EI Monitoring and Assessment Report 2012/13 Impacts and Effectiveness of Employment Benefits and Support Measures (EBSMs—EI Part II)

1.1 Canada’s Labour Market

Key Labour Market Indicators

At 1.4%, employment levels grew slightly faster than in 2011/12, as most provincial and territorial labour markets improved year over year. Unemployment levels reached a four-year low, decreasing 1.4% over the year. Consequently, the unemployment rate decreased to 7.2%, its lowest level since the late 2000s recession.

For a second consecutive year, national employment gains were concentrated in full-time employment opportunities, a sign of a more robust labour market. Employment levels peaked in 12 jurisdictions across the country, while unemployment rates decreased in 7 jurisdictions, indicating improved labour market results across the country. The employment rate rose for the third consecutive year, reaching 61.9%, 0.5 percentage point higher than 2009/10, but still lower than the pre-recession level of 63.5%. The participation rate reached 66.7%, which was 0.8 percentage point lower than pre-recession levels.

Labour Market Tightness

Statistics Canada’s Business Payroll Survey confirmed that the Canadian labour market was tighter than it was in 2011/12. The survey reported an average of 245,200 job vacancies in 2012/13 ^{Footnote 2} , up 3.4% from the previous reporting period; meanwhile, the number of unemployed people decreased by 1.9%. For every job vacancy advertised, 5.6 individuals sought employment, down from 5.9 a year earlier.

An increase in the number of vacancies and the contraction in the number of unemployed people caused a decrease in the unemployment-to-job-vacancies ratio, making it more challenging for employers to fill their vacancies. The retirement of many specialized workers compounded the trend in the ratio. In Canada, the manufacturing and energy sectors reported the largest shortages of skilled labour.

Skills in Demand

According to Wanted Analytics’ data, job postings have increased by 5.5% since 2011/12. ^{Footnote 3} The following five broad occupational groups recorded an average of 84% of all vacancies in 2012/13: ^{Footnote 4}

• sales and service occupations (23%);
• occupations in business, finance and administration (18%);
• natural and applied sciences, and related occupations (17%);
• trades, transport and equipment operators, and related occupations (14%); and
• management occupations (12%).

• Show Data Table

  Chart 1 - Share of Vacancies by Broad Occupations, (2012/13,%)

  Broad Occupations	Average Volume for 2012/13 (%)
  Sales and Service Occupations	23%
  Business, Finance and Administration	18%
  Natural and Applied Sciences	17%
  Trades, Transport and Equipment	14%
  Management Occupations	12%
  Social Science, Education, Government Service and Religion	5%
  Health	4%
  Processing, Manufacturing, Utilities	4%
  Art, Culture, Recreation, and Sport	2%
  Primary Industry	1%

Year-over-year, shares of broad occupations related to health (+13.9%); primary industry (+12.3%); management (+11.9%); natural and applied sciences (+8.7%); social sciences, education, government services, and religion (+7.1%); and sales and service (+5.1%) grew most rapidly. Demand for occupations related to the services sector was higher than those related to the goods-producing sector.

2.1 Client Types

Three client types can access EBSMs: Active claimants, Former claimants and Non-insured clients. In 2012/13, the distribution of client types continued to reveal a growing demand from non-insured clients. The number of displaced workers has also remained higher than it was before the recession, which contributed to the growing number of multi-barriered clients that many jurisdictions reported. Overall, it was much harder for former EI claimants and non-insured clients to return to work than it was in the previous year.

Over the past 10 years, the volume of non-insured clients increased by 52.0%, while the number of active claimants declined at a slower pace (-24.3%). During the same period, former claimants increased by 17.3%. Normally, former and non-insured clients have weaker labour market attachment and require additional support to return to employment.

• Show Data Table

  Chart 2 - Volumes by EBSM Client Types, (2003/04 - 2012/13)

  	2003/04	2004/05	2005/06	2006/07	2007/08	2008/09	2009/10	2010/11	2011/12	2012/13
  Prestataires actifs	422,710	392,983	361,490	349,865	337,148	388,714	463,158	372,340	326,892	319,904
  Anciens prestataires	159,112	153,987	170,714	176,879	186,159	209,871	209,020	269,350	214,587	241,834
  Clients non assurés	85,682	88,890	95,499	91,458	89,315	95,468	104,972	114,356	104,816	100,522

Active claimants are those who had an active EI Part I regular claim when they requested assistance under Part II of the Employment Insurrance Act. Typically, they have stronger recent labour force attachment and tend to be able to return to work more quickly than those with weaker ties to the labour market. Active claimants who are job ready often seek out short-term interventions under EI Part II to find their next employment opportunity. Others require longer-term Employment Benefits to upgrade their skills, establish certification or refine their job search strategies.

The number of active claimants served continued to drop, decreasing 2.1% to 319,904. Over the past 10 years, the share of active EBSM clients declined from a high of 63.3% in 2003/04 to a low of 48.3% in 2012/13. The proportion of active claimants returning to work declined 3.3 percentage points year over year 45.1%.

Former claimants are those who completed an EI claim in the past three years, or who began a parental or maternity claim in the preceding five years. They are no longer eligible for EI Part I; however, they remain eligible for EI Part II under certain criteria. ^{Footnote 5} Former claimants do not receive income support under Part I of the Employment Insurrance Act while they complete an Employment Benefit intervention; however, they may receive extensive Part II support while completing their return-to-work action plan. The additional support provided in some jurisdictions may result in proportionately variable expenditures for EBSM-similar programs.

During the 2012/13 reporting period, the number of former claimants fell 4.1% to 100,522, and their share of all EBSM clients declined by 1.0 percentage point to 15.2%. Despite these decreases, the share of former claimants supported under EI Part II remained 2.3 percentage points higher than it was in 2003/04. The number of former claimants returning to work decreased 34.0% between 2011/12 and 2012/13, reaching a total of 17,734.

Non-insured clients are unemployed individuals who are neither active nor former EI clients. Usually, non-insured clients have no substantive or recent labour force attachment. They include new labour force participants and individuals who were formerly self-employed. While these clients are not eligible for Employment Benefits under EI Part II, they may access interventions similar to EAS.

In 2012/13, the volume of non-insured clients grew 12.7% to reach a high of 241,834. Consequently, the share of non-insured clients increased 12.7 percentage points from a low of 23.8% in 2003/04 to 36.5% in 2012/13. Overall, 34,928 non-insured clients returned to work in 2012/13 following their EBSM participation, a 23.2% decline since the previous year. A total of 14.4% of all non-insured clients found work following their EBSM participation. ^{Footnote 6}

2.2 Age Distribution ^{Footnote 7}

• Show Data Table

  Chart 3: Age Distribution, 2012/13

  	2012/13
  	#	%
  15—24 Youth	109,643	19.4
  25—54 Core Age	393,604	69.5
  55+ Older Workers	62,536	11.0
  Unknown	228	0.0
  Total	566,011	100.0

Client volumes by age category increased in proportions similar to increases in the previous year. Consistent with the aging of Canada’s population, the older workers category (55 years and older) grew the fastest, up 12.4% year over year. Older workers’ share of the total age distribution was the only one to grow year over year, increasing by 0.8 percentage point to a high of 11.0%. While the number of core-aged workers grew the most (+14,164), their relative share dropped slightly year over year. The core-aged client segment continued its downward trend for the second consecutive year, reaching 69.5% in 2012/13, at par with the 2003/04 reporting period. At 7.2%, 50- to 54-year-old clients were the fastest growing subcategory of the core-age workers, followed by 30- to 34-year-old clients at 5.4%. Youth participation increased by 2.1%.

2.3 Designated Groups ^{Footnote 8}

ESDC collected information on the EBSM participation of women, Aboriginal people, members of visible minorities and persons with a disability in support of employment equity principles.

• Women participated in a total of 472,758 EBSM interventions in 2012/13, a 9.8% increase compared with the previous year. Women represented 45.4% of all participants, slightly lower than their share in 2011/12; however, that figure was still slightly higher than their share of national unemployment (45.0%). While the vast majority of women (90.3%) accessed EAS interventions, their male counterparts had a lower rate of EAS participation (80.8%). This trend is largely explained by a lower participation of women in the skills development apprenticeship program. Women were more likely than men to have worked in part-time occupations, which resulted in lower EI eligibility rates and, therefore, less access to Employment Benefits available through EI Part II. Overall, 45.9% of female EBSM participants were non-insured this year compared with 37.6% of male EBSM participants.
• A total of 92,851 EBSM participants self-identified as persons with a disability. The share of persons with a disability increased by 2.9 percentage points to 8.9%. Non-insured clients represented 55.0% of this client segment, an increase of 8.6 percentage points, year over year.
• Aboriginal people participated in 70,004 EBSM interventions, 24.3% more than the previous year. Aboriginal people also participated in 6.7% of all EBSM interventions delivered in 2012/13, including programming delivered through ASETS. A total of 56.9% of Aboriginal clients participated as non-insured clients. Aboriginal participation in Employment Benefits fell from 4.6% to 4.0% year over year.
• Members of visible minority groups participated in 41,784 interventions, a 15.7% decrease year over year. At 4.0%, the visible minority segment’s share of total EBSM participation fell to an 11-year low. Representation rates can be influenced by changes in self-identification.

3.1 Skills Development

Skills Development (SD) is the most common Employment Benefit delivered under LMDAs. This benefit helps insured clients cover the cost of gaining the new skills they often need when facing a career change. The use of SD-R interventions fell by 10.0% to an 11-year low of 58,696, while the average duration of SD-R interventions increased by 11.0% year over year. The number of SD-A interventions decreased slightly by 0.5% to a five-year low of 61,292. SD-A volumes have remained the most consistent of all Employment Benefits volumes, due to steady demand for skilled trades.SD expenditures fell by 8.6% to $914.8 million, mirroring the year-over-year declines in the number of interventions delivered by provinces and territories. Despite this decline, SD-R continued to account for the largest proportion of Employment Benefits interventions and expenditures.

EBSMs in Action:

Skills Development-Regular

New Brunswick

New Brunswick delivers its Training and Skills Development program through Department of Post-Secondary Education, Training and Labour (PETL) regional offices located throughout the province. PETL participates in various regional and provincial committees with its economic partners, community organizations and other government departments. New employers are consulted on their labour needs. At the local level, PETL communicates with economic partners, school districts, community organizations and others. Local labour market information allows the province to respond to local employment and training needs in a timely manner. Pilot projects are often developed in partnership with appropriate stakeholders to address emerging needs.

Northwest Territories

Building Essential Skills (BES) provides short-term training or education opportunities to help EI clients return to the labour market quickly. The maximum duration of enrolment in the program is 52 weeks. Students are expected to make a minimum financial contribution toward their training. Amounts may vary, depending on the program type. Participants may be eligible for financial assistance for the costs of tuition, books, special equipment, childcare and transportation, for example. BES also helps apprentices obtain certification in their chosen trade.

EBSMs in Action:

Skills Development-Apprentices

Saskatchewan

Saskatchewan consults directly with stakeholders through the industry-led Saskatchewan Apprenticeship and Trade Certification Commission (SATCC) Board. The board includes representation from various trade boards and sectors, including the construction sector; agriculture, tourism and service sector; motive repair sector; and production and maintenance sector. Government is represented on the board and plays an active part in policy and program development. In addition, the board receives guidance and input from approximately 400 individuals who sit on trade boards, as well as curriculum and examination development boards. Apprentices in Saskatchewan are charged a minimal tuition fee for training. All apprentices, other than those receiving full or partial wages from their employer, are required to apply for EI benefits to assist with their income support needs while they are in training. Apprentices are also eligible to apply for a training allowance when living away from home.

