ILO Decent Work Country Programmes A Guidebook

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1 ILO Decent Work Country Programmes A Guidebook Version 3

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3 Copyright International Labour Organization 2011 First published 2005 Second edition 2008 Third edition 2011 Publications of the International Labour Office enjoy copyright under Protocol 2 of the Universal Copyright Convention. Nevertheless, short excerpts from them may be reproduced without authorization, on condition that the source is indicated. For rights of reproduction or translation, application should be made to ILO Publications (Rights and Permissions), International Labour Office, CH-1211 Geneva 22, Switzerland, or by The International Labour Office welcomes such applications. Libraries, institutions and other users registered with reproduction rights organizations may make copies in accordance with the licences issued to them for this purpose. Visit to find the reproduction rights organization in your country. ILO Decent Work Country Programmes, A Guidebook, Version 3 Geneva, International Labour Office ISBN (web, pdf) Also available in French: Programmes par pays de promotion du travail décent de l OIT, Manuel, version 3 (ISBN Genève, 2011, in Spanish: Programas de Trabajo Decente por País, de la OIT, Guía práctica, versión 3 (ISBN ), Ginebra, ILO Cataloguing in Publication Data The designations employed in ILO publications, which are in conformity with United Nations practice, and the presentation of material therein do not imply the expression of any opinion whatsoever on the part of the International Labour Office concerning the legal status of any country, area or territory or of its authorities, or concerning the delimitation of its frontiers. The responsibility for opinions expressed in signed articles, studies and other contributions rests solely with their authors, and publication does not constitute an endorsement by the International Labour Office of the opinions expressed in them. Reference to names of firms and commercial products and processes does not imply their endorsement by the International Labour Office, and any failure to mention a particular firm, commercial product or process is not a sign of disapproval. ILO publications and electronic products can be obtained through major booksellers or ILO local offices in many countries, or direct from ILO Publications, International Labour Office, CH-1211 Geneva 22, Switzerland. Catalogues or lists of new publications are available free of charge from the above address, or by Visit our web site: Published in Switzerland ii

4 Preface The ILO introduced time bound and resourced programmes, called Decent Work Country Programmes (DWCP) in They are informed by international development agendas and based on priorities of constituents and national development objectives. They detail the policies, strategies and results required to realize progress, in each country, towards the goal of decent work for all. 1 This guidebook is meant for the use of ILO managers and staff who are involved in the development and implementation of DWCPs. It: explains the rationale and current policy of DWCPs in the ILO; clarifies terminology, responsibilities and procedures with regard to DWCPs; and identifies good practices in relation to DWCPs. The guidebook reflects the larger ILO commitment to results based management (RBM) that is described in detail in the companion RBM guidebook 2. Readers are encouraged to check the RBM guidebook for definitions and examples of many specific RBM terms that are used in this document also. This version of the guidebook is built on the experiences, evaluations and improvements made on various aspects of the DWCP process and related mechanisms. It also provides updated guidance in the context of the current ILO strategic framework of 19 outcomes, among other key developments in recent years. New or updated elements in Version 3 include: policy context: ILO Social Justice Declaration for a Fair Globalization (2008), Global Jobs Pact (GJP) (2009), Strategic Policy Framework (SPF) and the biennial Programme and Budget (P&B); linkage between DWCP and the Outcome based workplans (OBW) which were introduced in 2010; guidance by the Governing Body on the programming of DWCPs and on resource issues, including identification of resource gaps, local resource mobilization, and use of technical cooperation funds; DWCP roles and accountabilities in light of the implementation of the revised field structure; 1 Circular No. 598: A Framework for Implementing the Decent Work Agenda 2 A Guidebook for Applying Results Based Management in the International Labour Organization g2.pdf iii

5 recent examples drawn from DWCPs; templates for results framework, monitoring plan, and implementation plan; DWCP Memorandum of Understanding (MoU); and revised DWCP quality assurance process and tools. Comments and contributions of colleagues in the field and at the headquarters were indispensable in making this version of the guidebook. This version also benefitted from the experiences and feedback obtained through a series of regional workshops conducted throughout 2009, as part of the DWCP/RBM capacity building project funded by the Netherlands Government and by the UK Department for International Development (DFID). Updates and revision of the guidance will continue to be required. Please send your suggestions for further improvements or any comments and questions to: December 2011 iv

