Proposal for a structured cooperation between Public Employment Services (PES) and the education sector for better school-to-work transitions : position paper.
Date: 2018-04-18
Institutions: Directorate-General for Employment, Social Affairs and Inclusion
Subjects: EU employment policy, education policy, employment service, public service, school-working life relations

POSITION PAPER

PROPOSAL FOR A STRUCTURED 
COOPERATION BETWEEN PUBLIC 
EMPLOYMENT SERVICES (PES) AND 
THE EDUCATION SECTOR FOR BETTER 
SCHOOL-TO-WORK TRANSITIONS

European Network  
of Public Employment Services 

DECEMBER 2017

Employment,Social Affairsand InclusionEurope Direct is a service to help you find answers 
to your questions about the European Union.

Freephone number (*):
00 800 6 7 8 9 10 11

(*) The information given is free, as are most calls  
(though some operators, phone boxes or hotels may charge you).

More information on the European Union is available on the internet (http://europa.eu).

Luxembourg: Publications Office of the European Union, 2017

ISBN 978-92-79-77117-0

doi:10.2767/411759

© European Union, 2017

Reproduction is authorised provided the source is acknowledged.

Cover picture: © European Union

The European Network of Public Employment Services was created following a Decision of the European Parliament and Council in June 20141. 
Its objective is to reinforce PES capacity, effectiveness and efficiency. This activity has been developed within the work programme of the 
European PES Network. For further information: http://ec.europa.eu/social/PESNetwork.

This activity has received financial support from the European Union Programme for Employment and Social Innovation "EaSI" (2014-2020). 
For further information please consult: http://ec.europa.eu/social/easi
 1. DECISION No 573/2014/EU

LEGAL NOTICE

This document has been prepared for the European Commission however it reflects the views only of the authors, and the Commission 
cannot be held responsible for any use which may be made of the information contained therein.

POSITION PAPER

PROPOSAL FOR A STRUCTURED 
COOPERATION BETWEEN PUBLIC 
EMPLOYMENT SERVICES (PES) AND 
THE EDUCATION SECTOR FOR BETTER 
SCHOOL-TO-WORK TRANSITIONS

European Network  
of Public Employment Services 

DECEMBER 2017

 
CONTENTS

RATIONALE 

1. 

INSTITUTIONAL SETTINGS, COOPERATION WITH THE EDUCATION SECTOR AND OTHER 
PARTNER INSTITUTIONS  

1.1  Description of the current status  

1.2  What we think should happen  

1.3  Offers of the PES  

1.4  Recommendations for PES and the education sector  

2.  EVIDENCED-BASED AND UP-TO-DATE CAREER INFORMATION AND MATERIALS  

2.1  Description of the current status  

2.2  What we think should happen  

2.3  Offers of the PES  

2.4  Recommendations for PES and the education sector  

3.  CAREER GUIDANCE AND PERSONAL COUNSELLING  

3.1  Description of the current status  

3.2  What we think should happen   

3.3  Offer of PES   

3.4  Recommendations for PES and the education sector   

4.  PLACEMENT OF,  

AND ADDITIONAL SUPPORT FOR, YOUNG PEOPLE  

4.1  Description of the current status  

4.2  What we think should happen   

4.3  Offers of the PES   

4.4  Recommendations for PES and the education sector    

5.  SUPPORTING EDUCATIONAL PLANNING WITH RELEVANT LABOUR MARKET INFORMATION  

5.1  Description of the current status  

5.2  What we think should happen 

5.3  Offers of the PES 

5.4  Recommendations for PES and the education sector 

5

6

6

6

6

6

7

7

7

7

7

8

8

8

8

8

9

9

9

9

9

10

10

10

10

10

RATIONALE

5

Despite recent progress at European and national 
level, youth unemployment, underemployment and 
inactivity remain, and are set to continue to be, one 
of the most pressing challenges in the European 
labour market. Of all the contributing factors for 
these issues, school-to-work transitions for those 
aged under 25 are the most crucial transitions at 
the beginning phase of the career path. Moving 
from  school  to  work  for  the  very  first  time  is  
a brand new experience for the young person and 
for their family, and often for their employer.

