivity and unemployment reduce economic growth, while also negatively affecting tax revenues. Disaffected youth II. HOW ARE YOUNG PEOPLE DIFFERENT? whose aspirations have been shattered and who lack other perspectives can also have negative effects on Youth are not just “young adults”, they are different social cohesion, security, and political stability.5 than older people in many regards. To fully understand and promote young people’s employment, it is important to appreciate the entire 2UNDP, 2018. 4 See for example McQuaid, 2015; Nichols, Mitchell and Lindner, 3World Bank and Vienna Institute for International Economic 2013. Studies, 2019. 5 World Bank, 2012. 3 Making Employment Services and Active Measures Sensitive to the Needs of Young People context of their lives. Young people are going through internships/apprenticeships to young people multiple life-transitions (becoming more making it hard for them to get the work independent, forming their identity, starting a family, experience they need to make them more etc.) and are strongly determined by the influences employable. around them, such as family and peers.6 Indeed, the transition to employment does not happen in • Lack of social and professional networks. Studies isolation and depends on many other factors in young suggest that young people in Kosovo feel they do people’s lives. Against that background, Public not have access to information on job/internship Employment Services and other service providers vacancies or counseling services for career need to understand how young people are different planning. Rather they are heavily reliant on than other target groups to adequately work with families which may also limit their understanding them and meet their needs. of available opportunities and their willingness to Youth-specific barriers in the labor market move within Kosovo for work.10 At the same time, when recruiting, Kosovo firms tend to rely on Young people face additional barriers to informal channels such as personal networks, employment than adults. While poor employment recommendations and poaching trained staff outcomes also affect adults, some barriers to labor from other firms.11 Such recruitment approaches market integration tend to be more severe for youth. (which may also be driven by firms’ lack of trust Specifically, young people in Kosovo are often more in education credentials) penalize new labor likely to face the following constraints compared to market entrants who have less work experience older people: and fewer social or professional networks. • Lack of skills and experience: Recruiting firms Indeed, research confirms that (young) people maintain that young jobseekers lack the skills and are highly frustrated by their perception that experience they need. A majority of recruiting connections and nepotism are more important firms in Kosovo find hiring new workers for finding a job than merit.12 challenging because applicants have neither the skills nor work experience they require.7 This • Lack of access to affordable finance and business appears to be particularly true for hiring young support limits youth opportunities for self- people entering the labor market. The main employment. Finance from banks is difficult to underlying reasons include the poor-quality basic access for microentrepreneurs in Kosovo, and education system (e.g. reflected in low PISA more so for marginalized young men and women scores8) as well as limited relevance (university who do not have collateral for small loans graduates gaining degrees in areas not demanded (collateral requirements range from 160-230 by the economy) and practice-orientation of percent of the loan).13 The largest Banks have higher education. Moreover, many firms lack the stopped serving the microenterprise segment necessary Human Resource Management and do not finance startups. Simultaneously, the capacity to recruit, train and retain staff. 9 This, microfinance sector is small.14 In addition to along with the lack of systematic financial exclusion, youth entrepreneurship in industry/education engagement also constrains Kosovo is constrained by limited opportunities for firms from offering high quality 6 World Bank, 2006. 10 World Bank, 2016; Qirezi, Nika, Xhemajli, 2018. 7 World Bank, 2019. 11 World Bank, 2019, p.76. 8 In the 2015 PISA study, 68 percent of students are below the 12 See for example World Bank blog competition for university level required for basic proficiency in science, 77 percent are students; UNDP, 2017; UNDP, 2018. below basic proficiency in reading and 78 percent are below 13 World Bank, 2017. basic proficiency in mathematics. World Bank, 2019, p. 53). 14 European Investment Bank, 2016. 9 World Bank, 2019b. 4 Making Employment Services and Active Measures Sensitive to the Needs of Young People post-creation support and linkages with The youth years as a time of transition promising value chains. Youth-focused organizations and interventions also need to consider the important personal • Misaligned aspirations and expectations. developments during adolescence and youth. In Although work opportunities are shrinking in addition to the specific age-related barriers to labor Kosovo’s public sector, young people are still market integration, it is crucial to also consider the strongly attracted by the government jobs due to broader changes occurring during this phase in life. job security, higher wages, and non-cash The youth years are marked by profound physical, benefits.15 There are also signs of a “pessimistic” emotional, and social transitions. Young people mindset among many youth, who are become legally independent, renegotiate their disappointed by the education system, nepotistic relationships with peers and adults, and develop their hiring practices, and the apparent lack of work own identity. Young people’s experiences during this opportunities in Kosovo, thus fueling period play a