6 Table of Contents Preface... ii Abbreviations... vi 1. Introduction Overview: Decent work country programmes a DWCPs: Focusing ILO and partner contributions 2 2.b What DWCPs include 2 2.c DWCPs facilitate policy coherence and resource integration 4 2.d DWCPs are dynamic 5 2.e Are DWCPs always required and national in scope? 5 3. DWCPs in context a DWCPs, the Decent Work Agenda and the ILO approach 7 3.b DWCPs and national policies and development plans 8 3.c DWCPs in Deliverying as One UN 8 4. DWCPs and results based management a Results based management in the ILO 10 4.b Roles and responsibilities for DWCPs Six step cycle of DWCP a Step 1: Defining the country context 15 5.b Step 2: Establishing country programme priorities 16 5.c Step 3: Defining intended outcomes, their measurement and strategy 18 5.d Step 4: Planning for implementation 22 5.e Step 5: Implementation, monitoring and reporting 24 5.f Step 6: Independent evaluation Preparing the DWCP document DWCP communications Appendix A: Additional resources Appendix B: A model form for DWCP MoUs Appendix C: Templates for results framework, monitoring plan and implementation plan Appendix D: Relationship between ILO and UN programming frameworks Appendix E: Quality assurance checklist v

7 Abbreviations ACT/EMP: ACTRAV: CCA: CPE: CP outcome: CP priority: CPR: DCOMM: DWCP: DWT: EVAL: GENDER: GJP: IGDS: ILS: IRIS: JUR: MDG: OBW: PARDEV: P&B: PROGRAM: PRS: RBM: RBSA: RPU: SM/IP: SM/IR: SPF: ITC Turin: UNDAF: Bureau for Employers Activities Bureau for Workers Activities Common Country Assessment Country programme evaluations Decent Work Country Programme outcome Decent Work Country Programme priority Decent Work Country Programme Review Department of Communication and Public Information Decent Work Country Programme Decent Work Technical Support Team Evaluation Unit Bureau for Gender Equality Global Jobs Pact Internal Governance Documents System International Labour Standards Integrated Resource Information System Office of the Legal Advisor UN Millennium Development Goals Outcome based workplans Partnerships and Development Cooperation Department Programme and Budget Bureau of Programming and Management Poverty Reduction Strategy Results based management Regular Budget Supplementary Account Regional Programming Unit Implementation Planning module of the Strategic Management application in IRIS Implementation Reporting module of the Strategic Management application in IRIS Strategic Policy Framework International Training Centre of the ILO in Turin United Nations Development Assistance Framework vi

8 1. Introduction The International Labour Organization (ILO) is devoted to advancing opportunities for women and men to obtain decent and productive work in conditions of freedom, equity, security and human dignity. The Organization continues to pursue its founding mission to promote social justice as a basis for universal and lasting peace, as set out in the Constitution and the Declaration of Philadelphia 3, and as reaffirmed more recently by the ILO Declaration on Social Justice for a Fair Globalization (2008 Declaration) 4. At the country level, the ILO aims to promote these principles through the framework of DWCPs. Furthermore, the Global Jobs Pact (GJP) 5 calls for prioritizing crisis response in DWCPs as part of the ILO action in tackling the worldwide jobs crisis. DWCPs are also ILO governance documents at the country level, which: specify the Office s support to the constituents priority results (Country Programme outcomes or CP outcomes), during a specific time period in a specific country 6 ; are consistent with the ILO commitment to tripartism and social dialogue, draw on consultation with constituents (governments, workers organizations and employers organizations) to help establish Country Programme priorities (CP priorities); are designed and implemented with the engagement of constituents; and provide a vehicle for the Office to manage its collaboration with other UN agencies and partners through UN Development Assistance Frameworks (UNDAFs) that should also engage ILO constituents dgreports/ cabinet/documents/publication/wcms_ pdf 5 ed_norm/ relconf/documents/meetingdocument/wcms_ pdf 6 DWCPs may also be developed to support sub regional or regional outcomes. See Section 2.e. 1

