RESEARCH REPORT

KEY FINDINGS
Labor Market and Professional Capacities and
Needs of Persons in Conflict with the Law

Tbilisi, Georgia
2017
The research has been conducted by the Applied Research Company (ARC) within the frame-
work of the project Training and Employment Support Initiative in Criminal Justice Sector (TESI)
implemented by local non-governmental organization Civil Development Agency (CiDA) with the
support of the European Union as well as in partnership with the Georgian Farmers Association
and the Institute for International Cooperation of the German Adult Education Association (DVV
International).

The research team would like to express its gratitude to the representatives of the following
government agencies: the Penitentiary Department of the Ministry of Corrections of Georgia; the
National Probation Agency and the Center for Crime Prevention under the Ministry of Justice of
Georgia for the assistance rendered in the process of collecting necessary information.

This publication has been prepared with the support of the European Union. The views
expressed are those of the Civil Development Agency (CiDA) and do not necessarily represent
the views of the European Union.
CONTENTS

Introduction 4
Research Goal and Tasks 5
Structure of research report 5
Methodology 6
Research Tools 6
Methodological limitations of the research 7
Selection of research participants and statistics 7
Key findings of the research 10
INTRODUCTION
The preparation of this research report was made possible within the framework of the project
Training and Employment Support Initiative in Criminal Justice Sector (TESI) implemented by
local non-governmental organization CiDA with the support of the European Union as well as in
partnership with the Georgian Farmers Association and the Institute for International Coopera-
tion of the German Adult Education Association (DVV International). The project aims to improve
professional training and employment opportunities for persons in conflict with the law and their
families through the involvement of the government, private sector and civil society.

Mixed methods research combining both quantitative and qualitative approaches was planned
and implemented within the framework of the project in two directions:

Labor market research

Employment opportunities and needs assessment of the project’s target group – persons with a
conditional sentence, current and ex-convicts, as well as diverted persons.

Desk research method was also used additionally to describe the situation on labor market and
to further consolidate the results received through using the quantitative method of research.
The quantitative research was conducted in Tbilisi and nine regions of Georgia (Kvemo Kartli,
Samtskhe-Javakheti, Kakheti, Imereti, Samegrelo, Adjara, Guria, Shida Kartli and Racha). Project
beneficiaries, among them current and ex-convicts, persons with a conditional sentence, as well
as diverted persons participated in the research. Convicts and persons with a conditional
sentence also got involved in the focus groups held in frames of the qualitative research. A total
of 291 persons in conflict with the law participated in the research. Moreover, considering the
research purposes, in-depth interviews were conducted with the representatives of rehabilita-
tion programs implemented by the National Probation Agency.

The research was conducted in a period from April 2017 through September 2017. Field works for
both the quantitative and qualitative research were conducted in the penitentiary facilities, local
probation bureaus and the Center for Crime Prevention.

115 representatives of business organizations and employees of local self-government bodies of

four regions participated in the labor market research.

The research directions and used methodologies enable to complement the obtained informa-
tion, to further consolidate it and portray an objective reality.

4
RESEARCH GOAL AND TASKS
The purpose of market research and analyzing professional capacities and needs of the project’s
target group (convicts, ex-convicts, diverted persons, as well as persons with a conditional
sentence) was to determine the existing employment opportunities, on the one hand, and to
analyze the beneficiaries’ educational and professional level, on the other. Considering the goals
of the research, it sets the following tasks:

Market research:
To identify in-demand professions on the market;
To reveal the requirements and expectations of potential employers;
To analyze employment opportunities for the project beneficiaries.

Researching professional capacities and needs of project

beneficiaries
To identify professional skills and needs of persons with a conditional sentence, convicts,
ex-convicts and diverted persons;
To define the compliance of educational and professional capacities with market require-
ments;
To reveal formal and informal educational needs in the target group.

STRUCTURE OF RESEARCH REPORT

The research results are provided according to the research issues. The document consists of
five thematic chapters, which, in turn, involve the subchapters interesting for the research.

1. Research methodology – involves information about used tools, sampling methods, research
principles and limitations.

2. Key research findings – provided on the basis of the data obtained through researching labor
market and beneficiaries’ professional capacities and needs.

3. Results of researching the beneficiaries’ professional needs and capacities – provide quanti-
tative and qualitative research analysis on the beneficiaries’ education, employment and
needs.