critical role in shaping their futures as disengagement from the labor market and adults. Ultimately, young people are expected to intentions to migrate. make the transition to adulthood, including entering work, becoming financially independent, and starting a family.19 Against this background, some of the key • Mobility constraints. A large share of new jobs in features of adolescence and young adulthood Kosovo is concentrated in Pristina, but less than include: 60 percent of unemployed youth aged 15-29 is willing to move within the country for a job.16 • Brain development and learning. The brain is There are many barriers to move (transport cost, malleable until at least the mid- to late twenties. lack of information and networks, administrative In addition to early childhood, adolescence and and logistical burdens) that may discourage some young adulthood make up the second critical of the youth to migrate where the jobs are.17 window of opportunity for developing a person’s skills and competencies.20 This includes higher- order cognitive functions (e.g. attention, • Gender-specific constraints. Young women face memory, planning, calibrating risk and reward) additional barriers to the labor market, in and other socio-emotional skills (e.g. emotion particular time constraints when starting a family regulation, self-awareness, collaboration). while lacking affordable child-care services. Conservative social norms (assigning family • Building autonomy, identity, and setting goals. responsibilities almost exclusively to women), As young people mature, they renegotiate their traditional gender roles (fueling occupational relationships with parents, peers, teachers, and segregation), hiring discrimination by employers other adults. In that process, youth develop (e.g. due to costly maternity leave), and limited greater autonomy and practice adult roles and access to productive inputs also restrict young responsibilities.21 At the same time, the youth women’s participation in the labor market.18 years are the most active phase for identity development. Growing more autonomous and defining one’s role in society requires young people to adopt a personal value system and 15 UNDP, 2018; Friedrich Ebert Stiftung, 2019. 18 Brodmann and Hempel, 2018. 16 World Bank estimates based on 2016 Life in Transition Survey. 19 Hempel, Wuermli and Lundberg, 2012. 17 For instance, transport costs have been found to be a 20 Jim Casey Youth Opportunities Initiative, 2011; Child Trends, common constraint to youth employment in many countries, 2015. negatively affecting young people’s ability to attend 21 Jim Casey Youth Opportunities Initiative, 2011. programmes, conduct job search, and getting to their job. See S4YE, 2018. 5 Making Employment Services and Active Measures Sensitive to the Needs of Young People establish personal and vocational preferences • Different interests, values and forms of and aspirations. This includes becoming aware of communication. As young people are part of a their strengths and preferences and making different generation than older cohorts, they are decisions about their educational pathways and naturally subject to different influences across all employment prospects. Indeed, the ability to spheres of life (e.g. technology, media, etc.). This define goals and act towards them becomes a can have important implications on how young foundation for young people’s subsequent people think, their values and expectations, and development. how they communicate and interact with others. For instance, today’s young people tend to • Strong dependence on social environment. communicate more electronically than face to Young people are not isolated individuals. face, using instant messaging, texting, and social Instead, they are the product of influences, network sites more so than older people. experiences and interactions across different Box 2: Use of internet and social media among settings, such as family, peers, institutions (e.g. youth in Kosovo school) and the media.22 As they are growing more independent, young people are still very Internet use is omnipresent among young people in much subject to parental influence, while also Kosovo. One study found that 56% of youth access being highly sensitive to, and motivated by, it “practically all the time” and another 40% “every actions and attitudes in their peer network (e.g. day or almost every day”.24 Over 80% of youth friends, other young people). Indeed, young mainly use the internet for communication with people are looking for a sense of belonging and friends or relatives and social networking like peer group acceptance. Hence, positive Facebook. The internet is also a key source for influences (e.g. positive role models) during that getting information according. According to another time can be a strong asset to a young person’s study, 94.6% said the internet was useful for development, while negative influences can lead informational purposes. The same study also to undesirable behaviors (e.g. substance abuse, suggests that the majority of young Kosovars use the Internet to search for job vacancies.25 radicalization). Box 1: Formation of vocational preferences in Life-stage characteristics and labor market barriers Kosovo are linked A study on Kosovar's perceptions on vocational It is essential to understand that young people’s education and trainings found that a vast majority general life-stage characteristics can directly of elementary school students (84%) identified their influence their labor market outcomes, even if they families as the main source of influence when it are not directly employment related. For instance: comes to education and career. Even when the family does not provide a direct suggestion, children • When young people do not develop key skills are still affected by the family. This can be because early on (e.g. planning, critical thinking, of the prevalent field of work in the family (like emotion regulation), this negatively affects medicine, mechanics etc.) or because of the their ability to take advantage of subsequent situation that the family is in (i.e., a family that owns education and work opportunities. a restaurant can affect the child to study something • When young people struggle with personal related to hospitality and tourism. In addition, relationships, (limited) self-esteem, or students also indicated that friends affect them in unclear goals and vocational identity, they choosing educational and professional paths.23 are likely to face severe difficulties navigating 22 Nagoaka et al. 2015, based on Bronfenbrenner model of 24 Friedrich Ebert Stiftung, 2019. human development. 