Alberta

Historically, Alberta has limited its support to the delivery of apprenticeship technical training at public post-secondary institutions. Effective August 1, 2012, Alberta can now support apprentices taking recognized technical training at union training centres. This gives individuals and employers more options for improving their skills. Apprentices with low incomes can receive Part II assistance to supplement their Part I benefits.

Nunavut

The Training on the Job (TOJ) program is now more accessible to employers, particularly employers who hire apprentices in its two busiest regions. In addition to automating the process for notifying the Apprenticeship Unit, Nunavut assists employers with paperwork. The territory worked with early childhood officers (Government of Nunavut employees) to promote this program to the childcare sector, which resulted in more applications and take-ups.

3.2 Targeted Wage Subsidies

Targeted Wage Subsidies (TWS) encourage employers to hire individuals they would not normally hire, giving them a chance to complete a successful career transition. In 2012/13, TWS interventions decreased by 6.1% to 12,585, contributing to an 18.3% decrease since 2008/09. TWS’ share of all Employment Benefits interventions remained unchanged at 8.4%. Noticeable increases in TWS interventions occurred in Nova Scotia, New Brunswick, Manitoba and Nunavut, while other jurisdictions recorded stable levels or declines year over year.

TWS expenditures increased by 5.4% to $67.9 million, reflecting a slight increase in the average cost per intervention in most jurisdictions. On average, the duration of TWS interventions increased by 14.2% year over year.

EBSMs in Action:

Targeted Wage Subsidies

Nova Scotia

START, Nova Scotia’s TWS-similar programming, encourages employers to hire Nova Scotians requiring work experience, and to register and employ apprentices. TWS provides a financial incentives to employers willing to support ready-to-work Nova Scotians. Incentives vary, depending on the type of employment offered and the skill level of the employee, and may also include a retention bonus. The program focuses on small to medium-sized businesses, but makes exceptions where labour market or economic conditions warrant.

British Columbia

B.C. Wage Subsidy Work Experience Placements (Wage Subsidy) pay a wage subsidy to eligible employers as an incentive to hire—and provide work experience and skills enhancement to—EI clients who need work experience, as determined through a formal needs assessment. Employers are expected to provide ongoing employment to clients when they complete the wage subsidy placement. Service providers deliver three major services: pre-placement, agreement and monitoring/close-out.

3.3 Self-Employment

EBSMs in Action:

Self-Employment

Ontario

Ontario administers the Ontario Self-Employment benefit through coordinators to provide entrepreneurial skills, business advice and support (including workshops, coaching and mentoring) to approved participants, who receive financial assistance while they participate in the program. The duration of support is up to 42 weeks for all participants. Ontario provides financial assistance for basic living expenses to participants who are not receiving EI benefits. Participants may also receive support for disability costs related to program participation. Based on financial need, they may also get assistance for the incremental costs of dependent care and/or travel during the business plan development phase of the program.

The Self-Employment intervention helps insured clients start their own businesses, through counselling and development related to launching a new business. Participation in SE increased by 3.7% in 2012/13, reaching a total of 8,261 interventions. That is still lower than pre-recession levels, as is often the case when economic conditions improve.

While SE’s share of total EBSM interventions increased by 0.5 percentage point to 5.5%, related expenditures decreased by 1.3% to $118.3 million.

3.4 Job Creation Partnerships

Job Creation Partnerships provide insured clients with work experience while helping the community and local economy. In 2012/13, provinces and territories delivered 2,906 JCP interventions, a decrease of 16.1% year over year. JCPs’ share of total benefits interventions dropped from 5.6% in 2003/04 to a low of 1.9% in 2012/13 and JCP interventions have declined 71.6% since 2003/04. Year-over-year JCP expenditures fell by 23.2% to $24.5 million.

EBSMs in Action:

Job Creation Partnerships

Newfoundland and Labrador

The Newfoundland and Labrador Job Creation Partnerships (JCPs) employment program is accessed through an application process, delivered through formal agreements between the Department of Advanced Education and Skills (AES) and organizations and administered by AES regional offices. The province’s JCP provides opportunities for eligible jobseekers to gain meaningful work experience and to develop and maintain the employment skills needed to successfully find long-term employment. Projects support communities and local economic development. JCPs in Newfoundland and Labrador are designed to respond to a range of labour market needs and priorities including strategic initiatives to respond to labour shortages in specific occupations and/or sectors and initiatives to increase labour force participation among underrepresented groups.

3.5 Targeted Earnings Supplements

Targeting Earning Supplements provide insured clients with incentives to accept employment. Quebec offers TES-similar programming through its Return to Work Supplement program. This TES-similar benefit supported 5,781 participants in 2012/13, a 24.3% decrease year over year. Quebec’s total expenditure for this benefit fell 17.5% to $3.0 million.

EBSMs in Action:

Targeted Earnings Supplements

Quebec

Low-income job seekers have additional costs associated with starting a job. The Return to Work Supplement aims to help them overcome potential barriers to finding employment, by encouraging them to intensify their job search and helping defray expenses at the beginning of employment, such as supplies, work clothes or a bus pass. Individuals eligible for the Return to Work Supplement can receive $500 to help cover those expenses.

4.1 Employement Assistance Services(EAS) Interventions

Provinces and territories design and deliver interventions similar to EAS, which are available to all unemployed people in Canada. In addition to helping EI-insured clients, EAS interventions provide crucial support to those who have been absent from the labour market for an extensive period or who have low labour market attachment. They may also support new immigrants or young people who are entering the Canadian labour market. These interventions are reported in one of the three following categories: Employment Services, Group Services and Individual Counselling. In 2012/13, a total of 901,063 EAS interventions were delivered, which represents a 14.2% year-over-year increase. They reached levels comparable to those seen during the late 2000s recession. However, EAS expenditures increased more slowly, rising by 1.6% to $574.7 million.

4.2 Labour Market Partnerships

The LMP measure facilitates the collaboration of employers, employee and employer associations, community groups, and communities to develop and implement labour force adjustment strategies to deal with human capital challenges, such as skills shortages and the displacement of workers when businesses close. In 2012/13, provinces and territories invested $156.7 million in LMPs, a 6.4% year-over-year increase. All jurisdictions implemented LMPs in 2012/13 with Quebec, Ontario, New Brunswick and Manitoba making the largest LMP investments.

EBSMs in Action:

Labour Market Partnerships

P.E.I.

In P.E.I., LMP funding helped to promote labour market intelligence, improve career awareness, develop training curricula related to industry requirements and identify best practices for investing in worker training. The province also encouraged industry and community involvement in identifying and addressing labour market issues.

Manitoba

Manitoba works closely with its labour market stakeholders to establish annual priorities and to ensure programs and services address provincial labour market needs. The Minister’s Advisory Council on Workforce Development undertook a Labour Market Information survey of more than 600 companies, in conjunction with the Manitoba Bureau of Statistics, then held five industry-specific focus group sessions throughout the province. These engagement activities produced essential information on current and relevant business conditions, human resources requirements, and training and skills development needs that continues to help Manitoba develop its labour market plans and priorities.

Yukon

The Business Training Fund, jointly funded from Yukon’s Community Training Funds and CanNor, helped the Whitehorse Chamber of Commerce assist businesses with their training needs. The Business Training Fund improved access to training and development for employees and potential employees in the business community, and increased the ability of Yukon residents to benefit from the current economic climate. In addition, businesses are better positioned to compete by increasing the capacity of employees in the business sector.

4.3 Research and Innovation

Research and Innovation (R&I) initiatives identify better ways of helping people prepare for, return to or maintain employment, and participate productively in the labour force. The total provincial and territorial investment in R&I initiatives reached $12.2 million in 2012/13, almost six times more than in the previous year. Quebec, Ontario, Manitoba, and Saskatchewan all invested in R&I, but the most significant investment was in British Columbia ($10.3 million) where the province launched the BC Centre for Employment Excellence and several projects to inform program design and delivery approaches.

EBSMs in Action:

Research and Innovation

British Columbia

British Columbia established a Centre for Employment Excellence in September 2012 to support the employment services sector, including employers and service providers, and to help improve employment outcomes for all unemployed job seekers in the province. The Centre is funded over three years. In addition, a research fund was also set up for three years to support innovative approaches to the delivery of employment services. Community consultations and stakeholder engagement determine research projects under this fund.

The BC Centre for Employment Excellence provides a single coordination point for employment research and innovation, tools and training. Resources include a research and development program, website, and system by which to share best practices throughout the sector. Also, activities include the design and testing of new and innovative approaches in employment and training, and promoting the implementation of promising programs and practices.

EBSMs in Action:

EBSMs in Remote Areas

Manitoba

Manitoba addresses the needs of clients in remote areas by partnering with local employers, Aboriginal communities and educational institutions to provide integrated service. For example, the province delivers the Employment Partnerships Program in the Hollow Water Training-to-Employment Project, an innovative approach to preparing Aboriginal individuals in a remote First Nation community for employment in industrial positions, while addressing recruitment and retention challenges in the region. This program includes essential skills assessments, life skills and essential skills training, introduction to industry training, work experience and mentorship guidance, and support to participants. In addition, Manitoba delivers LMP-similar programing through a partnership with the Construction Association of Rural Manitoba Inc., a strategy to provide individuals with the opportunity to upgrade their skills or challenge the interprovincial certification examination in welding, carpentry, plumbing, or painting. To date, Trades Qualification Training has been very successful with an 80% pass rate. Finally, AccessManitoba is a citizen-centric website that allows rural and northern businesses, entrepreneurs, and individuals to register for programs and submit applications online.

1.1 Employment Benefits

Employment Benefits interventions totalled 6,683, a decrease of 12.7% year over year. SD-R fell significantly to 3,006, while SD-A remained stable at 1,981. Combined, SD continued to account for the majority of benefits interventions, reaching a five-year high of 74.6%, as the province focused on improving workers’ skills to meet labour market demand in growing sectors. Newfoundland and Labrador has steadily reduced its use of TWS (-43.3%) and JCPs (-71.1%) over the last 10 years. The use of SE grew (+7.5%) year over year. Employment Benefits expenditures fell by 1.9% to $104.3 million.

1.2 Support Measures: EAS

Newfoundland and Labrador delivered 12,369 EAS interventions, a modest 1.9% decrease from the previous year. Individual Counselling was the sole type of EAS intervention reported in 2012/13. EAS expenditures fell sharply to $16.8 million from a high of $20.9 million in 2011/12.

1.3 Other Support Measures: LMPs

Newfoundland and Labrador’s total expenditure for LMPs rose to $6.4 million, a significant year-over-year increase of 36.1%. This rise reflected an increase in LMP activities, which included partnering with the Operating Engineering College to ensure a supply of qualified tower operators; with the Shorefast Foundation to train individuals in the hospitality and tourism sector; and with Labrador Aboriginal Training Partnerships to meet demand for qualified workers for the province’s Lower Churchill Project. LMP expenditures accounted for 5.0% of the total EBSM-similar expenditures compared with 3.6% in 2011/12.

1.4 Managing for Results

Key findings from Newfoundland and Labrador’s summative evaluation highlighted a need to improve links to the demand side of the labour market with TWS in particular, and to ensure that JCPs benefit the host community, given that they increase EI use among participants. To address these findings, the province :

• developed a framework for responding to emerging skills and labour shortages, including:
  • established a tripartite committee with business, labour and government representatives; and
  • ensured Labour Market Development Officers (LMDOs) worked and engaged with employers regarding the use of specific interventions (e.g., TWS) to address labour shortages;
• increased participation of underrepresented groups and helped small businesses develop human resources planning expertise, as shown by
  • employers’ increased access to and use of the NL HR Toolkit, and
  • the provision of SmartForce NL online training courses to employers.
• improved employment outcomes for EI clients by making strategic JCP funding allocations to ensure recipients gained experience and skills.