9 2. Overview: Decent work country programmes 2.a DWCPs: Focusing ILO and partner contributions In every member State, the ILO promotes decent work as a national objective and assists constituents to make progress towards achieving that objective. A DWCP is the main instrument for ILO cooperation over a period of four to six years in a specific country. The content of DWCPs varies from country to country based on national circumstances, the ILO s global commitments, including response to the global jobs crisis, and priorities established in the Strategic Policy Framework (SPF), the Programme and Budget (P&B) and the regional decent work agendas/decades. The DWCPs should be focused and prioritized in terms of their CP outcomes and recognize that tripartism, social dialogue, gender equality and international labour standards are central to the planning and implementation of a coherent and integrated ILO programme of assistance to constituents in member States. They are closely aligned with national development strategies, including Poverty Reduction Strategies (PRS) and UNDAFs, where applicable. DWCPs guide the most effective and efficient use of resources both human and financial to generate the greatest possible results, as shown through demonstrable impacts, in pursuit of CP priorities and outcomes. They encourage strategic partnerships, leveraging of resources and resource mobilization. 2.b What DWCPs include While the contents of DWCPs vary from country to country, the process of defining the content is expected to follow the steps that are set out in this guidebook. The orientation of DWCPs is set out in two ILO circulars 7 issued by the Director General in May These circulars will be re issued in the new Internal Governance Document System (IGDS) in due course: Circular No. 598: A Framework for Implementing the Decent Work Agenda Circular No. 599: Decent work country programmes 2

10 Circular No. 599 notes that a country programme exercise: starts with problem analysis and lessons learned in that country 8 ; identifies a limited number of CP priorities 9 in line with national development plans, country programming frameworks such as a Common Country Assessment (CCA) and an UNDAF, the views and priorities of constituents in the country and the ILO s SPF and P&B; sets intended CP outcomes to be achieved; defines an implementation plan with clear outputs, activities and resources, as an internal management tool that is separate from the public DWCP document; and monitors and evaluates performance in order to adjust strategies to better achieve CP outcomes. Revised DWCP quality assurance process A DWCP Quality Assurance Mechanism (QAM) was introduced in early 2007, with a view to improving the quality of DWCPs and to fostering dialogue between the field offices and the headquarters units on their formulation. It comprised a process of appraising draft DWCP documents by regional support groups, established per region; key appraisal elements were specified in a Quality Assurance Framework, and its template was applied by the groups for all the draft DWCP documents submitted. A review of that Quality Assurance Mechanism conducted by PROGRAM revealed a number of lessons for its improvement, mainly addressing the need to: streamline and simplify the overall quality assurance process and supporting tools; strengthen the role of the regions in leading the DWCP quality control process; carry out a quality appraisal in the early process of DWCP formulation; ensure that an RBM approach is taken in formulating DWCPs; and provide greater clarity on roles and responsibilities throughout the process. The revised process consists of three main steps to ensure participation of a wide range of ILO experts from ILO Country and Regional Offices and headquarters. Further details on the threestep process are provided in Chapter 5. Performance of the ILO field structure in ensuring the quality of DWCPs through the revised process is subject to measurement and reporting as reflected in indicator 1.1 in the Office Procedure IGDS No. 198 (version1) of The methodology developed for the GJP Country Scan will be adapted for such analysis to design DWCPs. Guidance on a possible DWCP scan methodology will be provided later, when available. The DWCP guidebook may be amended accordingly. 9 The term CP priority has become the common usage, rather than the term priority areas of cooperation, which is used in the circular. 3