25 Lens, 2015. 23 EYE-Helvetas, 2018a and 2018b. 6 Making Employment Services and Active Measures Sensitive to the Needs of Young People their lives, including pursuing higher • Career orientation and guidance: In order to education and finding employment; address young people’s limited information on • When young people have weak support the labor market and lack of professional structures (e.g. limited parental networks, as well as to foster realistic involvement), they are less likely to receive expectations about the world of work, practical adequate advice on decisions related to orientation and guidance about education and education and work. labor market choices are key. Such guidance must start early (no later than secondary school) and Hence, practitioners need to develop a holistic view be available throughout higher education. of young people and their lives (including their health, families, etc.) in order to best support them. • Active labor market programs (ALMPs) for youth: Young people who are not able to independently transition into employment will III. MAKING LABOR MARKET PROGRAMS need additional support. Depending on the “YOUTH-FRIENDLY” needs, this will typically include a mix of employment services (provide orientation and Public Employment Services and other youth- guidance), training (build skills), serving institutions need to consider these age- entrepreneurship assistance (provide skills and specific barriers and characteristics when designing resources), or subsidized employment (offer and implementing labor market services and temporary income and work experience). programs. This is particularly important for disadvantaged youth, whose barriers are likely to be In turn, an understanding of young people’s more severe and whose social environment provides personal characteristics and situation points to the less positive stimulation, thus putting them more at implementation modalities that are conducive to risk to be unprepared for a successful school to work make interventions more attractive and responsive to transition. young people (“How to”). There is an increasing recognition that the quality of implementation is at An understanding of young people’s specific barriers least as important as the “what” for effective to employment points to selected priority areas of interventions. Hence, the remainder of this note will intervention that are needed to facilitate their focus on what youth-focused employment programs transition to sustainable employment (“What to do”). can do to be better aligned with the age-related These primarily include: preferences and needs of young people. • Quality education responsive to labor market Principles of youth-centered approaches needs: Quality education is key to gain the skills needed to succeed in work and life. In addition to In order for young people to successfully navigate developing the basic skills (literacy and their lives, including their transition to employment, numeracy), soft skills (e.g. communication, they need a range of resources (or assets). These problem-solving, etc.) and technical skills include internal resources/assets, i.e. the skills, (according to the needs of different occupations), commitments, and values needed to make good the education system should also provide choices, take responsibility, and be independent. opportunities for early exposure to the labor Moreover, they also need external resources/assets, market in order to mitigate the lack of work i.e. the support, opportunities, and relationships to experience (e.g. through internships or succeed.26 apprenticeships). 26 See for example Search Institute, 2019. 7 Making Employment Services and Active Measures Sensitive to the Needs of Young People Hence, organizations and interventions need to look and contribution (e.g. beyond their narrow objective of improving involvement in decision making, employability and employment of “program leadership opportunities); participants” and integrate the lessons and success meaningful challenges; focus on factors of broader youth development interventions improvement rather than current to build these resources. This requires developing a performance nuanced understanding of how to promote the Structure Clear and consistent rules and expectations; clear boundaries; different internal and external assets conducive continuity and predictability towards young people’s development in general. For Positive Promote mutual respect; foster instance, it is often not enough to teach youth new Social Norms prosocial values and morals skills as a mere “mechanical service”, but it is equally Safe Spaces Emotional and physical safety; crucial to create an enabling environment in which facilities and practices that these skills are being taught, such as the importance promote trusting and safe of supportive adult-youth relationships in promoting interactions the young person’s positive growth.27 Indeed, helping Integrated Coordination among youth build trust through “caring” adults is Services stakeholders (e.g. family, school, considered a crucial success factor in (employment) community, etc.) programs for youth. Source: Adapted from Eccles