Our reasoning behind the proposal is based on our 
understanding of individuals’ needs and our per-
spective of the best offer that public institutions 
can provide. It is also meant to nourish a reflection 
among PES of how we can work better together 
with education providers to enhance the existing 
service offers with our own knowledge, expertise 
and resources. That being said, we have examined 
the education system from a process perspective 
and how we as PES can add value to each step of 
that process.

Education systems provide foundational skills for 
adulthood, active citizenship and lifelong learning. 
The importance of these skills for successful and 
sustainable advancement in life is well established. 
In vocational and higher education, professional 
skills for jobs are acquired. Skills, attitudes and val-
ues that were developed in the education system 
need to be practiced and further advanced in work-
places later on. 

Individuals also need career management skills1. 
Timely acquisition of these skills can lead to fun-
damental and long-lasting impacts, which can act 
as a springboard to future career steps. Therefore, 
effective  approaches  to  support  individuals  to 
manage their own career path at the earliest pos-
sible  opportunity  in  the  education  system  are 
essential. Individuals spend a considerable amount 
of time in the education system, and this is a very 
important period for the development of career 
management skills. 

The Public Employment Services (PES) in Europe 
have been working in the fields of career transi-
tion management, placement, continuous profes-
sional training, upskilling and reskilling for the past 
six decades. The European Network of PES, which 
was created in 2014, cumulates this professional-
ism at the EU level. In this document, we set out 
our proposal for cooperation with the education 
systems in the EU, including all type of schools and 
learning environments where career guidance and 
career transition management take place.

1  One outcome of career guidance related activities for an 

individual is 'career management skills'. These are defined 
as ‘a range of competences which provide structured ways 
for individuals (and groups) to gather, analyse, synthesise 
and organise self, educational and occupational 
information, as well as the skills to make and implement 
decisions and transitions’ European Lifelong Guidance 
Policy Network (2010). Lifelong Guidance Policies: Work in 
Progress. A report on the work of the European Lifelong 
Guidance Policy Network (2008–10).

The PES, based on the results of a questionnaire, 
offer  support  in  a  variety  of  ways  for  schools, 
pupils, students, families, local communities and 
employers:

 ● Providing career guidance for students and 

families;

 ● Supporting the negotiation process between 
schools and the demand side of the labour 
market;

 ● Supporting teachers and school staff in career 

guidance and career education;

 ● Supporting general and institutional aspects, 
like planning of curricula and training of 
teachers;

 ● Providing validated and up to date career 

information including occupational 
descriptions, learning pathways for specific 
jobs etc.;

 ● Setting up structured cooperation with schools 

and other partners involved in fostering 
school-to-work transitions;

 ● Helping to prevent school dropout as well as 
second chance education (school leaving 
certificates or qualifications);

 ● Providing access to real-time vacancy 

information across the EU;

 ● Providing access to apprenticeships and 

traineeships, and other forms of work-based 
training across the EU.

This paper is structured around the idea that at 
each of these steps we, as PES, described what the 
ideal outcome should be and what offers we can 
make, considering our knowledge and expertise. 
We close each section with recommendations for 
PES  and  the  education  sector  for  progression 
towards shared outcomes.

6

1.  INSTITUTIONAL 

SETTINGS, 
COOPERATION 
WITH THE 
EDUCATION 
SECTOR 
AND OTHER 
PARTNER 
INSTITUTIONS 
1.1  Description of the current status 

Most PES are legally bound to provide career guid-
ance to young people. In most countries, obligatory 
career guidance takes place mainly at school, usu-
ally starting in secondary education (ISCED level 2 
or 32). At primary level (ISCED level 1), very few 
PES have an obligation to offer career guidance. 
The majority of PES offer the services themselves. 
Only a few PES use external providers to deliver 
services on behalf of the PES. In nearly half of the 
countries, the education system does it primarily 
on its own. In some countries, other organisations 
provide the offers. Many PES cooperate with dif-
ferent stakeholders, such as ministries, universi-
ties,  chambers,  national  agencies,  research 
facilities,  NGOs  or  private  companies.  In  many 
countries, PES cooperate with schools on a local 
level (for instance, in relation to school visits or 
career guidance events at the PES). 