4. Situation analysis of market research – unites the information about in-demand professions,
expectations of potential employers and attitudes towards the project’s target group.

5. Desk research results - involve the results of already conducted research aimed at studying
labor market.

5
METHODOLOGY
Labor market was researched in parallel with professional capacities and needs of beneficiaries.
Both quantitative (interviews) and qualitative (focus groups, face-to-face interviews) methods
were used as the research tool. A desk research was conducted additionally to describe the
situation existing on labor market.

Research Tools
A structured questionnaire was developed as a tool for researching the target group’s profes-
sional capacities and needs. It was filled using the method of face-to-face interviews. The
questionnaire consisted of four main (42 questions) and one classifying/demographic blocs (10
questions. 1-1.5 hours were allocated as an average time for an interview.

The questionnaire developed by the research team was sent to the Ministry of Corrections, as
well as the Justice Ministry’s Center for Crime Prevention for their feedback. The recommen-
dations received from the government agencies were reflected in the research tool that
enables practical use of the results achieved.

Qualitative research envisaged conducting focus groups with convicts in the penitentiary facili-
ties as well as with persons with a conditional sentence at the probation bureaus (focus group
was not conducted with ex-convicts due to their low motivation to participate). The focus
group was conducted on the basis of a predetermined textbook. This method specified the
information received during the quantitative research, thus enabling its further consolidation
and expansion.

Quantitative method of research was used to research business organizations. An electronic

questionnaire was prepared in SurveyMonkey software. A representative of the research group
contacted top management of business organizations, acquainting them with research tasks
and sending the link of an electronic questionnaire. In some cases, through telephone conver-
sation and upon the request of a business organization, a researcher was himself/herself filling
in an electronic questionnaire.

Ethical principles of conducting research: The research was based on a number of ethical prin-
ciples, among them voluntary participation of respondents, trust and observing confidentiality.
Considering the specific nature of the group of respondents, before conducting an interview,
an interviewer and a respondent used to conclude an agreement, filling in a form of informed
consent about participation in the research. In case of juvenile respondents, an interview was
conducted only after obtaining a written consent from the latter’s parent/legal representative.

6
 Methodological limitations of the research
The conducted research has the following methodological limitations:

• Both quantitative and qualitative research was conducted with the participation of those
convicts placed in the penitentiary facilities, whose terms of imprisonment will expire in a period
from six months to one year. The penitentiary facilities and respondents were not chosen
randomly. Considering the specific nature of the system, prisons No.5 and No.16 were selected
as target facilities. The administration of the penitentiary facility ensured convicts’ participation
in the interview. Therefore, it is not correct to generalize the results received on the basis of their
answers to all persons placed in the penitentiary facility.

• The research conducted with ex-convicts, persons with a conditional sentence and diverted
persons has similar limitations. Mostly the respondents involved in the rehabilitation and reso-
cialization program participated in the interview. Thus, they may have higher motivation towards
education and employment compared to the persons not involved in the program. Therefore, it is
not expedient to generalize the results of their interviews to all current and ex-convicts, proba-
tioners and diverted persons.

The above limitations do not impede generalizing the results to that group of convicts, ex-con-
victs, probationers and diverted persons, who represent the project’s target audience.

Selection of research participants and statistics

The qualitative research method envisaged interviewing the project beneficiaries using relevant
questionnaires and according to target groups. The sample size was defined on the basis of
those statistical data, which were provided by the Justice Ministry’s Center for Crime Preven-
tion; the National Probation Agency and the Penitentiary Department of the Ministry of Correc-
tions. The sample size was determined at 300 respondents. Considering the specific nature of
the group, response percentage was 87%; 291 respondents participated in the quantitative
research. Three focus groups were conducted with the participation of beneficiaries. 30 benefi-
ciaries got involved in the focus groups among them 10 probationers and 20 convicts placed in
penitentiary facilities. Face-to-face interviews were conducted with 261 respondents. Distribu-
tion by groups is provided on chart No.1.

7
Chart No. 1. Target groups participating in the research

Number of respondents by status

150

130

110
111
90

70

50 68
60
30

10 22

-10
Inmate Former Probationer Diverted
Inmate

Interviews with beneficiaries were held in Tbilisi and eight regions of Georgia.