and Appleton Gootman, 2002 and USAID, 2017 In practice, this approach to look at youth not only through a negative lens (e.g. unemployed youth to be Operationalizing youth-friendly employment supported) but through a more comprehensive programs approach that seeks to foster positive experiences, There are many things organizations and programs relationships and environments for young people has can do to operationalize these principles. While a been coined as “positive youth development”.28 Table particular intervention may not adopt all of the 1 provides an overview of factors of young people’s following strategies, ensuring alignment with as many daily settings and experiences that are known to youth-friendly practices as possible is likely to promote positive youth development. increase the attractiveness and effectiveness of the Table 1: Features of Positive Developmental Settings program. Features Description Diagnosis & analysis Opportunities Develop different skills, 1. Know your “clients”. Youth are a heterogeneous for Skill competences and passions; focus group, with diverse preferences and needs. Building on soft skills (e.g. social skills, self-control, communication); Understanding the specific characteristics of support goal setting and prospective beneficiaries (e.g. in terms of socio- achievement demographics, time use, employment barriers, Supportive Warm and caring interactions internal and external assets) through an Relationships with adults; guidance; family adequate target group assessment and profiling support; positive role models; is therefore essential. Based on this information, healthy peer relationships programs can segment their services and tailor Sense of Opportunities for inclusion; them to the young people’s specific needs (e.g. Belonging feeling of recognition; being based on their distance to the labor market and valued; group connectedness (lack of) internal and external assets). For Motivation & Taking youth seriously; instance, when dealing with particularly Engagement empowering practices that vulnerable groups such as early school leavers or support responsibility, autonomy 27 Child Trends, 2015. 28 See for example Alvarado et al., 2017; YouthGov, 2019. 8 Making Employment Services and Active Measures Sensitive to the Needs of Young People long-term unemployed, interventions likely need 2. Develop socioemotional skills. Rather than to address some basic barriers first (e.g. mental focusing solely on technical, vocational, and health, basic skills) before providing more academic skills, youth employment interventions targeted skills training and work experience. should support the development of transferable Moreover, practitioners should also seek to competencies that are key for young people’s understand young people’s aspirations (i.e. general development and increasingly required in priorities in work and life) and how these are the labor market. The five types of soft skills that formed, which in turn can help tailor subsequent have been found to be most important for labor program design (e.g. in terms of outreach market success include: (i) social skills (getting messaging, coaching and guidance needed, along with others, resolving conflict, empathy), etc.).29 (ii) communication skills, (iii) higher order thinking skills (problem solving, critical thinking, Example 1 (Poland): In 2014, an activation package decision making), (iv) self-control (manage was introduced targeting young people under 30, emotions, regulate behavior), and (v) a positive regardless of how long they had been unemployed. The package consists of a training self-concept (self-confidence, self-efficacy, self- voucher and a traineeship voucher (Bon awareness, etc.).32 Szkoleniowy and Bon Stażowy). The implementation of these measures adopts an Example 1 (Kosovo): As part of its project individualized approach, applying an in-depth “Supporting employability through self- diagnosis of a person’s employability and skills development”, the NGO partnership of IPSIA/THY in needs. Following this, training and traineeships are Prizren has implemented a broad range of adjusted according to the beneficiary’s situation.30 workshops to build young people’s soft skills through non-formal learning. For instance, the Example 2 (Ireland): The Youthreach program takes workshops seek to build self-confidence, an integrated approach to the needs of unqualified communication skills (including presentation and young people who have left full-time education and persuasion skills), teamwork, time management, who find it particularly difficult to gain a foothold in sense of initiative, etc.33 the labor market, or to take their place in society as young adults. The program aims to provide early Example 2 (Romania): The “Career Dream” school leavers with the knowledge, skills and initiative was designed to prepare secondary school confidence required to participate fully in society students to select a career direction. Besides the and progress to further education, training and activities directly related to career guidance and job employment. Participants are provided with search support, the program approach emphasized individualized education plans, career counselling activities designed to build self-esteem, assistance and arrangements for work program communication skills, conflict resolution placements and apprenticeships. The curriculum techniques, teamwork, decision-making, personal delivered to learners is flexible to individual and marketing abilities and entrepreneurial know-how. local needs, with a strong focus on literacy, By focusing on personal development, the goal was numeracy, personal development, health to help young people take responsibility for their promotion, sports and vocational subjects. 