1.5 Delivery Model

In 2013, the Department of Advanced Education and Skills (AES) established a network of 26 service delivery locations that provide a single entry point for individuals to access EBSM-similar programming. AES had relied on a combination of internal and external case-managed employment services to serve individuals seeking career planning, employment and training supports. In an effort to streamline and improve employment services, AES decided in February 2013 to integrate and internalize the delivery of employment services within AES. The province has plans to further enhance its service delivery model.

2.1 Employment Benefits

The province delivered 2,120 Employment Benefits interventions in 2012/13, a 4.7% decrease year over year. SD-A (301) was the sole benefits intervention reporting an increase. Conversely, JCPs, SE, TWS and SD-R all shifted down. SD-R (1,154) represented 54.4% of all Employment Benefits interventions and continued to be the most frequently used intervention on the Island, reflecting the province’s commitment to meeting the demand for skilled workers in an expanding labour market. Employment Benefits expenditures totalled $19.2 million, a significant reduction of 5.9%.

2.2 Support Measures: EAS

The number of EAS interventions delivered on the Island expanded by 11.0%, reaching 5,526 in 2012/13. Employment Services edged up to 3,978 (+17.4%), continuing to be the most-used EAS intervention. This could be attributed to the increase in non-insured clients, mainly related to international migration and growth in the number of post-secondary graduates accessing this intervention. On the other hand, Individual Counselling fell by 2.8%, to 1,548. EAS expenditures remained stable at $4.9 million.

2.3 Other Support Measures: LMPs

The total expenditure for LMPs increased significantly by 29.8% year over year to a 10-year high of $2.3 million. This figure accounted for 8.8% of total expenditures for EBSM-similar programming. The program was mainly used to develop and promote labour market intelligence, career awareness, training curricula related to industry requirements and best practices for investing in worker training. The province also engaged industry and communities in identifying and addressing labour market issues.

2.4 Managing for Results

The P.E.I. LMDA summative evaluation was completed in 2011. During the reference period it covered, the LMDA was co-managed, and programs and services were delivered by Service Canada. Key findings from P.E.I.’s summative evaluation highlighted a need to improve EBSM delivery in order to address changing labour market needs and ensure that programming assists clients with low literacy. To address these findings, the province:

• consulted with stakeholders to identify labour market needs;
• improved accountability and monitoring to ensure accurate and timely reports;
• streamlined administrative processes by building on the strategy Island Prosperity: A Focus for Change,which links innovation and learning more closely to the development of a productive economy and skilled labour force;
• used EBSMs to complement other employment programs; and
• considered a number of factors in developing plans (e.g., emerging labour market trends and employer needs, including socio-economic conditions, demand occupations, sectors in growth and decline, and literacy skills).

2.5 Delivery Model

SkillsPEI, a division of the Department of Innovation and Advanced Learning, manages and administers labour market development programs and the delivery of EBSM-similar programming. This division monitors, assesses and streamlines administrative processes. SkillsPEI offers internal case management to help unemployed clients connect to the labour market. Third-party service providers provide external case management to assist with client intake and assess clients interested in pursuing employment services. EAS are primarily delivered through third-party service providers, while SkillsPEI provides Employment Benefits. SkillsPEI continues to partner with stakeholders—including other departments and levels of government, employers, industry groups, and community organizations—to identify gaps in service critical to enhancing delivery of relevant programs and services to meet local labour market demand.

3.1 Employment Benefits

Following a sudden drop in 2011/12, Nova Scotia delivered 6,088 (+19.0%) Employment Benefits interventions in 2012/13. Volumes for four of the five Employment Benefits experienced notable growth. TWS increased most dramatically (+265.0%) to a new 10-year high of 668, in keeping with recent improvements, including a redesign of the program to better engage employers and respond to their needs. The number of JCP interventions nearly doubled (+94.1%), reaching 196. And the number of SD-A interventions increased significantly (+23.4%), rising to 1,642.

While SD-A’s share of remained stable, SD-R’s share declined to a 10-year low of 51.4%. As a human capital intervention, SD remains a significant means of enhancing clients’ long-term labour market attachment and reducing their reliance on EI. Combined, SD-A and SD-R represented 78.4% of all Employment Benefits interventions, reflecting the province’s commitment to addressing labour and skills shortages, and helping Nova Scotians transition to new employment in an increasingly knowledge-based economy. Employment Benefits expenditures fell 11.0% to $51.7 million.

3.2 Support Measures: EAS

For the second consecutive year, Nova Scotia delivered fewer EAS interventions in 2012/13. Both the volume (29,598) and the share (82.9%) of EAS interventions declined moderately. The province used EAS to help job-ready clients meet a growing demand for skilled labour, as well as to assist multi-barriered clients with more intensive services. Participation in Employment Services increased significantly (+43.2%) to a 10-year high of 22,400 and participation in Group Services expanded dramatically (+593.8%) to 1,346. However, Individual Counselling participation declined sharply (-59.2%) to an eight-year low of 5,852, reflecting a more strategic approach, with recognized providers delivering fewer interventions of higher quality. EAS expenditures increased significantly to $26.0 million from $21.2 million in 2011/12.

3.3 Other Support Measures: LMPs

Nova Scotia’s total expenditures for LMPs rose to a five-year high of $1.9 million, a substantial year-over-year increase of 85.8%. The province continues to support Sectoral Council engagement to foster cooperative labour market planning and identification of priorities.

3.4 Managing for Results

Key findings from Nova Scotia’s summative evaluation recommended further improvements in a number of areas, including adapt to the changing mix of clients seeking programming; targeting EBSMs to demand occupations; and improving labour market information (LMI) and EI client information to support planning. To address these recommendations, the province:

• integrated LMDA/LMA delivery to reflect the changing client mix;
• consulted with stakeholders and service providers to monitor trends;
• developed an LMI strategy to monitor emerging needs; and
• introduced the Labour Market Program Support System (LaMPSS) to maximize efficiency while enhancing program delivery excellence.

3.5 Delivery Model

Employment Nova Scotia has established programs to fund the management and operation of Careers Nova Scotia Centres to deliver EBSM-similar programming across the province. These centres’ services agreements provide funding to organizations to deliver self-serve and assisted employment-related activities from a standard menu of services that will help unemployed individuals to prepare for and maintain employment. Participating organizations include businesses, municipalities, band/tribal councils, and public health and educational institutions. In 2012/13, Nova Scotia launched a new case management system called LaMPSS ^{Footnote 14} to support the delivery of labour market programs. LaMPSS helps the province make the most efficient use of staff and financial resources, while enhancing program delivery.

4.1 Employment Benefits

Participation in Employment Benefits declined 16.6% year over year to 7,901 interventions. SD-R (4,263) and SD-A (2,338) both dropped significantly but, combined, SD continued to represent the majority (83.5%) of all Employment Benefits interventions in 2012/13—consistent with New Brunswick’s commitment to supporting workers in acquiring new skills. Employment Benefits expenditures fell to $55.8 million (-24.9%).

4.2 Support Measures: EAS

EAS interventions totalled 23,857 in 2012/13, a slight year-over-year decrease of 1.9%. Employment Services (9,163) represented 38.4% of all EAS interventions compared with 39.6% in 2011/12. Individual Counselling remained stable at 14,694, while its share of all EAS interventions edged up to 61.6%. The province’s extensive use of EAS reflected a continued commitment to assisting job-ready individuals who were actively seeking employment and extensive support of multi-barriered clients. New Brunswick clients participated in an average of 2.04 interventions each in 2012/13. Total expenditures for EAS fell to $10.2 million (-4.8%).

4.3 Other Support Measures: LMPs and R&I

New Brunswick’s expenditures for LMPs and R&I totalled $7.9 million compared with $4.5 million in 2011/12. This represented a substantial year-over-year increase of 76.4%. Both LMP ($7.6 million) and R&I ($307,000) increased sharply (+74.8% and +130.8%, respectively), reflecting a continued commitment to helping employers in expanding sectors to manage their human resources needs and advance the innovation agenda.

4.4 Managing for Results

Key findings from New Brunswick’s summative evaluation ending in 2009 highlighted a need to improve the province’s client case management information system; strengthen the quality and dissemination of LMI; and improve policy and program delivery. To address these findings, New Brunswick:

• implemented a new client case management information system (ContactNB.net), and improved data input and reporting;
• made strategic investments in innovative programs, services and partnerships to help citizens secure and maintain full-time employment;
• focused on maximizing participation rates, addressed the demand for skilled workers, and ensured programs and services were more focused on clients’ needs;
• conducted a program review to ensure program design and delivery was evidence based; and
• continued improving LMI by developing tools such as occupational profiles.

4.5 Delivery Model

New Brunswick’s Department of Post-Secondary Education, Training and Labour (PETL) coordinates the delivery of EBSM-similar programming aimed at helping New Brunswickers acquire the skills and employment experience necessary to secure and maintain full-time employment. The PETL manages 19 career information centres located in seven regional offices. These centres deliver employment benefits either directly or through third-party service providers. Third-party service providers deliver specialized services and EAS.

5.1 Employment Benefits

In 2012/13, the number of Employment Benefits interventions fell by 4.5% to reach a 10-year low of 41,321. The distribution of Employment Benefits interventions changed slightly due to uneven variation in participant volumes. SD-R, a priority for Quebec, edged up 0.4% to 27,199, and its share increased by 3.2 percentage points to account for 65.8% of all benefits. SE dropped by 5.1% to 1,918, and TWS declined by 1.6% to 6,423. TES fell by 24.3% to 5,781. ^{Footnote 15} Employment Benefits expenditures dropped by 5.0% to $335.8 million.

5.2 Support Measures: EAS

In 2012/13, the use of EAS in Quebec reached a 10-year high of 196,423, reflecting two factors: the province’s efforts to reach out to individuals from occupations with skills in demand, by targeting them via EI Part I data; and the substantial increase in non-insured clients. Employment Services interventions totalled 118,494, a year-over-year increase of 1.4%. At 60.3%, Employment Services continued to account for the majority of EAS interventions. Individual Counselling increased significantly to a 10-year high of 45,590, as the province implemented personalized job placement and LMI services in June 2011. These services continued to grow and became fully established in 2012/13. Their share of total EAS interventions followed suit, edging up to 23.2% of all EAS compared with 14.1% in 2011/12. Group Services declined, reaching a 10-year low of 32,339. EAS expenditures totalled $139.7 million, an increase of 8.0% year over year.

5.3 Other Support Measures: LMPs and R&I

The province supported the skills development of workers at risk of employment loss, as well as the improvement of a variety of human resources management functions. Quebec’s total expenditure for LMPs increased to $108.3 million, up from $92.3 million in 2003/04. LMPs’ expenditures represented 18.5% of the province’s total expenditures for EBSM-similar programming. Total funding for R&I fell by 37.0% to an eight-year low of $264,000.

5.4 Managing for Results

Quebec’s last summative evaluation, completed in 2003, recommended that the province review the methods used to select clients for EBSM participation and for interventions, in order to improve cost effectiveness. In addressing these findings, Quebec:

• worked with Service Canada to implement a Targeting, Referral and Feedback (TRF) application that proactively targets EI claimants likely to face employment barriers and those in demand occupations;
• implemented the Pacte pour l’emploi in 2008, designed to increase EAS participation, better identify and target client needs, and expand access to SD and TWS;
• implemented its 2011–14 strategic plan supporting greater participation by individuals, companies and partners in the development and prosperity of the province; and
• completed a series of studies on vulnerable groups to ensure they can access universal services through a welcoming environment, and that LMI and job placement reflect their needs.