Chart No. 2. Research area

Distribution of respondents by regions

13% Tbilisi
Adjara
5% 28%
Shida Kartli
Kvemo Kartli
14% Kakheti
Samtskhe-Javakheti
Imereti
4% 12%
Guria
7%
10%
Samegrelo
7%

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The sex ratio of participants of the quantitative research was 84% of males against 16% of
females.

Average age of the research participants was 35 years. The following age groups were
outlined for research analysis: 14-24, 25-34, 35-44, 45-54 and 55-60 years. Percentage ratio by
age is provided on chart No. 3:
Chart 3. Age distribution

Persentage distribution of respondents by Age

100 %

80

60

40

20 27.6 29.9
19.9
15.3 7.3
0
14-24 25-34 35-44 45-54 55-60

To research labor market, three types of data were used as the sampling frame: the 2016 data-
base of operating organizations; the database of organizations generated by ARC; the data-
base of members of CiDA’s corporate social responsibility club. After summarizing the data,
200 organizations were selected through simple random sampling for conducting interviews
with them. Ultimately, 115 business organizations participated in the research with a response
rate reaching 57%. Representatives of local self-governments from four regions also partici-
pated in the quantitative research of employers/potential employers (Public Healthcare Center;
Municipality Water Supply Company; Local History Museum; Culture, Club, Library and
Museum Association, etc.).
Chart 4. Distribution of participants by spheres

%
Consulting business 4.3
Social and personal service 13
Healthcare and aid 13
Education 7.0
Real estate 2.6
Financial activities 6.1
Transport, communication 4.3
Hotels and restaurant services 5.2
Trade, repairs 7.0
Construction 7.0
Gas, electricity and water supplies 3.5
Processing industry 8.7
Fishing/fish-breeding 0.9
Fruit and vegetable processing 3.5
Agriculture, forestry, hunting 13.9
0 2 4 6 8 10 12 14 16

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 Key findings of the research
The key findings of the research are based on the issues identified during the research of labor
market, as well as beneficiaries’ professional capacities and needs.

1. Previous conviction as a hindrance to employment and maintaining a job: A person with

previous conviction is unlikely to achieve labor rehabilitation. If before conviction/inclusion in
a diversion program, the rate of unemployment among respondents aged 21 and above was
26.9%, after receiving the status of conviction, the number of unemployed persons among them
increased almost twice amounting to 45.6%. Previous conviction affects a person’s chances
when applying for this or that position. It was revealed that before conviction, 18% of
employed respondents held managerial positions. Presently, only 9.5% of them hold similar
positions.

2. Low level of public and employer trust: The society is unlikely to trust persons with criminal
record and tries not to enter into labor relations with them. The beneficiaries name mistrust
as the main factor determining their unemployment. Similar results were received after inter-
viewing the employers. It appears that compared to other groups (people with disabilities,
ethnic minority representatives, religious minority representatives), employers are less eager
to offer jobs to ex-convicts, probationers or diverted persons. The employers’ attitude towards
the persons in conflict with the law is largely determined not only by their previous experience
with them, but also by stereotypical views, because those employers (7% of respondents) who
had labor relations with these groups are more loyal than those, who had no experience of
similar cooperation.

3. Incompliance of professional skills and qualification with employers’ requirements: Accord-

ing to the quantitative research results, 26.1% of respondents have no profession at all. 14.7%
of respondents name lack of profession/craftsmanship as the reasons behind their unemploy-
ment. Similar results were received after interviewing the employers, where qualification of
persons in conflict with the law takes the second place among the reasons1. About one fifth
of the employers refuse to enter into labor relations with them just for that reason. It should
also be noted that those employers, who had previous labor relations with this group, are
stricter in assessing the issue of qualification. In particular, 25% of respondents refrain from
establishing future cooperation with ex-convicts, probationers and diverted persons just
because of their low qualification.

The research reveals that employment rates are largely determined by beneficiaries’ qualifica-
tion level rather than by the fact whether a job seeker has any profession or craftsmanship.
According to the employment rates, respondents with particular profession/craftsmanship do
not significantly differ from those without any profession. Thus, low qualification of persons
in conflict with the law represents an objective reason for unemployment that is further aggra-
vated by public mistrust and stereotypical attitude.