31 futures and be able to successfully interact with a prospective employer.34 Cross-cutting design “ingredients” 29 Seiwaa Boateng and Löwe, 2018. personal and social skills, such as critical thinking, teamwork, 30 Eurofound, 2017. and problem-solving has also been reflected in the revised 31 Eurofound, 2012. European Reference Framework of Key Competences for 32 Lippman et al, 2015. See also Guerra, Modecki and Lifelong Learning. See European Commission, 2018a. Cunningham, 2014, for an alternative classification of socio- 33 THY, 2018. emotional skills for the labor market. The importance of 34 Thorup, 2004. 9 Making Employment Services and Active Measures Sensitive to the Needs of Young People 3. Coach youth through goal management. More education or employment. Such support can be than adults, young people often need support in key in order to anticipate and mitigate challenges setting and managing goals, especially when they youth may face after program completion, such are discouraged and/or lack aspirations. They as conflict with work supervisors or other issues, need to be encouraged to think about their future which could trigger impulsive decisions and in a way that is both challenging and realistic. This dropping back out. often includes teaching how to break larger goals down, identify training opportunities, set goals Example (Germany): The “Career entry support by and plan for the longer term.35 This is also closely mentoring” program implemented by the Federal related to encouraging a “growth mindset” Employment Agency aims at guiding young people among youth, i.e. the belief that one’s abilities who have difficulties to make a transition from can be developed through dedication, hard work secondary school to vocational training. Support and input from others – hence fostering a culture starts two years before young people leave the school and ends about six months after the of learning and continuous improvement.36 By beginning of a vocational training course. The making young people feel more in control about evaluation showed that providing support to youth their future, they can become more optimistic both whilst still at school and after having started and proactive in pursuing education and work the vocational training increased effectiveness.39 opportunities, while preventing them from undertaking negative behaviors (e.g. substance 5. Facilitate direct exposure and contact with the abuse, radicalization)). labor market. Young people need to see and “feel” the realities of work and the labor market Example (North Macedonia): The Ministry of to shape their vocational aspirations, develop Education and Science, with support from the their professional identity and enhance their World Bank, implemented several professional networks. Interventions should interventions to promote “grit” among 6th and therefore always seek to facilitate direct contact 7th grade students, encouraging them to invest with employers (e.g. firm visits, internships) and effort, persevere in the face of difficulty, seek feedback, approach work with full other types of practical and experiential learning concentration, and learn from their own study (e.g. interview and job simulations). behaviors. A rigorous evaluation found that the Example (Montenegro): The “Prilike” program significantly increased socio- (Opportunities) initiative gives secondary schools emotional skills as well as academic students the opportunity to visit up to three achievement among students who companies operating in a variety of sectors, such as participated in the intervention, especially for telecommunication, energy, finance, services, trade disadvantaged students (e.g. Roma).37 and IT sectors. This direct exposure to the labor market allows youth to learn first-hand about their 4. Strong guidance and follow-up support. Good desired professions and the labor market quality guidance, including both career guidance conditions. Thanks to the initiative, students and more holistic advice and support related to reported a greater understanding of their career their lives, is a key ingredient for interventions to options, a more optimistic view of employment support young people’s transition from school to opportunities, as well as more realistic expectations work or to reintegrate them into education, about salaries.40 training or employment.38 In practice, guidance and support may be required over longer periods of time, including after placing youth into 35 Seiwaa Boateng and Löwe, 2018. 38 Eurofound, 2012. 36 See for example Dweck, 2015; Mindsetworks, 2019. 39 European Commission, 2018b. 37 Eskreis-Winkler et al. (forthcoming). 40 Giant’s Shoulder and University of Mannheim, 2017. 10 Making Employment Services and Active Measures Sensitive to the Needs of Young People Implementation modalities mentors and young people have been found to be an effective way of ensuring the young person’s 6. Create positive adult-youth relationships. engagement.43 Building caring and supportive relationships with youth beneficiaries has shown to be a key success 7. Adopt peer-to-peer engagement strategies, incl. factor, as trusting and positive relationships are a youth-led activities. Getting and keeping youth foundation for further engagement with the engaged in activities and learning typically works youth. better when they are not just “recipients” of o Treat them with respect, take interest in their information but actively involved.44 lives, value their opinions and understand o Involve youth participants in program design what matters to them – often via informal and evaluation, for instance through interactions. consultations, advisory roles, and concrete o Ensure program staff has the right profile and responsibilities (e.g. testing of skills to be able to provide appropriate questionnaires). Incorporating youth support and nurture such relationships with perspectives can enhance the understanding the beneficiaries. of target group problems and needs and o Expose young beneficiaries to positive role generate new ideas. models in the