5.5 Delivery Model

Emploi-Québec, an agency of the Ministère de l’Emploi et de la Solidarité sociale, coordinates the province’s public employment services, delivered by 130 local employment centres and points of service in 17 administrative regions. The agency also works with 17 regional councils of labour market partners, comprising employers’ representatives, workers, training institutions, service delivery partners and other key stakeholders. The councils examine labour market issues specific to their regions and recommend an action plan addressing local needs to the Commission des partenaires du marché du travail. The councils also adapt Emploi-Québec measures and services to regional needs. Emploi-Québec delivers, in conjunction with its labour market partners, general and specialized public employment services, as well as services for employers.

6.1 Employment Benefits

Ontario delivered 31,490 Employment Benefits interventions in 2012/13 (-15.5%). Volumes for all benefits declined, with SD-R decreasing the most (-29.7%), followed by SE (-26.0%), JCPs (-13.3%), TWS (-10.5%) and SD-A (-2.3%). Despite the moderate decline in SD-A interventions, its share of all benefits increased, reaching a 10-year high of 52.7%–reflecting a continued focus on skills development. Employment Benefits expenditures totalled $286.8 million in 2012/13 (-12.0%).

6.2 Support Measures: EAS

Ontario delivered 142,223 EAS interventions in 2012/13, an increase of 31.0% year over year. All EAS interventions were recorded under Individual Counselling. ^{Footnote 16} EAS expenditures totalled $258.4 million, a significant year-over-year increase of 19.4%.

6.3 Other Support Measures

Ontario’s total expenditures for LMPs and R&I reached $14.8 million (+41.1%) in 2012/13. Total expenditure for LMP rose by approximately $4.0 million year over year. Despite this increase, LMP funding represented only 2.6% of total EBSM expenditures compared with the 10-year high of 4.0% in 2003/04.

Ontario partnered with several sectors to further LMP initiatives. The Ontario Construction Secretariat offered a three-day career exposition entitled Future Building 2012 to profile the construction industry as a rewarding career option. The Cultural Careers Council Ontario created research opportunities for improving the traditional and digital business skills that cultural workers need to take greater advantage of prospects for economic growth, both domestically and globally. The Ontario Nonprofit Network assisted in capacity-building by addressing some of the key human resources challenges facing the not-for-profit sector, including a leadership deficit for senior positions and a lack of diversity in its workforce.

6.4 Managing for Results

Key findings from Ontario’s summative evaluation recommended increasing client awareness of programs and services, and enhancing information for client program selection and training decision-making. The summative evaluation covered a reference period during which EBSMs were delivered by the federal government. A complete transfer of EBSMs to Ontario became effective as of January 1^st, 2007. Since the conclusion of the evaluation, Ontario has:

• increased client awareness of its wide range of programs and services by introducing a one-stop service delivery network model, and integrating provincial program offerings with federally funded employment programming;
• improved information available to clients by strengthening performance contracting with third-party delivery agents; and
• increased use of the Internet as part of a multi-faceted approach to promoting employment programming and job growth (e.g., promoting apprenticeship completion and maintaining support for Second Career training to increase the supply of skilled workers).

6.5 Delivery Model

Employment Ontario’s Employment Service provides access to many EBSM-similar programming in one location. These services include information on local training and employment opportunities; access and referrals to other Employment Ontario programs and services, including training benefits such as Second Career, Literacy and Basic Skills, and the Self-Employment Benefit; and coordinated client service planning and supports that provide job placement and matching services, support to assist clients with job retention and training completion, and structured and individualized support for conducting a successful job search. The Employment Service network consists of 171 third-party service providers with more than 400 points of service across Ontario.

7.1 Employment Benefits

Employment Benefits interventions increased (+1.8%) year over year, reaching a total of 6,755. SD-A increased to a 10-year high of 3,775 (+2.3%) and accounted for the largest share (55.9%) of all benefits, as Manitoba focused on addressing skills and labour shortages, and increasing apprenticeship opportunities to meet labour market demand. The use of TWS more than doubled (+119.5%), while SE increased by 14.0% and JCPs grew by 7.4%. Conversely, SD-R fell by 2.0% and its share of benefit interventions declined to 36.9% compared with 38.3% in 2011/12. The decline in SD-R follows the decrease in active claimants served and the ongoing focus on SD-A. Combined, SD continued to account for the majority of benefits (92.8%). Employment Benefits expenditures totalled $26.0 million compared with $29.0 million in 2011/12.

7.2 Support Measures: EAS

EAS interventions delivered in Manitoba reached a 10-year high of 45,916 in 2012/13, a significant upward shift of 22.8% compared with 2003/04 levels, reflecting a growing emphasis on employment preparation services. Employment Services remained stable at 28,218, while Individual Counselling increased significantly (+6.9%) year over year, reaching 17,698. Total expenditures for EAS remained stable at $10.3 million.

7.3 Other Support Measures: LMPs and R&I

Manitoba’s LMPs and R&I total expenditures increased significantly (+41.9%) year over year, reaching $7.8 million in 2012/13 and representing a greater proportion (17.7%) of total expenditures for EBSM-similar programming. Expenditures for LMPs rose by 47.5% to $7.0 million. Manitoba continued to prioritize demand-driven interventions to better respond to industry and employers’ workforce requirements. LMP funding supported workforce adjustment activities, human resources planning, labour market analysis and training infrastructure development.

7.4 Managing for Results

Key findings from Manitoba’s summative evaluation completed in 2012 called for further improvements, such as addressing concerns about EBSM access in rural and remote areas; and addressing concerns related to adequacy of financial support given variable client or participation characteristics. In response to these findings, Manitoba:

• developed a new integrated labour market service delivery model and provided an integrated service response for multi-barriered individuals, by augmenting existing employment and skills development programs, and providing customized supports;
• increased training opportunities for apprentices under the Rural and Northern Apprenticeship Strategy;
• implemented the Training to Employment Pathway across the province and aligned skills training with employer demand for skilled workers;
• worked collaboratively with stakeholders to help people connect to the labour force by developing industry-driven and community-based partnerships; and
• continued to monitor EI Part II levels related to identified client needs and placed greater emphasis on engaging clients earlier in their EI claim to support quicker returns to work.

7.5 Delivery Model

In late 2012/13, Manitoba implemented a new and fully integrated service delivery model that provides single-window access to the full suite of employment and training services for all Manitobans, including job seekers and employers. This new model strengthens the emphasis on connecting individuals with job opportunities through provincially funded sector councils, and close connections with industry and employers. Manitoba continues to integrate its apprenticeship, employment, and workforce development services and programs to provide a common client-centred experience across all of its service delivery branches. Manitoba manages 14 employment centres that offer direct services, as well as referrals to third-party service providers for particular interventions (e.g., skills development, employer human resources and community capacity). Employment services are available through partnerships with community and employer groups that also provide project-based and workplace training.

8.1 Employment Benefits

In 2012/13, the number of Employment Benefits interventions delivered in Saskatchewan fell to 8,034, a moderate year-over-year decline of 4.3%, consistent with the decline in active claimants. Employment Benefits trends varied. SD-A remained almost unchanged at 6,652 and continued to account for an increasing share (82.8%) of total benefits, reflecting a continued emphasis on skills training opportunities to meet the demand for skilled trades. Conversely, the number of SD-R interventions fell by 17.3% to a nine-year low of 1,295. Similarly, SE dropped to a four-year low of 87 (-32.0%). Overall, expenditures for Employment Benefits fell by 4.8% to $28.3 million.

8.2 Support Measures (EAS)

Saskatchewan delivered a total of 10,495 EAS interventions in 2012/13, a significant year-over-year decline of 14.6%. Employment Services fell 9.3% to 5,491 interventions but its share increased to 52.3% of total EAS interventions. Similarly, Individual Counselling declined by 20.7% to 4,447 and Group Services declined by 12.1% to 557. Despite these declines in interventions, EAS expenditures totalled $6.8 million, a significant year-over-year increase of 24.1% and 186.7% higher than the 2003/04 level.

8.3 Other Support Measures: LMPs and R&I

Saskatchewan’s total expenditure for LMPs and R&I decreased notably (-22.6%) to a 10-year low of $2.0 million. Funding for LMPs fell by 17.2% to $1.7 million, while the $0.3-million balance funded R&I initiatives, representing a decline of 46.1%.

8.4 Managing for Results

Key findings from Saskatchewan’s summative evaluation identified areas for further improvement, including a need to enhance service to employers related to workforce planning, recruitment and retention; ensure progress on data-sharing; and increase the timeliness of delivery of program information to clients. To address these findings, Saskatchewan:

• expanded its work with employers to enhance recruitment and retention. Also, the province and Canada worked with industry and relevant sister ministries (Enterprise Saskatchewan and Industry Canada) to address region-specific needs identified through collaborative planning tables;
• created single-window access to employment services; and
• developed new labour market strategies to address labour market development needs and to determine the measurement and reporting of results.

Since the completion of the summative evaluation, the province has continued to enhance its service delivery model, the relevance of its employment programs and services, and its accountability in the context of current labour market needs.

8.5 Delivery Model

The Labour Market Division of the Ministry of the Economy manages the delivery of a wide range of employment programming, career development and training services through 19 Canada-Saskatchewan Labour Market Service delivery points. The province is divided into five employment regions, with unique geographic and demographic characteristics, to expedite and enhance delivery of employment services, including self-services, assisted services and Saskjobs.ca. The ministry is responsible for training and employment supports for EI clients. Funding under the Skills Training Allocation supports industry-led training at public training institutions. In addition, training directly related to jobs is available to EI clients through the Skills Training Benefit program. These demand-driven programs ensure the needs of Saskatchewan employers are being met in the sectors of greatest labour market demand.

9.1 Employment Benefits

In 2012/13, the number of Employment Benefits interventions remained stable at 21,383. The mix of intervention types, however, changed. SD-A increased by 3.2% and accounted for 86.3% of all benefits, reaffirming Alberta’s continued commitment to supporting apprenticeship training. In contrast, the volumes for other benefits declined notably year over year: TWS decreased the most (-34.2%), while SE declined by 18.6%. Similarly, JCPs fell (-14.5%) and SD-R dropped by 11.7%. In 2012/13, Alberta increased the monthly benefits provided to SD program participants. Employment Benefits expenditures totalled $78.8 million.

9.2 Support Measures: EAS

Alberta’s EAS interventions declined for the third consecutive year, reaching 235,175 in 2012/13, a significant year-over-year decrease of 11.1%. EAS expenditures totalled $28.1 million (-5.1%).

9.3 Other Support Measures: LMPs

Expenditures for LMPs more than doubled (+113.8%) to $1.8 million. LMPs’ share of total expenditures also increased, reaching 1.6%, up from 0.8% in 2011/12.

9.4 Managing for Results

Key findings from its summative evaluation recommended that the province address persistent skills shortages and prepare for significant future labour market shortages. In response to these findings, Alberta:

• co-chaired a policy realignment group—Building and Educating Tomorrow’s Workforce: Alberta’s 10-Year Strategy—to provide context for the Skill Investment Strategy Framework (examples of supported initiatives included the Mature Workers Strategy and Connecting the Dots: Aboriginal Workforce and Economic Development in Alberta);
• implemented changes to LMPs to improve collaboration with sectoral groups and employers; and
• conducted ongoing stakeholders’ consultations to help people connect to the labour force.

