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Many questions posed in the evaluation framework regarding success, impacts, and effects require information from Human Resources Development Canada (HRDC) on all Employment Insurance (EI) clients (active and reachback) to support a nonl./participant survey. Due to delays in obtaining a sample frame of non-participants, this work could not proceed as part of the formative evaluation. A non-participant survey will be completed as part of the summative evaluation, and in this report we address issues of outcome in a preliminary way, based solely on information provided by the clients. 5.1 Clients and employment/self-sufficiencyThe self-reported impact of Provincial Programs and Services (PPSs) on participants' economic self-sufficiency varied. About half of the focus group participants said the training they took helped them to find a job, and that they found work in the area for which they were trained. Those who were involved in an apprenticeship program noted that their training began with their employment. With few exceptions, those who were still in training expected that the training would help them to find employment in the future. The client survey supports this finding, with 93 percent (231 of 248) of Apprenticeship participants reporting that their training increased their chances of employment; 83 percent (99 of 119) of Work Placement, Community Works, and Work-based Training participants report the same. Given that the client survey was based on those receiving training or services as of April 1999, outcomes are relatively short-term. A few focus group participants said the training they took did not help them to find work. In some cases, participants believed they confronted "ageism" on the part of employers, and were pessimistic about their potential to find meaningful work in the future. Others observed that obtaining employment is difficult, and requires connections: "it's who you know, more than your qualifications." Participants in both urban and rural centres made this observation. The "local" nature of labour markets is a serious issue for some: "unless the employer knows you, you cannot get a job there." Several focus group participants criticized what they perceived as an emphasis on obtaining employment, regardless of the type or quality of the work. However, others pointed out that building up one's resume is the most important consideration, no matter what kind of employment is sought. These focus group participants appeared willing to do short-term work as a stepping-stone to more permanent employment. The summative evaluation will provide more concrete measures of self-sufficiency. 5.2 Factors in finding and maintaining employmentPeople apply for EI for different reasons. For some, EI represents a temporary break in employment, when an employer does not have enough work for the entire year. This benefits employers, who maintain access to skilled workers. Others find themselves in transitional jobs where skill development is minimal, and periods of unemployment are common. Still others work in a specific industry or with a particular employer for a long time, but find themselves out of work due to technological change or loss of competitiveness. Medical conditions can also cause an individual to be unemployed and/or to seek work in another profession or trade, particularly one that may be less physically demanding. Depending on how an EI client views employability and future job expectations, he/she may choose to upgrade their skills, look for work, or wait until their previous employer rehires them. The client survey reflects these diverse situations (n=1,092). Half of the client survey participants said they were laid off either when their job ended (25 percent), or when the employer downsized or closed (30 percent). Nine percent said they quit to go to school, 8 percent left for medical reasons, and 5 percent went on maternity leave. When comparing reasons for leaving jobs post-EI (n=298), it appears that many clients still work in transitional employment where lay-offs are common (either seasonal, casual, or contract work) or employment ends when a company closes or downsizes (35 percent). Others will leave their employer to upgrade their skills or take a better job (5 percent, 28 percent respectively). It appears that for the pre-EI job, employer downsizing (lay-offs) is the most common reason for leaving a job. In general, clients reported returning to school as the reason for leaving their most recent employment, which may be the last of several jobs held since their most recent EI cheque.
Clients surveyed also assessed their own job search behaviour when they qualified for EI (n=1,092). Approximately 22 percent reported looking for work right away, while 18 percent said they looked for ways to upgrade their skills. A further one-third of respondents said they waited for a period after becoming unemployed, either because they needed a rest (14 percent) or thought they would be recalled at some time in the future (22 percent). Nine percent (9 percent) noted they were off work due to medical reasons, while 5 percent were off work due to pregnancy.
Observation: Almost 4 in 10 EI clients expect that they need to look for work right away or upgrade their skills. This leaves 60 percent who, for a variety of reasons, would not be immediate clients for provincial programs and services. 5.3 Wages and job retention before and after PPSsAlmost 70 percent of respondents report being employed at some time since their most recent period on EI (n=864). Of these, 59 percent reported having one job, 23 percent had two jobs, and 16 percent had three or more jobs.