community, as they often lack o Leverage peer trainers, counselors or alternative ways of living and earning due to mentors during implementation, as this can limited social mobility. Peers, parents or help relate to youth beneficiaries. community members who have found new o Foster interactive learning among youth and interesting ways to get employed and through group work and enlisting youth to make a living may be particularly inspirational work as equal partners alongside adults in to the youth.41 organizing activities, serving as facilitators, etc. For instance, this can involve joint Example 1 (Kosovo): The Peer Educators Network problem solving, joint reflections and sharing (PEN) implements a range of programs tackling of experiences. Compared to purely adult-led youth employment and empowerment, including activities, participant-centered and the “Innovations Lab Kosovo”. Skills building participant-led approaches can help activities heavily rely on volunteer mentors (typically between 25-35 years old) who are trained empower youth to take leadership roles and by the project and bring a strong motivation in can also improve program attendance and supporting young people. The mentors serve as engagement.45 positive role models and provide a supportive o Create safe spaces for sharing opinions and relationship for the young people, helping them to experiences, encouraging participants to implement their own entrepreneurial and social listen to each other’s perspectives without ventures.42 judgement or critique, and supporting each other. Example 2 (Slovenia): The Project Learning for o Provide avenues to apply and deepen new Young Adults (PLYA) supports the social integration skills through practical activities, for instance of young people with multiple barriers to by facilitating young people’s own employment. One of the key success factors is that entrepreneurial or social projects, mentors act as role models by demonstrating what volunteering, campaigning, community individuals can achieve and supporting them in dealing with the wide range of problems they might engagement, etc. face. The mutual trust and respect between the 41 Seiwaa Boateng and Löwe, 2018. 44 Algorhythm, 2017. 42 Interview with program representative. 45 Alvarado et al., 2017. 43 European Commission, 2018c. 11 Making Employment Services and Active Measures Sensitive to the Needs of Young People o Create a sense of community and belonging, with the Bulgarian Public Employment Service, for instance through involving program contact them, and inform them of careers’ services graduates/alumni, joint recreational and and opportunities for education, employment or team-building activities that promote training. This peer-to-peer approach has been friendships among participants (e.g. joint found to be very successful in establishing contact meals, small celebrations, excursions, cultural with an otherwise hard-to-reach target group and activating them back into job search.48 and social events), positive branding (e.g. “class of 2020”, T-Shirts, etc.), etc. Example 5 (Albania): The Gjirokastra Youth Center forms part of the national network of youth councils Example 1 (Kosovo): The “Support for Kosovo’s for Albanian children and youth. In the early 2000s Young Leaders” program implemented by Mercy it initiated a comprehensive youth employment Corps actively involved youth participants in program targeting disadvantaged and vulnerable program design and evaluation. For instance, they young people. Supplementing its core activities conducted interviews to test the baseline such as vocational training, entrepreneurship questionnaire, and provided feedback on the assistance and career guidance, the program wording of survey questionnaires to both ensure organizes a range of complementary activities to that they were translatable in Serbian and Albanian encourage social integration of the youth in the languages and those culturally sensitive questions area. These include activities like roundtable were articulated appropriately.46 discussions, excursions, recreational activities, and cultural and social events.49 Example 2 (Kosovo): Open Data Kosovo has implemented several initiatives to support youth employability through digital skills. Programs 8. Adopt age-appropriate communication leverage previous trainees as trainers (under the channels. In order to reach out to young people age of 25), thereby attracting youth into the and keep them engaged throughout program program because they can learn from their peers implementation, practitioners should leverage and hear their experiences, challenges etc. Peer the communication channels the target group trainers are viewed as “role models”. Programs also relies on the most. focus on building a community (e.g. former o Leverage internet and social media. Where participants invited to events, can reach out for internet penetration is high, social media (e.g. support, etc.), so participants feel like still part of the group even after program completion. Facebook, twitter, etc.) and online career portals are commonly used. Making Example 3 (Kosovo): The soft-skills workshops information available through these online implemented by the NGO THY in Prizren rely heavily channels will therefore likely reach the on peer-to-peer learning (led by youth workers) and largest audience (though additional channels interactive formats, such as group work, simulation may be needed to reach more vulnerable and role play, open discussion, debate, self- groups). reflection and mutual feedback.47 o Provide timely and regular communication and information. Since youth are exposed to Example 4 (Bulgaria): In 2015, the Ministry of Labor constant influences and information flows, and Social Policy introduced the “Youth Mediator” regular communication and motivation may approach. Unemployed young people who have be needed to keep them engaged. Again, completed tertiary education are eligible to be social media platforms may help in this recruited as youth mediators. Their goal is to identify young NEETs (Not in Education, process (e.g. Facebook group, WhatsApp Employment, or Training) who are not registered group, etc.). 