The report provides a comprehensive qualitative assessment of 38 active labour market programmes (ALMPs) implemented under Spain’s Recovery and Resilience Plan (RRP), managed by either the State Public Employment Service (SEPE) or regional public employment services. The assessment is structured around nine criteria covering the full ALMP cycle, from evidence-based design and outreach to implementation, delivery, and monitoring and evaluation. It identifies good practices across Spain and offers recommendations to support mutual learning and guide the future development of ALMPs within the Spanish National Employment System. This report is the twentieth in a series examining policies to connect people with better jobs.
Spain’s labour market has made significant progress in recent years, with the employment rate among people aged 15 to 64 rising to 65.3% in 2023, up more than four percentage points since 2017, despite the COVID‑19 pandemic. Unemployment fell from 17.3% in 2017 to 12.3% in 2023, although it remains above the OECD average of 5%. Labour market conditions differ across regions, with rates exceeding 16% in areas such as the Canary Islands, Andalusia, and Extremadura, while remaining below 9% in Cantabria, Aragon, and the Basque Country. Active labour market policies play a key role in supporting jobseekers, particularly those facing greater obstacles to employment, and Spain invests heavily in these programmes, spending 0.7% of GDP in 2022, above the OECD average of 0.4%. Understanding which ALMPs are effective, in which regions, and why, is crucial for building a more inclusive and resilient labour market.
The Spanish National Employment System, composed of SEPE and regional public employment services, is central to implementing employment policies. SEPE consolidates national employment plans and monitors system-wide efficiency, while regional PES are responsible for policy development, promoting employment, implementing labour legislation, and delivering programmes tailored to local needs. While implementation occurs primarily at the regional level, strengthening horizontal dialogue and sharing of good practices across the system remains an area for improvement. SEPE requested technical support from the European Commission’s Reform and Investment Task Force, resulting in this report, which is part of a project funded by the Technical Support Instrument and implemented by the OECD to strengthen policy and governance arrangements within the Spanish National Employment System.
The qualitative assessment covered 38 ALMPs, including 31 regional and seven national programmes. It combined self-assessments by programme teams with an OECD external review, consultations, and documentation analysis, anchored in a nine-criterion methodology spanning evidence-based design, implementation, delivery, monitoring, and evaluation. The exercise highlighted the importance of systematic follow-up, collaboration with social services and third-sector entities, and holistic approaches that enhance employability, foster social inclusion, and extend access to complementary support services. These insights provide a framework for ongoing peer learning and policy refinement across the National Employment System.
Based on the assessment, the report offers targeted recommendations for national and regional PES to guide the future design and implementation of ALMPs. Key recommendations include embedding evidence-based design through labour market analyses and cross-regional peer learning; strengthening service quality and innovation via transparent provider selection, hybrid payment models, and structured knowledge-sharing networks; and implementing comprehensive, data-driven strategies for identifying and engaging vulnerable populations. Recommendations also emphasize systematic participant assessment and referral, integrated support addressing non-employment barriers such as childcare and transport, and dedicated case management with follow-up to sustain outcomes.
Further guidance includes structured employer engagement through co-designed training and inclusive hiring practices, reinforced monitoring and evaluation with integrated data exchanges, impact and cost-benefit assessments, and systematic collection of participant and employer feedback. These practices aim to ensure that ALMPs in Spain are effective, inclusive, and adaptable, supporting both short-term employment outcomes and long-term social and skill development.
The report underscores that while Spain has made notable progress in its labour market, targeted improvements in policy design, implementation, and monitoring can further enhance the effectiveness of ALMPs, contributing to a more resilient, inclusive, and regionally balanced employment system.