11 2.c DWCPs facilitate policy coherence and resource integration DWCPs are meant to bring about results through better coordinated ILO and constituent efforts that focus on the achievement of well defined CP outcomes for a limited number of CP priorities in a member State through coherent, effective strategies. For this, DWCPs integrate: Actions in different technical areas Constituents seek ILO support to address issues that may require coherent policies and actions in different areas to achieve the intended CP outcomes. For example, eliminating the worst forms of child labour may require measures to create jobs for parents and the strengthening of labour inspectorates. Gender equality can be promoted through vocational training that is equitably accessible, support to women s entrepreneurship, eliminating sex discrimination in social security provisions, or strengthening labour legislation concerning gender related issues. International labour standards, tripartism and social dialogue are integral to ILO responses in all countries. Various means of action The goals of specific DWCPs often combine advocacy and policy advice, capacity building and services, as well as strategic partnerships, direct demonstration projects and research. The appropriate mix differs with different situations. Contributions from field offices and headquarters units DWCPs encourage greater focus on CP outcomes and the strategies designed to help realize them. Country office directors responsible for a particular country can show how the country s DWCP will contribute to the achievement of outcomes in the ILO Programme and Budget (P&B outcomes) during a specific biennium and beyond, and thereby show how headquarters programmes and resources should support the DWCP. A DWCP provides headquarters units with a clearer basis for committing resources. Support from different funding sources ILO activities are increasingly funded from a variety of sources that can be effectively combined in one coherent programme focused on CP priorities and outcomes. The strategic focus of a DWCP and its linkage to a national development plan can provide a compelling argument for additional external resource mobilization at the global and local levels. Identification of priority needs is important for potential RBSA allocations and as a basis for dialogue with donors, especially where clear opportunities to accelerate progress toward CP outcomes exist. DWCPs also facilitate improvement in performance management, in terms of: More accountability Because a DWCP sets clear expected CP outcomes, the performance of managers in achieving those outcomes can be more clearly assessed. More transparent information and use of resources IRIS captures what ILO units/offices are doing with resources to achieve CP outcomes set through DWCPs, facilitating better internal cooperation and synergy. DWCPs may also help in joint resource mobilization for the Office and the constituents. 4

12 Better performance monitoring and reporting Improved understanding of performance should lead to better knowledge of how good results are achieved; this can prove decisive in attracting more resources in a competitive environment. Better information for the Governing Body DWCPs offer greater clarity on the costs of CP outcomes achieved in countries as well as on the strategies used to achieve those outcomes. Compilation and analysis of DWCPs will increasingly be used to inform the P&B process and implementation reporting. Analysis of resource gaps in DWCPs can support resource mobilization. Direct participation of ILO constituents The DWCP process requires employers organizations, workers organizations and governments, to work together to determine and achieve CP priorities and outcomes, as well as to evaluate progress. This underlines the importance of the Office providing the support necessary to build constituents capacity to fulfil their roles. More effective communication and platform for partnerships A DWCP provides an excellent platform from which to communicate to all concerned how the ILO and its tripartite constituents will address decent work deficits and contribute to positive changes in policies or the livelihoods of women and men. This is a key element in fostering strategic partnerships, mainstreaming the Decent Work Agenda into national development agendas, including through PRS and UNDAFs, leveraging resources from other development partners, and mobilizing resources at the global and local levels. Clearly communicating ILO aims and results is also a key contribution to demonstrating the continued relevance of the ILO. 2.d DWCPs are dynamic As noted above, DWCPs reflect the circumstances in which they are developed. For example, the first DWCP for a country may be limited in scope. As that DWCP gains in credibility and makes measurable progress towards intended CP outcomes and as the capacities of constituents increase, it should be possible to expand the scope of later DWCPs to address other dimensions of decent work and to build on progress already made. A specific DWCP should not unduly restrict the ability of the Office to make changes to its own implementation plan due to changes affecting that member State, such as: decisions of the International Labour Conference, the ILO Governing Body or observations issued by the ILO supervisory bodies; significant political or socio economic events that could not have been reasonably foreseen, such as the economic crisis that leads to the global jobs crisis; and the formulation of an UNDAF. 5