1.2  What we think should happen 

In order to secure smooth school-to-work transi-
tions,  there  should  be  all  types  of  cooperation 
(preferably formalised) between PES, the educa-
tion sector and other partners at all levels (includ-
ing  non-formal  learning  settings).  Institutional 
arrangements  at  various  business  and  political  
levels are recommended.

1.3  Offers of the PES 

PES know about the regional and national labour 
market  and  the  demand  for  current  and  future 
labour  market  needs  in  regard  to  occupations, 
qualifications,  skills  and  competences.  PES  can 
offer a role as a conductor because of their typi-
cally good contacts with employers, trade unions, 
governments, municipalities etc. PES have knowl-
edge of:

 ● The labour market and need for skilled 

workers;

 ● The range of vocational training available;
 ● Entry-level jobs, apprenticeships and 

traineeships;

 ● Job requirements;
 ● Competency requirements;
 ● Application strategies and related documents;
 ● Unemployment and employment by 

profession, education and skills levels;

 ● Geographic and regional trends;
 ● Demographic trends such as student 

population.

1.4  Recommendations for PES and 

the education sector 

 ● Review and co-create the national, regional 

and local curricula on career guidance.
 ● Work towards a formalised agreement for 
regular cooperation between PES and 
education.

2 

International Standard Classification of Education (ISCED). 
http://ec.europa.eu/eurostat/statistics-explained/index.
php/International_Standard_Classification_of_Education_
(ISCED)

7

development of occupations and labour markets, 
job opportunities etc.). This also includes informa-
tion on education and training paths, such as gen-
eral and vocational schools, universities, vocational 
training and other lifelong learning opportunities 
and  in-work  transitions.  PES  can  offer  various 
tests, such as interest, attitude and aptitude, for 
self-assessment of professional skills.

The  PES  are  the  experts  for  the  regional  and 
national labour market and they are also aware of 
the forecasted demand for labour and the supply 
of labour (by qualification and occupation), as well 
as  the  predicted  supply  of  training  places  and 
demand for training places (some PES). The PES 
can use this knowledge neutrally when creating 
quality-checked, free of charge and national mate-
rials for career guidance.

2.4  Recommendations for PES and 

the education sector 

 ● Offer access to career guidance through the 
internet, social media, print and in film. 
 ● Appear at career fairs and prepare and 

address the target group in an appropriate 
way to encourage independent discussion of 
the topic.

 ● Provide materials to support counsellors and 
coaches in career guidance lessons and 
workshops.

 ● Offer informational events with parents to 

raise awareness.

 ● Jointly develop materials in collaboration with 

young people and youth organisations.

2.  EVIDENCED-
BASED AND 
UP-TO-DATE 
CAREER 
INFORMATION 
AND MATERIALS 

2.1  Description of the current status 

In most countries, PES play a minor role in career 
guidance in schools. For most types of career infor-
mation services, more than half of the PES only 
cover up to 5 % of the overall offers available. PES 
are more involved in providing information about 
the diversity of professions and support services 
connected to career start.

Within obligatory career guidance, most PES pre-
pare material for use in school. Some PES prepare 
material only for internal use in PES. Some PES 
offer school visits, and around one-third has offers 
for school classes or individuals. Only a few PES 
provide offers for parents, and only half of PES are 
present at careers fairs. The materials provided are 
mainly brochures and online information, though 
some PES also provide films and information on 
social media.

2.2  What we think should happen 

Students,  parents,  teachers  and  counsellors/
coaches should have easy access to evidenced-
based  and  up-to-date  career  information  and 
materials. These materials should be developed in 
cooperation with all partners.