EI participants reported slight increases in earnings following their training. Prior to their most recent period on EI, clients reported average earnings of $1,881 per month (n=933). Following a period on EI in which they received training or accessed services, clients reported average earnings of $1,901 per month (n=736). These changes are not statistically significant. Clients were also asked whether they had any other employment following their most recent period on EI, aside from their most recent employment. The average monthly wage for this job was $1,450 (n=255). Wages were lower than their other (most recent employment) because more of these jobs were part-time, contracts, or casual employment and may reflect interim employment.
With reference to Table 18 (next page), about one-quarter (24 percent) of the 908 clients that reported a duration of employment had worked for at least three years at a single job before going on EI. Of these, 6 percent had worked at the same job for more than 10 years, 26 percent had worked at their pre-EI job for one to three years, while half were employed for less than a year before going on EI. Most EI clients (81 percent) report being employed at their most recent job for up to six months, while a further 9 percent have been employed for one year or less (n=173). These are expected findings given the time frame of the study, which focused on clients who have participated in a program (e.g., taken training) or received a service at some point after April 1, 1999.53
Between the time they began their most recent period on EI and the present, most of the 1,092 clients reported that they relied on EI benefits (42 percent) or earnings from employment (39 percent) as their main personal source of income (see Table 18). A few used Social Assistance (5 percent), personal savings (3 percent), or Student Loans (3 percent). Approximately 45 percent of EI clients also reported income from their spouse or family.
Employers reported on trainee departures from Work Placement, on the job training (JobStart/Future Skills), or Community Works programs. Approximately one-third of the 124 employers surveyed found their employee unsuitable, and a similar proportion (32 percent) said that participants found other work. Changing business conditions (15 percent) and lack of funding for training (12 percent) were also commonly mentioned as reasons why employees leave after the program ends.
Observation: In the brief period since the CS-LMDA came into effect, we find considerable turnover and multiple job holding post-EI among those who participated in PPSs, but without the non-participant information, it is difficult to attribute this to PPSs. 5.4 Results of self-employment programsPSEST created the self-employment program to coincide with the introduction of the LMDA.54 Self-employment programs are designed for clients with skills that can be directly targeted to a niche market. HRDC offered the self-employment program to EI clients in the pre-LMDA period. Key findings on this program from the client survey are as follows (n=37):55
Observation: The summative evaluation will offer a longer view on self-employment as an option to stabilize post-EI incomes for clients. 5.5 Satisfaction with PPSs5.5.1 Overall client satisfaction with PPSsBased on focus groups, case studies (dyads), and the client survey, EI clients experience high levels of satisfaction with PPSs. In particular, clients expressed support for CSCES offices, created as part of the CS-LMDA and the government of Saskatchewan's own reorganization of programs and services. Most clients report that counsellors are available, and provide helpful information. That said, a few EI clients reported difficulties with their counsellors. This is hardly surprising, given the sample size and the fact that most find unemployment to be a trying experience. Clients are also generally satisfied with the training programs in which they have participated. The summative evaluation will offer clearer indicators of program satisfaction and effectiveness. Key findings from the survey of participants include the following:
Observation: In general, many EI clients appear to believe that programs and services alone haven't helped them find their current job. This is a typical finding; many believe that finding a job is a matter of luck, contacts, or being in the right place at the right time. Often, they dismiss the importance of training as a signal to prospective employers and labour market exchange activities to create the "right place at the right time." Self-report perceptions on the effectiveness of programs and services should be balanced with the results of the summative evaluation.
Observation: An important general question is the quality of instruction and training available at provincial institutions, CBOs, and private vocational schools. The dyads offer some evocative evidence of the CS-LMDAs and provincial programs and services. We interviewed five couples about their experience with the programs and services. We were especially interested in understanding how training affected the lives of trainees and their families. We also wished to identify factors in successful outcomes for families.