9.5 Delivery Model

The Department of Human Services delivers EBSM-similar programming through 53 Alberta Works Centres across the province and through other partners, including community groups, non-profit and volunteers’ organizations, municipal representatives, Aboriginal service organizations, immigrant service agencies, and Alberta post-secondary institutions, including public and private training providers. In addition, other contracted service providers help deliver training and employment programming.

10.1 Employment Benefits

As the economy and labour market continued to improve in 2012/13, the number of Employment Benefits interventions and EI Part I recipients both declined. For a third consecutive year, Employment Benefits decreased, reaching a 10-year low of 16,975 in 2012/13. While participation in SD-R grew by 2.1%, volumes decreased significantly for all other benefits—TWS (-45.8%), JCPs (-39.1%) and SD-A (-5.0%). SD-A continued to account for 54.3% of Employment Benefits interventions (9,211), an indication of a sustained commitment to apprenticeship. British Columbia’s expenditures for Employment Benefits totalled $136.8 million in 2012/13 compared with $141.6 million in the previous year.

10.2 Support Measures: EAS

While most Employment Benefits decreased in volume, the number of EAS interventions in the province almost doubled (+92.5%) to 197,676. EAS expenditures totalled $71.2 million, as the province increased services to non-insured clients and growth in the economy created opportunities for quicker returns to employment.

10.3 Other Support Measures: LMPs and R&I

British Columbia established a three-year fund for the BC Centre for Employment Excellence to engage and support both BC employment services sector and employers with research projects and information on employment and training programs, practices and resources. Following the establishment of the Centre and the implementation of the new service delivery model, BC’s LMP expenditures fell significantly to $4.5M million (-58.2%) and the province invested $10.3 million in new R&I projects to support innovative approaches to the delivery of employment services in 2012/13.

10.4 Managing for Results

Key findings from British Columbia’s summative evaluation highlighted a need to address lower participation rates in EBSMs among specialized populations; close service gaps for groups such as youth and multi-barriered clients; and improve data capture related to client activity. In response to these key findings, British Columbia:

• established an External Expert Advisory Panel on Specialized Populations to
  • examine the issue of program access,
  • identify potential gaps in services and emerging trends to better understand the extent to which program services are appropriate to the needs of specialized populations, and
  • consider best practices in recommending innovative changes to improve program access and service delivery;
• established an External Expert Advisory Panel for the overall performance of the Employment Program of British Columbia (EPBC) to
  • recommend enhancements to EPBC policy to improve outcomes for job seekers in British Columbia,
  • identify potential gaps in service and emerging trends, including those related to new populations, and
  • engage in initiatives that complement the annual priorities of the EPBC;
• measured outcomes against specific performance criteria; and
• developed a new service delivery model, integrated B.C. employment programming and introduced a new case management system.

10.5 Delivery Model

The EPBC was launched in April 2012. It is administered by the Employment and Labour Market Services Division of the Ministry of Social Development. Third-party service providers deliver the EPBC through WorkBC Employment Services Centres (WorkBC ESCs) in 73 locations. WorkBC ESCs give all job seekers equitable access to program services; operate the EPBC in accordance with policies and procedures to provide a consistent client experience and service quality; and tailor service delivery to specific needs.

11.1 Employment Benefits

The number of Employment Benefits interventions delivered in N.W.T. declined for the third consecutive year, down 19.0%. SD-R (-34.8%) and SD-A (-12.2%) declined for a second year, while SE and TWS remained almost unchanged in volume. SD-A participation declined in part because employers paid the wages of apprentices while they were on training. Total Employment Benefits expenditures fell significantly to $1.4 million (-23.1%).

11.2 Support Measures: EAS

In 2012/13, the Northwest Territories delivered a total of 892 (+2.9%) EAS interventions—mainly Individual Counselling. EAS expenditures totalled $932,000, a significant year-over-year increase of 8.1%.

11.3 Other Support Measures: LMPs

Expenditures for LMPs increased for a second year, reaching $345,000 in 2012/13 (+32.7%), as the number of LMP initiatives doubled compared with the figure in 2011/12. LMP expenditures represented 13.0% of the territory’s total expenditures for EBSM-similar programming compared with only 9.0% in 2011/12. The increase in LMP expenditures could be attributed to greater support for the coordination of Regional Training Partnership Committees to develop strategic training plans addressing community employment needs. In addition, the Department of Education, Culture and Employment (ECE) provided support to promote programs and services for trades and the mining industry.

11.4 Managing for Results

Key findings from the Northwest Territories summative evaluation highlighted a need to ensure the success of the client case management approach; address concerns about the adequacy of financial support; identify clients’ multiple employment barriers and next steps; and address high staff turnover rates that led to uneven front-line service. In response to these findings, the territory:

• reviewed levels of financial assistance, and examined financial and other barriers to participation;
• provided additional training for front-line staff to address the impact of high turnover rates;
• implemented a range of flexible labour market programming, including literacy and community-based programs to address varied client needs; and
• explored ways to strategically tie LMPs to long-term labour force development plans, while responding to short-term local labour market needs.

11.5 Delivery Model

The ECE provides employment services through a combination of six ECE Service Centres and third-party service providers (community and Aboriginal organizations). The majority of employment services are delivered through ECE Service Centres, while third-party providers work mainly in rural areas and as small satellite providers, under the umbrella of the Northwest Territories government. Employment officers assist residents with career development needs and work in partnership with community leaders, organizations and governments. N.W.T. partnered with some Aboriginal organizations and governments to provide coordinated services. These organizations also receive funding directly from the Government of Canada to deliver employment services.

12.1 Employment Benefits

Employment Benefits interventions delivered in Yukon increased by 27.3% year over year to a 10-year high of 266. All Employment Benefits activities increased in 2012/13. SD-A (+31.0%) and SD-R (+12.5%) both rose significantly. Additionally, SD-A participation reached a 10-year high, as the territory targeted the demand for skilled trades. Expenditures for Employment Benefits totalled $2.1 million.

12.2 Support Measures: EAS

Yukon delivered 613 EAS interventions in 2012/13, an increase of 18.3% year over year. Yukon’s labour force comprises individuals with significant professional skills requiring little assistance beyond the labour exchange services delivered under EAS interventions. Employment Services made up 99.5% of all EAS, and total EAS expenditures remained stable at $1.2 million.

12.3 Other Support Measures: LMPs

Yukon’s total expenditures for LMPs fell to $108,000 in 2012/13 (-40.7%). This figure accounted for a lower share (3.1%) of total EBSM expenditures compared with 5.1% last year.

12.4 Managing for Results

Key findings from Yukon’s summative evaluation recommended the territory increase employer awareness of LMDA programs and address weaknesses in the client case management required to administer data and evaluate programming. To address these findings, Yukon:

• improved the labour market information available to clients;
• engaged stakeholders in developing a new approach to raising awareness of LMDA programs and services;
• enhanced the quality of skills development to better facilitate workforce mobility, and increase the participation of underrepresented groups and immigrants in the workforce, to meet labour market requirements;
• implemented a new case management system (Genie) to enhance administrative and data collection systems and processes; and
• reviewed programming to ensure program design and delivery is evidence based.

12.5 Delivery Model

Yukon’s EBSM-similar programming is delivered mainly by EAS providers (community and non-governmental organizations). The Department of Education is working to fully integrate labour market programming by implementing Genie to unify the case management and program delivery model across all programs. The department is also streamlining EAS in Whitehorse by using a new service model with fewer providers and less duplication of administrative costs.

13.1 Employment Benefits

The number of Employment Benefits interventions delivered in Nunavut rose by 25.7% to 176. TWS increased significantly (+62.9%) and accounted for a growing share (32.4%) of total benefits, up from 23.5% in 2003/04. This reflected the territory’s focus on making its Training on the Job (TOJ) program more accessible to employers, particularly employers who hire apprentices. SD-R also increased (+17.7%), but its share fell significantly to 41.5% from 60.6% in 2003/04. Conversely, the share of SD-A (26.1%) was almost double its 14.2% share in 2003/04, despite a year-over-year decline. Combined, SD continued to account for the majority of Employment Benefits (67.6%). The observed shifts in benefits interventions could be attributed to changes in the implementation timelines of major industrial projects in 2012/13, including the activation of sub-contractors and human resources activities in the North Baffin Region. Employment Benefits expenditures totalled $1.5 million (-2.2%).

13.2 Support Measures: EAS

For the second consecutive year, EAS interventions increased significantly. Employment Services, the sole EAS intervention reported in 2012/13, rose 74.9% (+128) to 299. The significant increase in EAS interventions resulted from greater use of EAS as the gateway to all programs.

13.3 Other Support Measures: LMPs and R&I

Nunavut invested in LMP initiatives for the first time since 2005/06. The territory launched a pilot project with Baffinland Iron Mines Corporation, as well as with the regional Aboriginal Skills and Employment Training Strategy (ASETS) holder, Kakivak Association to assist in capacity-building and in addressing challenges of a cross-cultural work environment in three North Baffin communities. LMP expenditures totalled $143,000 and represented 8.6% of the territory’s 2012/13 total EBSM expenditures.

13.4 Managing for Results

Key findings from Nunavut’s summative evaluation highlighted a number of areas for further improvements. Recommendations included addressing the underutilization of program funds, the high cost per participant and the inadequacy of administrative data systems, and minimizing overlap between the programs delivered under the LMDA and the ASETS. In response to these findings, the territory integrated a range of flexible labour market programming to address client needs. It is also implementing a new case management system to improve data collection and reporting.

13.5 Delivery Model

The Department of Family Services, established in April 2013, delivers the full range of EBSM-similar programming through the offices of Career and Early Childhood Services. Nunavut harmonized programs and services around clients’ needs and streamlined funding across several programs. To ensure all clients received EAS, the territory initiated new partnerships with a number of organizations, such as Kakivak and Kitikmeot Inuit associations, the Department of Education and the Nunavut Francophone Society. The territory also implemented a new case management system.

2.1 Skills Development (SD)

Active claimants had higher employment earnings, were more likely to be employed and had lower use of EI after participating in SD.

Due to the very large number of active claimants participating in SD, the analysis was limited to a random sample of 50% of active claimants who started their participation between 2002 and 2005. This represented 64,283 individuals across Canada. The results show that participation in SD increased the employment earnings of active claimants. In particular, active claimants had incremental increases in earnings in each year following participation, and the size of the increases grew continuously over each of the five years, going from $204 in the first year to $4,059 in the fifth year post-program. This means that during the five years following participation, the annual employment earnings of active claimants were $204 to $4,059 higher than they would have been if the active claimants had not participated. In total, over the five post-program years, active claimants each earned $13,156 more than they would have if they had not participated.

The incidence of employment of active claimants also increased in each year following participation. As with earnings, the size of the impacts on incidence of employment grew continuously over the five-year period, going from 2.4 percentage points during the first year to 4.4 percentage points in the fifth year. This shows that active claimants were more likely to be employed after participating in SD than they would have been if they had not participated. As well, since the increases in incidence of employment were accompanied by increases in earnings, active claimants appear to have also improved the duration of their employment.

SD also reduced the use of EI for active claimants. The average annual amount of EI benefits collected decreased in all years after participation, but the size of the decrease tended to diminish over time, going from $470 in the first year to $69 in the fifth year. In total, over the five years following the end of participation, the active claimants collected $976 less in EI benefits than they would have if they had not participated. Such decreases were accompanied by small reductions in the number of weeks in receipt of EI benefits, ranging from 1.7 weeks in the first year after participation to 0.3 week in the fifth year. The total reduction after five years was 3.7 weeks.

2.2 Targeted Wage Subsidies (TWS)

Active claimants had higher earnings and incidence of employment after participating in TWS. Their use of EI increased modestly after participation, but mainly in the fourth and fifth years after program end.