46 MercyCorps, 2012. 48 European Commission, 2017. 47 THY, 2018. 49 Thorup, 2004. 12 Making Employment Services and Active Measures Sensitive to the Needs of Young People o Establish a good ‘reputation’ or ‘brand’ which o Involve adults, especially parents, from can be recognized by young people, their targeted communities during design, parents and employers (e.g. facilitated outreach and implementation of through catchy program name, logo, etc.). interventions to foster buy-in and This is particularly important because young engagement.52 Since they influence young people are much more likely to engage in people’s choices and decisions, they should activities that have been recommended by be familiar with the program contents in their peers. order to encourage participation and reinforce key messages; Example 1 (Kosovo): Youth-serving NGOs across o Work with relevant community groups, youth Kosovo unanimously highlight the importance of organizations/clubs, or local NGOs as they are social media (especially Facebook) as part of their often more effective at reaching young outreach efforts. Leading youth-serving NGOs such people. One may also consider the as Innovation Center Kosovo and APPK also implementation of activities in those physical emphasize the importance of their reputation as a places (e.g. youth clubs) where targeted crucial factor to attract young people into their youth are more likely to be found and spend programs, since having satisfied graduates fuels their time.53 word-of-mouth communication and hence facilitates attracting new participants. Several o Foster inter-agency collaboration. Given the organizations have also put in place regular variety of young people’s potential support communication channels to continue engagement needs, a range of stakeholders may need to and exchange with their community of former be involved in the design and delivery of participants, using mailing lists, collaboration tools youth employment measures. This can (e.g. Slack) and other means to communicate with include, among others, public employment them, invite them to events, etc.50 services, education and training providers, employers, social partners, civil society Example 2 (Serbia): The Education to Employment organizations, health and social services, (E2E) project in Serbia leveraged YouTube as part of etc.54 its career guidance and orientation services. Collaborating with a well-known young social media Example 1 (Estonia): The objective of the “Youth influencer with a strong follower basis among young Prop-Up” program is to identify NEET youth, people has significantly increased the outreach. The motivate them and provide individualized support E2E project has developed a set of YouTube videos in order to assist them in returning to school or that describes and discusses different in-demand work. A key component includes mobile outreach professions in the target communities in a modern through youth workers (i.e. find youth in places they and attractive way.51 gather) in order to reach youth who do not go to or know about youth centers or the public 9. Work with multiple stakeholders and across employment agency. After establishing contact and settings. Young people are strongly influenced by trust with the youth and informing them about their surroundings. Hence, in order to effectively available services, skills trainings and guidance are support young people’s employment, offered in youth centers and youth workers keep organizations and programs may need to find regular contact with participants for at least six adequate ways to involve their key counterparts months after their exit from the program.55 and influencers in family and community, for instance: Example 2 (Sweden): The Swedish network of Navigator Centers was set up to provide one-stop- 50 Interviews with program representatives. 53 Eurofound, 2012. 51 See https://znanjemdoposla.rs/en/meet-the-occupations/ 54 Ibid. 52 Alvarado et al., 2017. 55 European Commission, 2018d. 13 Making Employment Services and Active Measures Sensitive to the Needs of Young People shops for the hardest-to-reach excluded young Making youth employment programs more effective people, based on collaboration between will require making them more “client-centered”, municipalities, the non-profit sector, social and i.e. sensitive to the specific preferences and needs of labor market authorities and employers. Their aim young people. Making employment services and was to provide a hub where young people can get activation measures more effective will require a all the help they need on the ‘path out of exclusion’. number of reforms, including strong alignment of The centers employ a holistic approach to helping program design with international best practice and young people with their personal, social, family, sound monitoring and evaluation.60 Moreover, health and other problems before helping them to integrate back into education or training or to find interventions targeting youth must also be proactive employment. The centers also conduct outreach in incorporating the design and implementation work, such as visiting youth clubs and meeting with features that have shown to be effective in youth young people who are in touch with social services, development programs globally. In general, this will in order to reach youth who are not captured by require moving beyond a narrow focus on enhancing mainstream labor market support programs.56 skills and employability, and instead adopting a more comprehensive and “whole person” approach that 10. Support staff engagement and development. also fosters supportive youth-adult