1
The main reason why employers refrain from offering jobs to beneficiaries is just the latter’s previous conviction.

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4. Subjective factors of beneficiaries’ unemployment: The quantitative research has revealed
that the beneficiaries overestimate their employment opportunities. Moreover, convicts placed
in the penitentiary facilities overestimate their employment opportunities more than others.
46.3% of respondents suppose that they will be able to return to their previous jobs after release
from prison and/or serving their sentences/completion of the diversion agreement. It should be
noted that the beneficiaries who have undergone any educational and/or professional training
courses have higher expectations. The qualitative research results show that initiators and
developers of professional education courses create positive career expectations for convicts.
This makes convicts and probationers optimistic and increases their employment motivation;
however, created expectations actually differ from the objective reality existing on labor market.

5. Unemployment as the cause of repeated offence: According to the results of the quantitative
research, 67.8% of beneficiaries had an employment experience before conviction/involvement
in the diversion program. Since almost one half of them lost jobs following conviction, it had
negative effects on their families’ economic situation. 60% of respondents said that monthly
incomes of their families were reduced. Just therefore, the interviewed beneficiaries named
unemployment as the reason behind committing repeated crimes. Those convicts, who have
committed repeated crimes, said that they failed to find jobs (22%) or economic situation (19%)
prompted them to commit a crime. It is in positive correlation with employment.

6. Jobs deficit, misbalance between labor market demand and supply: According to the results
of the quantitative research, 30.2% of respondents name jobs deficit as one of the reasons
behind unemployment. The results of the research conducted with employers show that labor
market faces the lack of qualified staff rather than jobs deficit. A great part of employers (86.3%)
faced a problem of finding relevant staff quite recently and most of them (69.9%) cited lack of
qualified employees on labor market as the reason. Thus, it has been revealed that there is a
demand for the staff of certain profession on labor market, but the qualification of available staff
is not enough to fulfill a job.

7. Agriculture, as a developing sphere in terms of employment: 48.5% of interviewed organiza-

tions suppose that agriculture will develop within the following 3-4 years, namely in the direc-
tion of market-gardening, vine-growing and cattle-breeding. According to the research results,
in the next couple of years, business organizations will need the staff equipped with special
skills in the following professions: veterinary, soil science, plant-growing, fruit-growing,
cattle-breeding, apiculture, etc.

8. Readiness of business organizations to cooperate with vocational education programs: One

half of interviewed business organizations are ready to get involved in the process of staff train-
ing and offer internship to the graduates of vocational schools. At the same time, besides readi-
ness, they would like to see that the process is stimulated by the state, mainly through imposing
tax privileges (46%), when it comes to training certain groups, such as ex-convicts and proba-
tioners. A total of 55% of respondents believe that the companies should enjoy various tax privi-
leges that will enable them to offer more internships to the representatives of various groups.

11
9. Attitude towards vocational and rehabilitation programs: The beneficiaries positively evalu-
ate all those programs that work in the direction of labor and social rehabilitation within and
outside the penitentiary facilities. They have information about positive examples and are
ready to attend trainings repeatedly. Along with raising their qualification and developing their
skills, the motivation is largely driven by receiving positive character reference letters from the
administration of a penitentiary facility that, as they suppose, will help them in premature
release. In case of probationers, simplifying the procedures of their appearance in the Proba-
tion Office has been named as a motivation.

10. Vocational training courses and employment opportunities: The beneficiaries’ needs and
interests have revealed that 48.7% of respondents are willing to undergo short-term (up to six
months) courses to study various crafts as well as to gain experience in the above mentioned
agricultural fields. The demand is high for the latter, according to the research conducted with
employers. If necessary conditions are created to train beneficiaries so that they meet employ-
ers’ requirements, it will be a step ahead towards their employment. These results confirm
the opinion that if we enable the beneficiaries to raise their qualification or acquire in-demand
professions, their employment/self-employment opportunities will increase.

11. Priority employment spheres for beneficiaries: Several priority spheres of employment were
revealed during the research. Private business takes the lead: 30% of respondents said they
would like to get jobs at the companies; 39.6% said they would like to start small businesses.
13.5% of respondents were in favor of developing their own farms. 27.5% of respondents name
agriculture as the greatest employment opportunity with 11.9% giving preference to
cattle-breeding2.

12. Employer requirements: The research has revealed that to hire a candidate, he/she should
have such skills, along with professional skills, which are acquired through informal education,
among them effective communication skills, computer skills, foreign language command, busi-
ness correspondence skills, own presentation and entrepreneurial skills. According to both,
quantitative and qualitative research, the beneficiaries believe that improving such skills will
help increase their employment opportunities.

2
A classifier of professions was offered during an interview.

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