The 18,767 active claimants covered by the analysis had increases in their employment earnings in each of the five years following their participation in TWS, and the size of the impact grew steadily over time. Specifically, they had incremental gains in their average annual earnings ranging from $661 to $1,930. In total, over the five years after their participation, their earnings were $7,125 higher than they would have been if the active claimants had not participated. Active claimants were also more likely to be employed after participating in TWS. They had annual incremental increases in their incidence of employment ranging from 4.9 to 5.1 percentage points in each of the five years after participation. Since the increases in earnings were accompanied by an increase in incidence of employment, this suggests that active claimants increased the duration of their employment.

Participation in TWS may not have had any impacts on the use of EI benefits in the first three years after program end. The results are not statistically significant but point to very small decreases or increases representing almost no impact. Such a trend is somewhat confirmed by the results pertaining to the number of weeks in receipt of EI benefits, which increased only slightly during those years (i.e., by 0.3 to 0.5 weeks). The average annual amount of EI benefits collected by active claimants increased by $104 in the fourth year after participation and by $146 in the fifth year, while the average number of weeks spent on EI increased by 0.4 and 0.5 weeks during those years, respectively. In total, over the five years after participation, active claimants increased their use of EI benefits by $339 and the number of weeks in receipt of EI benefits by 2.1 weeks.

2.3 Self-Employment (SE)

The incremental impact results only provide partial evidence of the effectiveness of SE.

Impacts of SE on participants’ earnings were measured using employment and self-employment information available from taxation records of the Canada Revenue Agency. Impacts were assessed based on the personal employment/self-employment income of participants and comparison cases. The results do not necessarily capture the full business income and do not account for all the fiscal advantages that are applicable to self-employed individuals. A study from Statistics Canada showed that self-employed individuals in Canada have a lower average annual income than paid employees ($46,200 versus $52,400 in 2009), but the average net worth of their households is 2.7 times that of the households of paid employees, which indicates that some may leave funds within their business for reinvestment purposes. ^{Footnote 18} This suggests that personal income may not be a complete indicator of the financial well-being of self-employed people, and a more complete assessment of SE effectiveness would need to account for the net worth of their households and business income.

The focus of the evaluation is on assessing whether the assistance provided under SE is effective at providing participants with sustainable employment; it does not take into account the success of the participants’ businesses. However, the ability of participants to generate sustainable employment for themselves also depends largely on how successful their business is.

Active claimants had lower earnings, incidence of employment and use of EI after their participation in SE.

The analysis covered 20,688 active claimants who received SE. These participants had lower earnings after participating in SE than they would have if they had not participated. The incremental decrease ranged from $11,041 in the first year post-participation to $6,870 in the fifth year, but the size of the impact declined continuously over the years. In total, employment/self-employment earnings decreased by $43,066 over the post-program period. Active claimants also had incremental decreases in their incidence of employment/self-employment ranging from 21.9 percentage points in the first year after participation to 12.3 percentage points in the fifth year. As happened with earnings, the size of the decreases diminished continuously over time.

Active claimants collected less in EI benefits and spent less time on EI after participating in SE. The average annual amount of EI benefits collected decreased by $1,304 in the first year after participation and by $712 in the fifth year, while the number of weeks in receipt of EI benefits was reduced by 4.0 to 1.9 weeks in those same years, respectively. For both indicators, the size of the decrease diminished steadily over the period. The decreases totalled $4,635 and 13.4 weeks over the post-program period. However, such reductions in the use of EI should be interpreted carefully, since self-employment was not insurable under EI during the period covered by the analysis (i.e., 2002 to 2005). The impact results may reflect EI eligibility effects rather than program effects.

2.4 Job Creation Partnerships (JCP)

Active claimants had higher employment earnings and incidence of employment after participating in JCP. Their use of EI also decreased.

Incremental impacts were measured for 5,055 active claimants. After these claimants participated in JCP, their employment earnings grew steadily in size. The annual gains in earnings ranged between $1,899 in the first year after participation and $4,409 in the fifth year. The incremental gain over the post-program period totalled $16,552. Along with those increases in earnings, active claimants were also more likely to be employed, as their incidence of employment increased by 5.5 to 6.3 percentage points in each of the five years after participation. The simultaneous increases in earnings and in incidence of employment indicate that active claimants improved their employment duration after participating in JCP.

The amount of EI benefits collected and the number of weeks in receipt of EI benefits decreased in all years after participation, but only the results for the first two years were statistically significant. The incremental decreases were $549 and 1.6 weeks in the first year, and $220 and 0.5 week in the second year. Over the five years following participation, active claimants reduced their use of EI benefits by $893 and the number of weeks in receipt of EI by 2.1 weeks.

2.5 Employment Assistance Services (EAS)

Active claimants who received only EAS improved their employment and reduced their use of EI after participation. Their employment earnings decreased in the first two years following program end but increased in the following three years.

EAS are often delivered in combination with Employment Benefits, but some participants may receive only one or more services under EAS without accessing other EBSMs. The incremental impacts were examined for the active claimants who participated only in EAS (referred to as EAS-only). Due to the very large number of active claimants participating in EAS-only, the analysis was limited to a random sample of 10% of active claimants who started their participation between 2002 and 2005. This represented 38,564 individuals across Canada.

Active claimants had incremental decreases of $1,097 and $279 in their employment earnings in the first and second year following the end of participation. Their earnings started to increase in the third year following participation, but only the results for the fourth and fifth years—gains of $645 and $742, respectively—were statistically significant at the 95% level. The total impact over the post-program period was a small increase in earnings, but the result was not statistically significant.

Active claimants had incremental increases in their incidence of employment ranging between 0.8 and 1.8 percentage points in the second to fifth years after participation. The result for the first year was not statistically significant at the 95% level but still represented an increase in incidence of employment.

The use of EI decreased in all years after participation. The incremental decreases in the average annual amount of EI benefits collected ranged between $451 in the first year post-program and $136 in the fifth year. Active claimants also had decreases in the number of weeks in receipt of EI benefits ranging between 1.5 weeks in the first year post-program and 0.4 week in the fifth year. For both indicators, the size of the reduction diminished steadily over the period. In total, over the five years following the end of participation, the average amount of EI benefits collected decreased by $1,375, while the number of weeks in receipt of EI benefits decreased by 4.3 weeks.

Overall, the increases in incidence of employment and the decreases in EI use indicate that active claimants found employment following their participation in EAS-only. The results also suggest that the employment was sustained over time, since the impacts were maintained over the five years after participation and were accompanied by gains in earnings, starting in the third year post-program. The objective of EAS is to help individuals return to work by providing services such as counselling, job-finding clubs and help in preparing for an interview. Since these services are not focused on human capital development or acquisition of employment-related skills, the primary expected outcome may not relate to improving the earnings of participants in the short term.

3.1 Skills Development (SD)

Former claimants improved their earnings and incidence of employment but generally increased their use of EI benefits after participating in SD.

Impacts were examined for 42,513 former claimants who participated in SD. As with active claimants, the results show that these individuals improved their employment earnings after participation. Specifically, they had incremental gains in earnings in every year after participation and the size of the impacts grew steadily over time. The increases grew from $496 in the first year after participation to $2,521 in the fifth year. In total, over the five years following the end of their participation, former claimants earned $8,923 more than they would have if they had participated only in EAS.

Their earnings gains were accompanied by increases in incidence of employment in each of the five years after participation, which suggests that former claimants improved the duration of their employment. Incidence of employment rose by 3 percentage points in the first year after participation and by 5 percentage points in each of the four following years. Such increases indicate that former claimants were more likely to be employed after participating in SD than they would have been if they had only received EAS.

In the first year following the end of participation, former claimants reduced the average annual amount of EI benefits collected by $54 but increased their use of EI benefits in all other years. Those increases ranged between $171 and $217 annually. Not surprisingly, the number of weeks spent on EI decreased modestly by 0.4 weeks in the first year after participation and increased by 0.4 to 0.6 weeks in the remaining years. In total, over the five years following participation, former claimants increased the average amount of EI benefits collected by $720 and the number of weeks in receipt of EI benefits by 1.5 weeks.

3.2 Targeted Wage Subsidies (TWS)

TWS increased the employment earnings and incidence of employment of former claimants. These participants increased their use of EI after participation, which suggests that some may have gone back onto EI after their subsidized employment ended.

The analysis covered 24,523 former claimants. Like active claimants, these participants increased their earnings and incidence of employment in each of the five years following participation in TWS. The annual increases in earnings ranged between $1,850 and $2,180. This resulted in a total gain of $10,353 over the five years following the end of participation. Such increases in earnings were accompanied by annual increases in incidence of employment ranging between 5.5 and 6.9 percentage points.

Their use of EI increased in all years following participation, but the size of the impacts decreased steadily over time. The increases in the average annual amount of EI benefits collected ranged between $679 in the first year following participation and $296 in the fifth year, while the increases in the number of weeks in receipt of EI benefits ranged between 2.4 weeks in the first year and 0.7 week in the fifth year. In total, over the five years following participation, the amount of EI benefits former claimants collected increased by $2,220, while the number of weeks in receipt of EI benefits increased by 7.1 weeks. Since the subsidized employment provided under TWS is insurable under EI, those results may indicate that some participants may have gone back onto EI after their subsidized job ended.

3.3 Self-Employment (SE)

Like active claimants, former claimants saw reductions in earnings, incidence of employment and use of EI following their participation in SE.

Incremental impacts were examined for 8,882 former claimants. As with active claimants, the incremental impacts for former claimants provide a partial picture of the effectiveness of SE for these participants. The results show that former claimants saw decreases in their employment/self-employment earnings in each year after participation, but the size of the decreases diminished continuously over time, from $7,121 in the first year to $4,506 in the fifth year. In total, over the five years following the end of participation, former claimants earned $27,939 less from employment or self-employment than they would have if they had not participated. They also saw reductions in their incidence of employment/self-employment ranging from 18.4 percentage points in the first year post-program to 9.8 percentage points in the fifth year.

Former claimants also saw reductions in the annual average amount of EI benefits collected ranging between $344 and $736 after participation. Similarly, the decreases in the number of weeks in receipt of EI benefits ranged between 2.4 weeks in the first year after participation and 0.9 week in the fifth year. In total, over the five years following participation in SE, former claimants reduced their use of EI by $2,341 and 6.8 weeks. As with active claimants, those results should be interpreted carefully, since self-employed individuals were not entitled to EI during the period covered by the analysis.

3.4 Job Creation Partnerships (JCP)

Former claimants increased their earnings and incidence of employment, but also increased their EI use, after participating in JCP.

Incremental impacts were examined for 5,013 former claimants who participated in JCP. According to the results, these participants improved their employment earnings in each year following participation. On an annual basis, they had incremental gains in earnings ranging between $821 and $1,151. These totalled $4,790 over the five years following participation. At the same time, their incidence of employment rose in each year after their participation. The annual incremental increases ranged between 3.8 and 4.9 percentage points. Along with the earnings increases, this suggests that former claimants improved their employment duration in the post-program period.

The participants saw small and statistically non-significant increases in their use of EI benefits and weeks in the first year after program end. Statistically significant increases occurred for both indicators in the remaining years of the post-program period. Those ranged between $144 and $284 in EI benefits collected and between 0.5 and 1 week. In total, over the five years following participation, former claimants increased their use of EI benefits by $1,006 and 3.3 weeks.