5.6 Use of case/action plansBased on the client survey, about one-third of participants (n=429) said counsellors required them to prepare a case/action plan before beginning training. A similar proportion of clients completed case/action plans in each region. Focus group participants indicated that the concept of a case/action plan is new to EI clients in some centres; in other locations, most PPSs participants had developed a case/action plan before beginning training. The nature of the case/action plan varied. Some focus group participants reported that counsellors required them to complete a simple assessment process consisting of either a single test or a series of tests designed to assess their suitability for particular types of work (i.e., personality tests, aptitude tests, etc). Others remarked that they completed the plan to get into the courses, but then never looked at them again. Still other participants reported vague recollections of the plan. At the other end of the spectrum, some focus group participants reported that staff asked them to conduct a market study, typically consisting of identifying and contacting potential employers to determine the demand for workers in that field, the prevailing salary levels, and the credentials expected. Those who completed the market study said it was "a good exercise — it gives you a good idea of the potential of getting a job and also whether the career is appropriate for you." Participants who prepared these types of case/action plans generally believed these were helpful in determining the type of training they should take, and gave them realistic expectations about work in the field they wished to enter. The client survey supports focus group findings about preparation of substantive plans. When asked which steps were involved in their back-to-work plan, those clients with case/action plans reported the following (n=429):
Observation: Management sees case/action plans as an important tool for creating an effective return to work process. However, considerable variation appears to exist in the depth of the plans and the extent to which counsellors and clients use the plans to monitor progress. For some, they are very effective; for others, they seem to be irrelevant. 5.7 Exit and attrition rates for trainingEmployment Insurance clients have relatively high completion rates for their training, irrespective of the type of training. For most programs, fewer than 10 percent of clients quit. As shown in Table 22, Work Placement programs (n=119) have the highest discontinuation rate at 13 percent, although this is still low when compared to PPSs that serve Social Assistance clients, where a 40 percent discontinuation rate is common.57 Benchmarks for EI clients provide a better comparison, and a review of federal databases may provide this comparison in the summative evaluation. Clients offered several reasons for discontinuing programs. Those in Work Placement programs said they left to take a better job, to take other training, or because they were laid off. In other programs, clients left due to lack of financial support, medical reasons, lack of childcare, or personal reasons.  View TABLE 22 The employer survey also measures post-program impacts.58 As shown in Table 23 below, almost two-thirds of program participants are hired full-time (61 percent) or part-time (65 percent) following program completion when participating in a Work Placement/wage subsidy program. Retention rates are somewhat lower for Work-based Training programs, where just over half (53 percent) are retained after the program. This may reflect the relatively higher skills that EI clients receive in this program and their ability to find employment elsewhere. Employers participating in an Apprenticeship program report 94 percent continuing on after program completion.
5.8 Client financial participation in the PPSsFour main types of income support exist for EI clients participating in training: EI Benefits (Part 1), the Skills Training Benefit, Student Loans, and the PTA. The type of income support depends on the type of training, and whether or not the client is still collecting Part 1 benefits. Clients enrolled in Basic Education are most likely to support themselves on EI benefits or to receive the PTA as income support. For other programs, the Skills Training Benefit is typically used, particularly when a client has exhausted their EI benefits and is classified as a "reachback" client. Although some list Student Loans for Basic Education and Bridging, this may reflect misclassification of training type in the database, as these programs are not typically supported by Student Loans. Some participants also list Social Assistance, but it is no longer used to support clients in training since the introduction of the PTA, except for particular circumstances (e.g., short-term training of less than four weeks).59 As shown in Table 24, EI clients are more likely to take a skills training course (n=380) or an Apprenticeship program (n=248) while still collecting EI benefits (Part 1) (66 percent and 79 percent of participants respectively). While 52 percent of EI clients said they received EI benefits (39 percent) or the STB (13 percent) while in a Work Placement program (n=119), 39 percent said they received no income support/employment, which is expected, given that most are paid a subsidized wage while participating in these programs.