2.3  Offers of the PES 

Career  information  from  PES  includes  standard 
information about career and study fields, courses 
of study and occupations (qualification require-
ments and qualification profiles, tasks and activi-
ties,  employment  opportunities,  income,  career 
paths, career and further education opportunities, 

8

3.  CAREER 

GUIDANCE AND 
PERSONAL 
COUNSELLING 

3.1  Description of the current status 

Nearly all PES which provide voluntary offers are 
present  at  careers  fairs  and  prepare  materials 
(either for use solely in PES or for use in schools). 
Most PES also offer school visits and provide offers 
for school classes or for individuals on their own 
premises. Around a third of PES provide offers for 
parents. Very few PES provide seminars for teach-
ers and trainers of counselling and guidance.

Most PES offer personal counselling in nearly all 
fields  of  career  guidance,  especially  in  general 
information, identification of interest, and aptitude 
and attitude tests. Many PES also offer online tools 
and brochures with general information and spe-
cific  information  on  diversity  of  professions  or 
vocational training and tests. Half of the PES sup-
plements its information offer through films and 
videos. Few PES are engaged in career guidance in 
tertiary education (ISCED level 5 and above).

In more than half of the PES, specially trained per-
sonnel for the provision of these offers exist, but 
only a few PES provide the services through spe-
cialised staff.

3.2  What we think should happen  

Learning career management skills is a process; 
therefore young people in school and their parents 
should have early and ongoing access to career 
guidance and counselling to ensure that transitions 
from education to work are as seamless as possible.

3.3  Offer of PES  

PES know about the regional and national labour 
market and they know the demand for the current 
and future labour market in regard to occupations, 
apprenticeships,  skills  and  competences.  PES 
career counsellors are autonomous and have the 
social and methodological competences that are 
required for career guidance and advisory tasks.

They can support young people and their parents 
to consider the choice of offers for future employ-
ment prospects. The offers of the PES are free of 
charge, universal and, ideally, open to all.

PES have knowledge about the challenges facing 
certain groups in the labour market (e.g. based on 
gender, disability or ethnicity), and this knowledge 
can be mobilised for the further development of 
career guidance.   

Many PES can offer specialist knowledge on trends 
in the labour market, such as digitalisation of the 
working  world  and  the  required  digital  skills  of 
employees.

Some PES can offer expertise to the design of ini-
tial  teacher  training  or  continuous  professional 
development in relation to career guidance.

3.4  Recommendations for PES and 

the education sector  

 ● Support school classes in the form of career 

guidance sessions at PES.

 ● Provide individual counselling for young 

people in the course of their career guidance, 
including vulnerable youth.

 ● Provide specialised experts on career guidance 

and personal counselling.

 ● Include parents in the whole career guidance 

process.

9

4.  PLACEMENT OF,  
AND ADDITIONAL 
SUPPORT FOR, 
YOUNG PEOPLE 

4.1  Description of the current status 

Most  PES  are  not  engaged  intensively  in  initial 
school or work-based vocational training and ter-
tiary education. In the provision of entry-level jobs, 
nearly all PES are involved, and in a few countries 
their share is even 75 % of the overall placement 
services. Furthermore, in a few PES the coverage 
of placements in apprenticeship training and train-
eeships is 50 % or more of the overall available 
services. The main channel used for these services 
is personal counselling. In regard to entry-level 
jobs and apprenticeship training, more than two-
thirds of PES use this channel. 

In regard to young people at risk of dropping out 
from secondary education or training (or those who 
already have dropped out), only a few countries 
have a systematic data exchange at their disposal 
that ensures that every young person is recorded 
and supported. In some countries the school sys-
tem reports those at risk of dropping out to the 
PES, while in all other countries young people have 
to present themselves voluntarily.

Two-thirds  of  PES  explicitly  have  a  'train  first' 
approach rather than a 'work first' approach for 
dealing with those at risk of dropping out of school. 
In most PES, the success of these approaches is 
monitored continuously on an empirical basis. It is 
evenly split between PES that do monitoring them-
selves and those that use data provided by another 
authority.