4.1 Skills Development

SD increased the earnings and incidence of employment of both active and former claimants. Active claimants also saw small reductions in their use of EI after participation. The positive impacts of SD on earnings and employment may be explained by its focus on helping participants obtain credentials. Specifically, survey results from the first cycle of LMDA evaluations showed that most SD participants obtained a certificate or diploma as a result of their participation. ^{Footnote 19} As reported in a study from the Organisation for Economic Co-operation and Development (OECD), such credentials may signal participants’ productivity to prospective employers. ^{Footnote 20}

Overall, the incremental impacts are consistent with those revealed in studies from other OECD countries, which show that public training programs have positive labour market impacts on the employment and earnings of adult participants. ^{Footnote 21} Interestingly, a meta-analysis of 97 micro-econometric evaluations of active labour market policies in various countries reported that classroom and on-the-job training programs were more likely to yield better outcomes 12 to 24 months after participation than they were in the shorter term. ^{Footnote 22} This is somewhat in line with the analysis of SD, which showed that the increases in earnings and incidence of employment of active and former claimants grew steadily over the five years following participation.

4.2 Targeted Wage Subsidies

TWS increased the earnings and incidence of employment of both active and former claimants. EI use rose among former claimants following their participation, while it may not have changed among active claimants in the first three years after program end and then risen in the following years. These findings are consistent with studies of wage subsidies in other OECD countries, which generally indicate that participation in such programs results in modest gains in employment. ^{Footnote 23}

Of all the Employment Benefits, TWS has led to the best impacts for former claimants. This suggests that individuals who have had substantial periods out of the labour force may be gaining the most from this type of programming, since the temporary subsidy reduces employers’ costs of getting them “up to speed” in their jobs. ^{Footnote 24}

4.3 Self-Employment

Active and former claimants who participated in SE saw reductions in earnings and incidence of employment, as well as reductions in EI use. However, those results just provide a partial picture of the effectiveness of this EBSM, since the analysis did not account for the net worth of the self-employed household and the success of the business created. A detailed study of SE will be conducted in the second cycle of LMDA evaluations to generate a more complete assessment of its effectiveness.

4.4 Job Creation Partnerships

The incremental impact analysis showed that both active and former claimants improved their earnings and their incidence of employment after participating in JCP. A similar trend was observed for active claimants, but not for former claimants, in the 2012 analysis. Overall, the results may appear a little surprising, since the first cycle of LMDA evaluations did not allow ESDC to draw any clear conclusions about the effectiveness of JCP and often showed mixed impacts. As well, the literature generally showed that public service employment programming similar to JCP is relatively ineffective or has the least favourable impacts of all active labour market programs. ^{Footnote 25} This illustrates the need to examine JCP more closely to better understand the characteristics of its participants in comparison to those of participants in other EBSMs, and to better understand how this Employment Benefit is designed and delivered. A more detailed study of JCP will be undertaken as part of the second cycle of LMDA evaluations.

4.5 Employment Assistance Services

Active claimants who received only EAS improved their incidence of employment and reduced their use of EI after participation. Their employment earnings decreased in the first two years following program end but increased between the third and fifth years. These findings reflect general trends identified in studies in other countries, which usually found that employment services similar to EAS could have positive impacts. ^{Footnote 26}

• * Statistically significant results at the 95% confidence level or higher.

2.1 Sectoral Initiatives

In Ottawa on July 6, 2011, ESDC announced the implementation of a new approach to addressing skills shortages by developing better labour market information for employers and job seekers to support more informed human resources, job and learning decisions.

To support this new approach, ESDC refocused the Sector Council Program (SCP) into a new program, launched in March 2013, called the Sectoral Initiatives Program (SIP), based on competitive processes that are open to national partnership-based organizations.

The objectives of the new program are to foster skills matches and improve labour market efficiency by improving the generation and use of labour market intelligence, national occupational standards and certification/accreditation regimes for strategically important economic sectors.

SIP activities receive funding from both the CRF and EI Part II. Activities supported via these funding sources fall under the authority of the SIP terms and conditions, and the EI Part II LMP support measure, respectively. In 2012/13, those EI-funded projects that fell under the authority of LMP were referred to as Sectoral Partnerships Initiative (SPI) projects.

In 2012/13, there were SPI project activities for two different types of organizations: sector councils and skills tables. EI Part II expenditures under SPI agreements totalled $30.9 million.

2.2 Skilled Trades and Apprenticeship, and the Red Seal Program

Apprenticeships are essential to building a highly skilled and mobile trades workforce that supports Canadian competitiveness. The Interprovincial Standards Red Seal Program is Canada’s standard of excellence for training and certification in the skilled trades, and provides a vehicle to promote harmonization. Recognized in the Agreement on Internal Trade (Chapter 7), the program is a well-established means of developing common interprovincial standards for trades. In most P/Ts, the Red Seal examination is used as the certification exam for Red Seal trades.

The Red Seal Program: The Numbers

According to Statistics Canada, 339,675 apprentices were registered at the end of 2011, an increase of 3.8% compared with 2010. Of that total, 264,447 apprentices (or almost 80%) were in Red Seal trades. A total of 41,163 apprentices completed their program in 2011, representing a significant 14.3% increase over the previous year and a 124% increase since 2000. Of those apprentices who finished in 2011, 31,305 completed a Red Seal trade, representing 76.1% of all completions and an increase of 6.4% since the previous year. In 2011, women accounted for 14% of all registered apprentices.

The Red Seal Program and Pan-Canadian Research

Pan-Canadian Research on the Value-Added of Apprenticeship Completion

ESDC has been involved in a collaborative research project with jurisdictions across Canada exploring the value-added of apprenticeship completion versus alternative pathways into the trades. Preliminary results provide evidence that completing an apprenticeship program leads to better labour market outcomes with significant earnings premiums in many trades.

Under this program, experienced tradespeople and apprentices who have completed their training may challenge the interprovincial Red Seal examination. If successful, they receive a Red Seal endorsement on their provincial or territorial certificate of qualification. The Red Seal endorsement is widely recognized and respected by industry as a standard of excellence for the skilled trades. Each year, more than 40,000 completing apprentices and qualified uncertified tradespeople from across Canada write Red Seal examinations, and almost 25,000 Red Seals are issued. These figures have steadily increased over the past decade. Apprenticeship is closely tied to economic and labour market conditions.

The Canadian Council of Directors of Apprenticeship (CCDA), comprising the apprenticeship authorities from each P/T and representatives from ESDC, administers the Red Seal program. In addition to functioning as the national secretariat—providing administrative, operational and strategic support—ESDC provides significant funding for the Red Seal program.

The Red Seal program currently covers 55 skilled trades, which encompass approximately 80% of registered apprentices. ^{Footnote 28} ESDC works closely with industry experts and apprenticeship authorities to coordinate the development of high-quality Red Seal products, including National Occupational Analyses (NOAs) and interprovincial examinations. These products are updated periodically to reflect evolving labour market needs. Because each P/T needs standards and examinations to certify thousands of apprentices and trade qualifiers each year, the collaboration involved in developing interprovincial Red Seal standards and examinations results in significant economies of scale for governments.

A key function of the Red Seal Program is to develop interprovincial standards for the trades, which allow for consistent assessment against common standards across Canada. The program also encourages the harmonization of apprenticeship training outcomes through interprovincial program guides (IPGs), which P/Ts use to inform the in-school portion of apprenticeship programs. Red Seal product development service standards ensure that all Red Seal products are up to date and reflect the current skills and knowledge of the trades workforce. In 2012/13, new exam banks were developed for 14 trades, and 11 new NOA standards and three IPGs were published.

To ensure that the Red Seal Program responds to evolving labour market needs, the CCDA has developed its Strategic Directions 2013–16, with input from stakeholders. The four new strategic priorities are enhancing Red Seal standards and assessment; promoting the harmonization of inter-jurisdictional processes and requirements for skilled trades training, certification and standards; increasing awareness of the Red Seal program as a competitive advantage and assurance of quality; and increasing the engagement and participation of partners and stakeholders in the program.

Through the CCDA’s Strengthening the Red Seal (SRS) initiative, work is underway to enhance the occupational standards model while maintaining the rigour of the Red Seal program. The CCDA consulted with industry stakeholders and completed short-term activities between October 2011 and March 2013. These included researching an optimal standards format and development process; analyzing the costs of Red Seal product development processes; and studying the feasibility of implementing a multiple assessment framework for the Red Seal Program. Medium-term goals of the initiative include piloting an enhanced occupational standards model that could allow for the development of additional forms of assessment (such as practical tests) in addition to the current Red Seal examination. This will help to ensure that skilled tradespeople have a fair opportunity to demonstrate competency, while maintaining a rigorous assessment process. The model and format for standards will be piloted for two Red Seal trades: construction electrician and steamfitter/pipefitter. Planning activities are underway for these pilots, with development workshops scheduled to take place in the fall of 2013. Development activities and outcomes will be monitored and evaluated in order to adjust the model and standards format and make improvements.

Through the CCDA, work is also underway with P/Ts to develop more streamlined and consistent approaches and tools for assessing and recognizing the qualifications of internationally trained workers so that they can more easily become certified in Red Seal trades.

In Economic Action Plan 2013, the Government of Canada announced new measures to support apprentices. To further reduce barriers to accreditation in the skilled trades in Canada and increase opportunities for apprentices, the federal government will work with P/Ts, through the CCDA, to better harmonize apprenticeship training and certification requirements across Canada. Greater harmonization of requirements will help to ensure that more apprentices complete their training; foster the mobility of apprentices across the country; and reduce recruitment barriers for employers. This federal commitment builds on work already underway with P/Ts through the CCDA and re-enforced by the CCDA’s strategic priorities for 2013–16.

In 2012/13, the CCDA approved a communications strategy, including promotional and collateral products developed for the Red Seal program with ESDC funding.

The Apprenticeship Incentive Grant, the Apprenticeship Completion Grant and the Apprenticeship Job Creation Tax Credit for employers are tied to designated Red Seal trades to promote interprovincial mobility and national standards.

2.3 Youth Awareness

The national Youth Awareness program provides financial assistance for projects designed to address community labour market issues. Through job fairs and promotional events, this program aims to raise awareness among employers and communities of the fact that young people are the labour force of the future. In 2012/13, program priorities included raising awareness of skilled trades and technologies among youth, and improving opportunities for youth in small rural communities. Delivered at the national, regional and local levels, Youth Awareness leverages funds from many sources, including P/Ts. In 2012/13, Youth Awareness expenditures supported 145 projects totalling $8.3 million; half of this money funded skills competitions organized by Skills/Compétences Canada.

Pan-Canadian Programming in Action:

Youth Awareness

In organizing skills competitions, Skills/Compétences Canada (a non-governmental organization) and its regional counterparts work in partnership with local organizations, educators and governments to make skilled trade occupations more visible to youth, teachers, students, parents and the general public. The philosophy of the skills competitions is to recognize students for excellence, to directly involve industry in evaluating student performance, to keep training relevant to employers’ needs and to promote the skilled trades.

The 2012 Skills Canada National Competition was held in Edmonton, Alberta, in May. More than 500 competitors from across Canada took part in more than 40 trades and technologies contest areas. In total, about 20,000 visitors attended the event. Industry, government, business and education worked in partnership to profile the valuable career opportunities in trades and technologies, as well as to provide information about the educational requirements of and supports for these occupations.

2.4 National Occupation Classification (NOC)

The National Occupational Classification (NOC) is Canada’s occupational standard information infrastructure. It specifies and describes 500 distinct occupations according to skill type and skill level, detailing educational requirements, job functions and titles. The NOC provides students, workers, employers, human resources specialists and others with a common and consistent understanding of the entire range of occupational activity in Canada.

The NOC is revised every five years in conjunction with Census and National Household Survey cycles, in order to reflect the dynamic nature of the labour market. During transitions, people may use the two most recent versions of the NOC for reference. Accordingly, ESDC maintains two current NOC sites: the NOC 2006 and the NOC 2011.