Additional financial support provided by the Skills Training Course took the form of grants for tuition or books (51 percent). (See Table 25.) Work Placement and Self-Employment participants report the least additional support, with some receiving coverage for transportation or tuition. View TABLE 25 Although many participants surveyed said they would not have taken training without funding, others said they would have proceeded with training anyway (Table 26). Clients were least likely to proceed without support in a Skills Training (65 percent of 380), Bridging (58 percent of 81), or Self-Employment program (58 percent of 37). View TABLE 26 Focus group participants supported this finding. Variation exists in the amount of income support received by participants and their willingness to contribute to the cost of training. Several participants thought the level of funding was inadequate, particularly those with families and spousal income. During client focus groups, some clients expressed uncertainty about the source of their funding. Given the range of programs, types of income supports, and circumstances of EI clients, this is not surprising. Clients surveyed by telephone report contributing some money to support their own training. Those in Basic Education reportedly contribute $110 per month (n=87); those in Skills Training (n=380) contribute $321, while those in Bridging (n=81) contribute $84 per month.
As seen in Table 28, some clients reported supplementing their income by working while in training. Clients in a Basic Education (n=87) or Self-Employment program (n=380) were most likely to supplement their income. Higher proportions of clients in these programs receive income support (PTA or STB), and may be looking for additional income. View TABLE 28 As shown in Table 29 (next page), EI clients who work while in training earn approximately $1,21660 per month. Sample sizes for some courses are relatively small, and results should be viewed with caution. View TABLE 29 Observation: Income sources for those in training under the CS-LMDA vary considerably. About half of EI clients would not have proceeded with training without income support. Most would need to find work, or may have moved to Social Assistance after EI Part 1 benefits ended. 5.9 Client service before and after the CS-LMDAIt is difficult to compare client service before and after the CS-LMDA without a baseline survey of client perceptions prior to the Agreement. Based on client feedback during focus groups and the survey of clients, most are satisfied with the services they have received in the period since the Agreement came into effect. As noted in Table 30 below:
Clients also rated the national (HRDC) web site (n=626) and the SaskNetWork/SaskJobs web site (n=320). Seventy percent (70 percent) of respondents reported that the national/HRDC web site met all (19 percent) or some of their needs (51 percent). This compares with 71 percent who said that the SaskNetWork/SaskJobs web site met all (23 percent) or some of their needs (48 percent). Based on this indicator, the level of service is rated as being the same for both the federal and provincial web sites.61 On the survey, clients compared programs and services used most recently with those used prior to January 1999 (n=216). Thirty-eight percent said that programs and services were better, 39 percent said they were the same, 9 percent said they were worse, and 13 percent were unsure.62 These preliminary findings suggest that the current level of service meets or exceeds the levels provided prior to the CS-LMDA. 5.10 Employer use and satisfaction with PPSsBased on the survey, employers report satisfaction with programs targeted to EI clients. Programs have helped employers "fill job vacancies" (63 percent), "fill skill shortages" (49 percent), and "meet human resource needs" (54 percent). Other findings from the survey of employers survey are as follows:
5.11 Satisfaction with Labour Market Information (LMI)As part of the CS-LMDA, the governments of Canada and Saskatchewan agreed to develop a joint labour market information strategy that built upon the experience of the Canada-Saskatchewan Strategic Initiative projects. Under the CS-LMDA, Saskatchewan is responsible for producing the Saskatchewan labour market information needed to assume the responsibilities conferred by this Agreement, as well as disseminating labour market information (within Saskatchewan) relating to the implementation of this Agreement, and participating in and maintaining a link with the National Labour Market Information System. Some noted that unlike HRDC, the province does not have the resources to employ labour market analysts, which affects its ability to provide longer-range forecasting. A number of projects currently support the continued development of the joint Canada-Saskatchewan strategy, such as:
The CS-LMDA also states that the Government of Canada "will continue to be responsible for the National Labour Market Information Service, including the National Labour Market Information (LMI) System with which it will produce and disseminate the labour market information it needs to exercise its responsibilities recognized under this Agreement and those associated with management of the Employment Insurance Account and with encouraging inter-provincial mobility." In general, the overall LMI strategy in Saskatchewan has drawn a mixed reaction from managers and staff, though most made generally positive comments about these processes. Negative comments appear to reflect a disconnection between the activities of provincial economic planning units (e.g., Department of Finance) and the regional offices of PSEST. They may also reflect the difficulty in disaggregating labour market data to the regional level. National surveys, such as the Labour Force Survey, simply do not have much accuracy at the regional level. When looking to secondary data sources, those carrying out regional needs assessment are forced to rely on periodic surveys that may not encompass the entire labour market. Under the CS-LMDA, the federal government's responsibilities include the development and dissemination of National Common Products (NCPs) as part of HRDC's Pan-Canadian local LMI Service. HRDC Saskatchewan Region's local LMI products can be found on the Saskatchewan HRDC web site. In addition, SaskNetWork links to HRDC's local LMI. Employers are moderately satisfied with LMI provided through CSCES (n=39), but less satisfied with Internet-based information (n=50). Employers rate CSCES as 3.2 (on a 5-point scale) when it comes to "finding labour market information," compared to ratings of 2.8 and 2.9 for the HRDC web site and the Saskatchewan government web site. Several key informants (federal and provincial) also observed that the federal and provincial governments do not completely agree on who is responsible for labour market information (n=17). 5.12 Satisfaction with Labour Exchange processes (LEX)The other resource for employers and clients is the Labour Market Exchange (LEX), where clients search for job openings and employers post positions or look for potential employees. Based on interviews with key informants as well as focus groups and surveys, evidence exists that the LEX process needs improvement. Clients participating in both the survey and focus groups state that word-of-mouth and classifieds remain the best information sources for job hunting. A smaller proportion rely on either the HRDC or Saskatchewan (SaskNetWork/Sask Jobs) government web sites to find work. Regional differences also exist. According to focus group participants, small town labour markets are very personal, and job hunting requires that "you know someone." The isolation of the rural job seeker remains an important structural imperfection in the provincial labour market. Employers also noted areas where the LEX process could be improved (Table 33). Again, they reported CSCES centres to be a useful source for posting a job vacancy (mean rating of 3.8), obtaining information about an education/training program, and locating potential employees. Both federal and provincial Internet services rated lower for all three categories of service. Focus group participants also reported problems with Internet-based services. Several clients said that job postings were sometimes out of date. Approximately half of employers knew of the services, but few had used them. Those who had used the services found the job order process difficult, as it required sifting through too many applications. Several employers said they preferred referrals, as it made the hiring process more effective. Further promotion of the web site to employers could increase its use and functionality.
5.13 Summary of findingsIn general, while clients are satisfied with the programs and services offered under the CS-LMDA, many did not believe PPSs assisted them in finding work. Clients in rural areas see themselves as isolated and caught in local labour markets, where personal contacts are essential to finding work. Many of these clients are unable or unwilling to leave their families to seek work in another centre. The back-to-work experience post-EI is diverse. About 40 percent of the 1,092 participants who responded to this question reported seeking work or training upon their most recent qualification for EI. This suggests that 60 percent of EI clients may delay their use of PPSs. Many EI clients have several jobs post-EI, reflecting the fact that casual and part-time work is common for these individuals. About half rely on spousal income as a source of income, in addition to the Part 1 benefits and employment. Case/action plans varied in content and the extent to which clients and counsellors used them. Clients who reported doing a survey of the job market found this experience a worthwhile part of preparing a case/action plan. Clients in Skills Training, Apprenticeship, and Bridging programs typically rely on Part 1 EI benefits for income support. Those in Basic Education tend to also use the PTA for support. Between 9 percent and 30 percent of clients used no income support for their training. For the most part, employers are satisfied with PPSs, but are less satisfied with the labour exchange process. Clients see word-of-mouth and personal contacts as more useful in finding a job than the labour market exchange process.
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