4.2  What we think should happen  

There should be an effective system that supports 
young people in school-to-work transitions. Core 
data should be exchanged between partners to 
prevent  dropout  from  school,  apprenticeship  or 
higher education. Special attention should be paid 
to young people who need a second chance to com-
plete upper secondary education (ISCED level 4). 

Support may include:

 ● Counselling for reengagement in education or 

work;

 ● Placement in work based learning including 

apprenticeships and traineeships at companies 
or at training providers; 

 ● Support for admission and application 

procedures;

 ● Support and guidance during training for 

individual stability in order to avoid dropout of 
apprenticeship and studies;

 ● Placement of entry-level jobs after the 

completion of an apprenticeship or studies;

 ● Support for geographic mobility;
 ● Needs-based support services before and 

after placement.

Ideally, this should be offered in a one-stop-shop 
model.

4.3  Offers of the PES  

Nearly  all  PES  can  offer  the  services  outlined 
above. PES have long-standing experience in sup-
porting individuals who have dropped out of the 
education  system.  They  can  support  and  assist 
young people during periods of individual turmoil. 
They  have  experience  placing  young  people  into 
entry-level jobs, traineeships and apprenticeships.

4.4  Recommendations for PES and 

the education sector   

 ● Jointly develop an inter-institutional tracking 

and reporting system.

 ● Jointly organise careers and jobs fairs 

with social partners.

 ● Coach and support young people at 

the risk of dropout.

 ● Collaborate to reach out to and support 

vulnerable youth.

 ● Provide easily-accessible offers for young 

people.

 ● Provide information about available 

apprenticeship places and placement 
in such places.

 ● Provide placement of entry-level jobs 

and traineeships.s

 ● Jointly review the services outlined above 
in collaboration with young people and 
youth organisations.

10

5.  SUPPORTING 
EDUCATIONAL 
PLANNING 
WITH RELEVANT 
LABOUR MARKET 
INFORMATION 

5.1  Description of the current status 

Generally, PES have the capacity to provide rele-
vant labour market information at a national and 
regional level. Some PES provide forecasts on eco-
nomic  development  in  general  as  well  as  on 
employment,  unemployment  and  occupational 
changes. However, PES are currently rarely involved 
in educational planning.

5.2  What we think should happen

Relevant  information  about  current  and  future 
labour market developments should be included in 
educational planning, especially the capacity plan-
ning and location of educational institutions.

5.3  Offers of the PES

PES know about the regional and national labour 
market and the current and future labour market 
needs in regard to occupations, qualifications, skills 
and competences. See also 1.3 for the other offers 
of PES regarding labour market data.

5.4  Recommendations for PES and 

the education sector

 ● Make available and publicise detailed labour 

market data, forecasts and research results on 
labour market trends.

 ● Participate in the regional and national 
dialogue about the demand for skilled 
workers.

 ● Participate in the debate of the shape of the 
education and training provider's network.

Please see the PES Knowledge Centre for more information on the services offered by PES and  
for the report of the full survey results: http://ec.europa.eu/social/main.jsp?catId=1163&langId=en

HOW TO OBTAIN EU PUBLICATIONS

• 

Free publications:
 one copy: 
• 
via EU Bookshop (http://bookshop.europa.eu)
more than one copy or posters/maps:
from the European Union’s representations (http://ec.europa.eu/represent_en.htm); 
from the delegations in non-EU countries (http://eeas.europa.eu/delegations/index_en.htm); 
by contacting the Europe Direct service (http://europa.eu/europedirect/index_en.htm) or
calling 00 800 6 7 8 9 10 11 (freephone number from anywhere in the EU) (*).

(*)  The information given is free, as are most calls (though some operators, phone boxes or hotels may charge you).

Priced publications:
• 

via EU Bookshop (http://bookshop.europa.eu).

K
E
-
0
6
-
1
7
-
4
7
9
-
E
N
-
N