In 2012/13, the NOC 2006 website had more than 850,000 visits from almost 600,000 unique visitors, while the NOC 2011 website had more than 3,650,000 visits from almost 2,000,000 unique visitors.

Following the major revision to the NOC 2006, for the release in January 2015 of the NOC 2011, related tools and infrastructure required updates. Work is proceeding on the Skills and Knowledge Module, which employers use to post advertisements on the Job Bank site, and on the Skills Checklist, which job seekers use to search for jobs on the Job Bank site.

Work has already begun with Statistics Canada on revisions to the NOC for the next release in 2016.

2.5 National Essential Skills Initiative (NESI)

• What are the Benefits of
  
  Investing in Essential Skills?

  • Increased Productivity
  • Enhanced Workplace
  • Efficiencies
  • Increased Competitiveness
  • More Vibrant and
  • Engaged Workforce
  • Better Workplace
  • Health and Safety
  • Better Team Performance
  • More Highly Skilled
  • Workforce

The main priority of the National Essential Skills Initiative (NESI) is to contribute to the increased literacy and essential skills of adult Canadians in support of the Government of Canada’s commitment to building a highly skilled, adaptable and competitive workforce.

Literacy and Essential Skills (LES) programming contributes to productivity and economic competitiveness. ^{Footnote 29} NESI supports the further understanding of the links between LES and economic competitiveness by responding to significant knowledge gaps—specifically, by identifying new ways in which upgrading can help people prepare for or keep employment, be productive participants in the labour market, and demonstrate return on investment for employers.

The Office of Literacy and Essential Skills (OLES) has used NESI funding for large demonstration projects that facilitate the integration of literacy and essential skills into job preparation and workplace training. Project funding contributes to systemic change by building the capacity of actors within Canada’s adult learning system to improve the skills and economic outcomes of Canadians. Through these projects since 2010, OLES has collaborated with more than 3,923 employers and industry stakeholders, 400 training providers, and 27 post-secondary institutions. Beneficiaries of these projects, all of whom have received LES training, include 1,200 Aboriginal people, 7,102 older workers, 80 training providers, and 3,030 workers and job seekers. ^{Footnote 30}

In January 2012, OLES launched a call for concepts for R&I projects using a mix of CRF and EI Part II funding, in connection with an expanded research strategy, to address knowledge and research gaps in the area of adult literacy and essential skills. OLES approved 11 of 42 submissions.

Social Innovation

OLES Is a Key Federal Program to Test Social Finance Models

OLES is advancing two pilots to test social finance approaches in support of the Government of Canada’s agenda. The pilots will test the effectiveness of performance-based models supported by social finance in increasing the literacy and essential skills of Canadians with low skills. The following pilots will reach 2,600 low-skilled workers in multiple jurisdictions across the country.

• One pilot will test mechanisms for rewarding organizations that deliver pay-for-performance agreements that bring about desired social results (e.g., skills development, job readiness, participation in further training and job attachment).
• Another pilot will test elements of a social impact bond model, and new ways of generating employer and private investments to improve labour market outcomes for Canadians. This pilot will include three projects.
  • The first will test new incentives for employers to invest in training workers and will examine how a return-on-investment model could result in better outcomes for both employers and workers.
  • The second will test models under which private investors will provide the upfront capital to fund programs to help unemployed people develop the skills they need to better connect to available jobs. In this model, investors can expect to get back their principal investment and a financial return if results are achieved.
  • The third will examine the market viability of social finance models, and optimal conditions that will help these models improve the literacy and essential skills of Canadians.

2.6 Reducing Barriers to Labour Mobility

Pan-Canadian Programming in Action: Reducing Barriers to Labour Market Mobility

Regulatory authorities for psychologists worked together to review options for harmonizing assessment processes for applicants seeking registration as psychologists across Canada. To reduce barriers to labour mobility, they explored options for national standards to evaluate substantial equivalence to Canadian standards of education, training and experience.

The Labour Mobility Initiative supports activities and strategies aimed at reducing or eliminating barriers to mobility. This initiative supports efforts to help workers in regulated professions and the trades, including internationally trained individuals, to work in their occupation anywhere in Canada.

In 2012/13, $1.4 million was spent under this initiative. Sustained federal investments, along with technical expertise, help regulatory authorities and professional associations develop common standards and processes to improve labour mobility, as set out in the amended Chapter 7 (Labour Mobility) of the Agreement on Internal Trade.

In 2012/13, federal funding supported consultation regarding harmonized assessment processes across regulated occupations, as well as research into regulatory pathways and common tools for regulated occupations, such as national exams. Funding also helped regulatory authorities develop national scope-of-practice documents and performance indicators to inform educational curricula and national examinations, thereby further enhancing mobility across jurisdictions.

2.7 Research Project: Financial Assistance to Internationally Trained Workers

In 2012/13, the Foreign Credential Recognition (FCR) Loans pilot project entered the second of its three years. The pilot provides financial assistance to internationally trained individuals undertaking FCR activities, including Canadians who obtained their education abroad. As a research pilot, it is designed to create a strong base of evidence regarding the financial barriers that internationally trained individuals face, including a lack of financial support while undertaking FCR activities. The project also measures the willingness and capacity of community-based partners, financial institutions and governments to work together to provide financial support to internationally trained individuals. These findings will help determine whether there is an appropriate permanent role for the federal government in providing financial assistance to internationally trained individuals.

By the spring of 2013, a total of nine pilot sites had been established in nine provinces. By March 31, 2013, pilot sites had approved more than 500 loans to internationally trained individuals. In 2012/13, expenditures for the FCR Loans pilot totalled $9.4 million.

The Social Research and Demonstration Corporation has been contracted to coordinate the research and evaluation component of the pilot. A preliminary report on pilot results is expected in the summer of 2013, with a final project report to be released in early 2015.

3.1 LMDA Systems Connectivity

Under the LMDAs, Canada and P/Ts exchange client information required for the delivery of EBSM-similar programming. This includes personal information on clients’ eligibility for EI and their referral to P/T benefit-based interventions; administrative data related to performance measurement and results; and data used to monitor, assess and evaluate P/T programs. Most of this information is shared electronically in a secure environment. P/Ts access systems provided by the Government of Canada (e.g., the Employment Insurance Business Information System) and exchange data with Canada via various support tools.

3.2 LMDA IT Systems Modernization

Modernizing the EI program to respond to evolving economic conditions requires strengthening the links between passive and active employment measures. That, in turn, requires improving the coordination of federally delivered EI Part I benefits (income support) with P/T delivered EI Part II programs and services (e.g., training and wage subsidies), and enhancing information-sharing between the two areas.

Increased and systematic collaboration between EI Part I (federal) and Part II (P/Ts) is critical in the years ahead to help Canadians return to work quickly; address skills gaps; reduce dependency on EI and social assistance; and strengthen governments’ fiscal capacity.

To support this collaboration, ESDC has initiated a two-year project to modernize its LMDA systems platform, including a web portal, a data warehouse, and new enquiries and reporting modules. This project will help the federal and P/T governments work more closely together to move unemployed Canadians back into the workforce more quickly and improve clients’ employability to fill skills gaps.

4.1 Research: What Works in Career Development Services

In June 2011, ESDC issued a call for concept papers for multidisciplinary research to measure the results of career development services (CDS). This research will examine the factors affecting career development activities aimed at improving the employment situation of people facing obstacles to integrating into the labour market.

In 2012/13, expenditures for this research program totalled $1.3 million. The Canadian Career Development Foundation conducted two projects: Common Indicators: Transforming the Culture of Evaluation in Career and Employment Services; and Assessing the Impact of Career Information and Career Development Services Across Employability Dimensions. The Social Research and Demonstration Corporation is conducting the third project, The Motivational Interviewing Pilot Project: Advancing Career Development Services for Income Assistance Clients. This project will be completed in March 2014.

To date, the research program has done the following:

• identified pathways for
  • measuring client progress in a meaningful way,
  • connecting interventions with changes in skills, knowledge and personal attributes, and
  • connecting these changes with successful labour market outcomes;
• highlighted the critical role of evidence in the planning and improvement of career and employment services;
• shown that, while longitudinal data (following clients over time) is important, basic data collection across all provinces and territories is even more important, so policy makers should aim for standardized data collection; and
• demonstrated that the use and measurement of common indicators across different service settings could contribute significantly over time to helping find out what works and for whom.

Other key findings so far include the following:

• Self-help guides provided after a thorough needs assessment and orientation can be an effective first line of intervention. They allow practitioners to focus valuable time on clients who really need it. They may also give clients a useful perspective on online career services.
• In New Brunswick and Saskatchewan, data show that the quality of the “working alliance” between practitioners and clients is correlated with return-to-work results. In Quebec, qualitative analyses of focus groups led to the conclusion that monitoring progress indicators, including those related to the working alliance, can help practitioners develop their intervention skills. Both findings support the importance of progress indicators in transforming the culture of evaluation, as they are not only related to the effectiveness of the intervention (results from New Brunswick and Saskatchewan) but they also promote the development of practitioners’ skills (Quebec results).

As an addendum to this research project, a two-day symposium designed to connect research to practice was held March 13–14, 2013. It included thought-provoking speakers setting context, research panels reporting results, provincial/territorial panels presenting innovations, and working groups. The focus was on practical applications of the research to direct services, particularly services for youth and adults with few skills and/or weak labour market attachment. The main conclusion from the working groups was that we need a national Career Development Strategy to permit sharing of research results across the country, as well as a forum for sharing promising provincial/territorial service innovations.

5.1 Job Bank

In partnership with P/Ts, ESDC maintains this electronic labour exchange, which fosters efficient and inclusive labour markets by connecting job seekers and employers. Job Bank provides access to job listings as well as specialized online tools, such as Job Match, Résumé Builder and Career Navigator. In addition, the site provides visitors with basic information on how to acquire the skills needed to pursue their chosen career.

In 2012/13, Job Bank hosted more than 69 million visits, representing more than 23 million unique visitors, and provided access to more than 1 million job postings. During the same fiscal period, more than 270,000 new job seekers registered accounts (to access Résumé Builder, Job Match and Career Navigator services). As of March 31, 2013, more than 128,000 employers had used Job Bank for Employers (the job order-taking service) in the previous 18 months. Employers used the Job Match tool 4,777 times to find suitable candidates and job seekers used it 76,720 times to find jobs corresponding to their skills.

In 2012/13, the top five occupational groups advertised on Job Bank were service clerks, truck drivers, labourers in manufacturing and utilities, retail salespersons and sales clerks, and food counter attendants. These five groups accounted for 26.0% of all jobs advertised.

For more information on Job Bank, please visit Job Bank Canada.

5.2 Working in Canada

Working in Canada (WiC) is the Government of Canada’s single integrated web site for the dissemination of LMI resources. WiC provides visitors with access to job opportunities, as well as occupational and career information, a skill and knowledge checklist, and an educational program search resource.

WiC leverages job market information from 30 sources, including Job Bank and private sector job boards, and can generate more than 32,000 unique LMI reports based on a client’s occupation and location. WiC reports provide targeted, comprehensive information on job postings, wage rates, employment trends and outlooks, licensing and certification requirements, job skills, and relevant educational and training programs for occupations at the regional, provincial and national levels. Additionally, in an effort to further connect Canadians with available jobs, the Enhanced Job Alerts service was launched on WiC in January 2013. In its first three months, it sent more than 2 million job alerts to 37,463 subscribers.

In 2012/13, more than 9 million job search queries were conducted on WiC and 4.5 million WiC reports were generated.

For more information on WiC, please visit Working in Canada.