Annex 2 - Types of operations and target groups reached by esf support for social inclusion

• Author: Cambridge Econometrics, Directorate-General for Employment, Social Affairs and Inclusion (European Commission), Eurocentre, ICF
• Pages: 206-243

Study supporting the 2020 evaluation of promoting social inclusion, combating poverty and any

discrimination by the European Social Fund (Thematic Objective 09)

206

ANNEX 2 - TYPES OF OPERATIONS AND TARGET

GROUPS REACHED BY ESF SUPPORT FOR SOCIAL

INCLUSION

Overview

This Annex provides more information about the typology of operations and the typology

of target groups of ESF TO9 operations, which is presented in Section 3 of the Interim

Report. The typ ologies were used to map TO9 operations th at were planned for and

implemented during the 20 14-2020 period. The mapping of T O9 operations hel ps to

highlight the wide range of TO9 operations as well as identify the most common types

of operations, the underlying actions and target groups over the evaluation period. As

stated in Regul ation гEUд σo молокнлмо Ś ‘operation’ means a project, contract, action

or group of projects selected by the managing authorities of the programmes concerned,

or under their responsibility, that contributes to the objectives of a priority or priorities.

Section 2 presents the methodology used by the project team to construct the two

typologies. The project team carried out a systematic mapping of Operational

Programmes (OPs) planned for TO9. The project team subsequently reviewed

implemented operations against the sam e typologies drawing from the Annual

Implementation Reports (AIRs) and other country-based analysis (e.g. interviews,

national evaluations).

Section 3 presents the typology of operations while Section 4 presents the typology of

target groups.

Section 5 presents an intervention logic for each type of operation. Each intervention

logic reflects the most common actions and target groups reflected in the OPs. The

intervention logics were constructed from an ex-ante perspective of how each type of

ESF operation was expected to work and generate impacts supporting the overall

objectives of the TO9. The full database of the mapping is available in an embedded

Excel file in Section 6.

Methodology implemented to identify and code the type of operations

and target groups

This section describes the five-step methodolo gy the study team developed to identify

a typology of operations and a typology of target groups planned for TO9 operations

during the 2014-2020 period and to map their impl ementation. Each step is described

in the sub-sections below.

TO9 operations are di verse and complex. This is reflected in the challenges fa ced in

identifying target groups and the expected impacts of TO9 operations.418 Moreover, as

418 ESF Transnational Platform (2018). Social inclusion indicators for ESF i nvestments -

areas for development in addressing the 20% social inclusion target. This study

notes that the analysis of the Specific τbjectives ‘do not always s eem to narrow

down the IP and target specific issues or groups in a way that can be measured.

Specific Objectives are sometimes broadly defined or not specific enough which

leads to difficulties in measuring results."

Study supporting the 2020 evaluation of promoting social inclusion, combating poverty and any

discrimination by the European Social Fund (Thematic Objective 09)

207

also noted in the same study, there appear to be significant overlaps between TO9

operations and operations under TO8 and TO10. However, the extent to which there are

overlaps depends on how the operation is designed, implemented and delivered. As

highlighted in Section 5 (intervention logic for Type 1 operations), the main difference

between TO9 and TO8 operations i s expected to be in terms of the targ et group where

TO9 operations are more tailored to the multi-dimensional needs of people in vulnerable

situations. The assessment of coherence will investigate this issue furth er supported to

a large extent by the case studies. Another challenge faced during the mapping exercise

was the broad approach often taken at the planning stage for TO9 operations. The lack

of detail on certain actions and target groups hampered the classification of these

operations. This challenge was sti ll evident when examining implemented operations.

The Annual Implementation Reports (AIRs) did not always provide sufficient detail on

the actions carried out and the target groups reached.