relationships, Implementing youth-friendly interventions peer-to-peer engagement, and age-appropriate crucially depends on the commitment and communication in order to create an enabling contribution of the implementing staff. It is environment in which youth beneficiaries can thrive. therefore essential to consider the required skills This “how to” often matters as much or more than the and attitudes during staff recruitment, while also “what”. creating a culture of learning and support among Adopting the principles of “youth-friendly” existing staff. Tapping into staff interests to shape programs is particularly important for public sector programming, allowing them to try new things agencies working with young people such as the and reflect on their work, and encouraging Public Employment Agency and the Ministry of Youth. continuous learning and improvement have In 2018, young people aged 15-24 represented about shown to be beneficial to program success.57 20% of all registered unemployed, 37% of vocational training recipients and 23% of participants in other active labor market programs.61 These figures suggest IV. IMPLICATIONS FOR KOSOVO that while youth are already a considerable target group for the Employment Agency, there remains Increasing the effectiveness of employment potential to become more attractive towards this age promotion initiatives is a priority for the group. Indeed, the Employment Agency and other Government of Kosovo. The Employment Agency of publicly implemented initiatives are often not well the Republic Kosovo (EARK) has made “Increasing the known and have a weak reputation among young effectiveness of Active Labor Market Measures and people. For instance, recent studies have found that Employment Services” one of its core objectives in EARK only plays a marginal role in young people’s job the 2019-2021 employment policy.58 More broadly, search, that the content and quality of employment improving youth employment has become a priority counseling services are highly uneven, and that across different ministries and government employment offices are often not able to maintain agencies.59 56 Eurofound, 2012. 60 See also GIZ, 2019 for a list of recommendations to improve 57 Algorhythm, 2017. Active Labor Market Measures in Kosovo. 58 EARK, 2018. 61 EARK, 2019. These numbers would significantly increase if also 59 See for example the intersectoral Action Plan on Increasing considering youth older than 25 years, but disaggregated Youth Employment 2018-2020. information for the 25-29 or 25-34 age group is not available. 14 Making Employment Services and Active Measures Sensitive to the Needs of Young People close contact with beneficiaries during placements in developmental needs of young people. Addressing activation measures.62 the target group’s specific barriers to employment in the local context and labor market is a key condition Practical steps to enhance the youth-sensitivity of for interventions to work. But it is not enough. In current and future youth employment programs addition, interventions must address young people’s could include: preferences and personal development needs, for • Conduct a more in-depth diagnostic of instance through age-appropriate communication, current youth employment programs peer-to-peer learning, positive adult-youth implemented by EARK and/or other public relationships, and support to goal management. providers, in order to assess their strengths Ultimately, making employment interventions and weaknesses regarding their “youth- sensitive to the needs of young people requires friendliness”; quality staff. Hence, improving employment • Engage with non-public providers outcomes for young people will be strongly implementing youth employment programs contingent on adequate recruitment and staff in Kosovo to foster inter-institutional learning development to ensure they are in tune with young and exchange, as many of them have already people’s realities and passionate about supporting adopted a “youth-friendly” approach to them. program design and implementation; • Consider partnerships between public agencies and non-public providers in order to enhance the public providers’ service offering for young people; • Sensitize current staff and ensure that future recruitments consider the requirements for counselors, trainers, etc. to implement youth-friendly services. V. CONCLUSIONS Young people are different than adults in many ways. First, youth face additional labor market barriers compared to adults, such as less work experience and fewer social and professional networks. Moreover, since young people are going through a crucial period of physical, emotional and social transition, they still face many uncertainties regarding their own identity and personal relationships, while remaining strongly influenced by their social environment. Hence, for youth employment interventions to be effective, they need to adopt a youth-centered approach that adjusts program design and implementation to the labor market and 62 See for example Qirezi, Nika, Xhemajli, 2018; GIZ, 2019. 15 Making Employment Services and Active Measures Sensitive to the Needs of Young People REFERENCES Algorhythm, 2017, The Art & Science of Creating Effective Youth Programs. Alvarado, G., Skinner, M., Plaut, D., Moss, C., Kapungu, C., and Reavley, N., 2017, A Systematic Review of Positive Youth Development Programs in Low-and Middle-Income Countries. Washington, DC: YouthPower Learning, Making Cents International. 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YouthGov, 2019, Positive Youth Development. 18 Making Employment Services and Active Measures Sensitive to the Needs of Young People ANNEX 1: List of people interviewed Agron Hajdari, APPK Driton Hapciu, Cacttus Education Shpend Lila, Innovation Centre Kosovo (ICK) Visar Haxhifazliu, IPSIA/THY Blerina Ramaj, Open Data Kosovo (ODK) Valbona Makovci, Peer Educators Network (PEN) 19