To address these challenges the study team took an exploratory approach that first

examined the OP documents (planned TO9 operations) and which was later extended

to the AIRs (2016-2018). The AIR s downloaded on 07 November 2019 were the last

point considered for the mapping. The study team defined the typologies and the target

groups and categorised TO9 planned operations centrally. The country experts validated

the categorisation of planned TO9 operations and target groups and assessed the

categorisation of implemented TO9 operations drawing on the AIRs and other sources

(e.g. interviews and national evaluations).

Step 1 – Identification and extraction of information on operations and

target groups from Operational Programmes (OP) documents by

country expert

The first step involved the systematic extraction of information from all OPs relevant to

TO9 by the country experts. The study team prepared a tool (in the form of an Excel

database) which was transmitted to country experts along with the last approved

versions of the OP documents. The tool included written guidance to support country

experts in identifying the information to extract and to make assessments based on the

extracted information. This guidance was complemented by ad-hoc support through

calls and emails.

The extraction part of the tool contained the following fields:

 Identification of OP: OP CCI, Country, name of OP, Priority Axis for TO9,

version of OP;

 Context analysis and needs assessment: National/Regional socio-economic

context underpinning the strategy in the OP; CSR and national/regional policy

strategies as mentioned in OP; ESF (If mentioned in the OP) Use of ESF: how

managing authorities intend to use ESF to respond to the needs identified;

 Target region covered by OP;

 (for each IP under TO9) justification for the selection of thematic obje ctives

and investment priorities’з u sing the information available in Table м of the

OP;

 (for each IP under TO9 ) name of specific objective covered under each IP,

using the information available in Table 2.A.5 of the OP;

 (for each IP under TO9) target groups identified, using the information

available in Table 2.A.5 of the OP;

Study supporting the 2020 evaluation of promoting social inclusion, combating poverty and any

discrimination by the European Social Fund (Thematic Objective 09)

208

 (for each IP under TO9) description of expected results, using the information

available in Table 2.A.5 of the OP;

 (for each IP under TO9) summary of actions (description of the type and

examples of actions to be supported and their expected contribution to the

specific objectives including, where appropriate, the identification of main

target groups, specific territories target ed and types of beneficiaries) using

the information available in Table 2.A.6.1 of the OP;

 (for each IP under TO9) summary of target groups that may be mentioned in

Table 2.A.6.1 in relation to the planned actions but not been mentioned in

Table 2.A.5 of the OP; and

 Beneficiaries mentioned in the OP u sing the information available in Table

2.A.6.1 of the OP.

The tool also asked country experts to provide several assessments based on the

information extracted, contributing towards the assessment of several evaluation

criteria in particular relevance and coherence.

First, country experts were asked to assess the targeting approach. They were also

asked to assess whether a target group(s) was specifically identified and if so, whether

the identified target groups were relevant to the context/needs a ssessment on a four-

point scale and to provide a brief rationale. The four possible responses a country expert

could provide were as follows:

 Fully: The identified target groups are fully relevant to the context/n eeds

assessment;

 Mostly: The majority of identi fied target groups are relevant to the

context/needs assessment; however several mismatches exist;

 Partially: Several identified target groups are relevant to th e context/needs

assessment; however the majority are not in line/related to the identified

needs (context); and

 Not at all: There is little or no relevance of the identified target groups to the

context/needs assessment.

Country experts were then asked to assess the extent to whi ch the objectives and the

operations funded under the OP relevant to the needs identified for the target groups

and to provide a brief rationale. The response options were as follows:

 Fully: The objectives were fully relevant to the needs identified for the target

groups;

 Mostly: The majority of objectives and operations were relevant to the needs

identified for the target groups. In some instances, there was a mismatch

identified;

 Partially: Several objectives and operations were relevant to the needs

identified for the target groups; however significant mismatches exist; and

 Not at all: The objectives and operations fund ed do not correspond to the

needs identified for the target groups.

Lastly, country experts commented on the extent to which the IP(s) selected in the OP

were consistent with the stated European Priorities (for example: Country Specific

Recommendations; Europe 2020 strategy). They were also asked to consider the actions

and target groups described under IP9i and whether some actions may better be

covered under one or more other IPs.