13 Political and legal framework for DWCPs Memorandums of Understanding (MoU) are concluded by national tripartite constituents and the ILO to capture high level commitments to the DWCPs. They underline the importance of the DWCP and ensure an adequate framework for implementation. Appendix B provides a model form for such document. In order for the ILO to contribute to the DWCP and provide assistance to its constituents, a suitable legal framework must be in place, which enables the Organization to operate in the country (including on privileges and immunities of the Organization, tax exemption on, for example, VAT and income tax of locally recruited staff, and recognition of the UN Laissez Passer). The Office of the Legal Advisor (JUR) must be consulted at an early stage when preparing for the adoption or renewal of a DWCP, in particular as to the conclusion of an MoU, allowing at least two weeks for the processing of requests. JUR will determine whether any measures are required to ensure adequate protection for the ILO and its officials, and provide advice as to how to secure such an enabling framework. 2.e Are DWCPs always required and national in scope? A DWCP may not be an appropriate framework of ILO cooperation in some countries at a particular time, for a number of reasons such as special political circumstances related to fundamental principles and rights at work, major crises and conflicts, the level of constituent capacity needed for effective DWCP development and implementation, among others. There may be situations where priorities and outcomes can be identified more effectively on a regional or sub regional basis, for example to address issues related to international labour migration or international trafficking of girls and boys for child labour. In such cases, sub regional or regional priorities and outcomes can be defined to complement, but not replace, those that are countryspecific. If appropriate, a DWCP can have elements that are specific to a single economic sector within that country. It can also have elements that are particularly relevant to a specific part of that country (e.g. a single region or State within that country). For instance, in Brazil, the states of Bahía and Mato Grosso have developed each state specific Decent Work Agenda, in line with the National Decent Work Agenda and the corresponding National Plan. 10 ILO contribution to these state specific Decent Work Agenda is identified in the framework of relevant CP outcomes. 10 For more information, please visit: 6

14 3. DWCPs in context 3.a DWCPs, the Decent Work Agenda and the ILO approach Each DWCP should reflect the Decent Work Agenda as reaffirmed in the ILO Declaration on Social Justice for a Fair Globalization. The Declaration, adopted by the International Labour Conference in 2008, articulates the inseparable, interrelated and mutually supportive nature of the four strategic objectives of the Decent Work Agenda. Gender equality and non discrimination must be considered as cross cutting issues within those strategic objectives. Accordingly, DWCPs should use an integrated decent work approach to issues in the world of work. They should be gender responsive and include in the country context section an analysis of the often different needs and concerns of both women and men; based on such analysis, CP outcomes, indicators and strategies should show how these needs and concerns will be addressed. Furthermore, each member State has commitments that arise from its ratified international labour conventions, the 1998 Declaration on Fundamental Principles and Rights at Work, as well as from gaps in the implementation of such obligations and from any observations made by the supervisory bodies. These are to be reflected in the DWCP for that member State. DWCPs and ILO role to promote gender equality in the world of work The Resolution concerning gender equality at the heart of decent work, adopted by the 98 th Session of the International Labour Conference in June 2009, states that the ILO should ensure DWCPs are developed with a gender lens and specify how their intended outcome will affect both women and men. It also stresses that gender equality objectives should be visible in the strategies, indicators and activities of Decent Work Country Programmes 1. The Conclusions of the resolution are aligned with gender related outcomes and indicators of the ILO Programme and Budget, in the ILO Action Plan for Gender Equality Provisional record 13, Gender equality at the heart of decent work (General discussion), Report of the Committee on Gender Equality, 98 th Session of the International Labour Conference (ILC98 PR ), Geneva, See 7

15 3.b DWCPs and national policies and development plans Many countries have developed national development plans or sets of social and economic policies that address issues of relevance to the ILO mandate such as youth employment, vocational training and the promotion of gender equality. Many of those plans now refer to nationally and internationally agreed aims such as Millennium Development Goals (MDGs) and PRS. The priorities in those plans or policies can provide a basis for focus for multilateral and bilateral technical cooperation support. Constituents and the Office need to take these policies and plans into account in defining CP priorities and outcomes. It is often possible to identify where the ILO s comparative advantage can best support the achievement of national goals. 3.c DWCPs in Delivering as One UN UNDAFs are the primary vehicles for better coordinated work of UN agencies in specific countries, as part of UN reform Delivery as One. Where UNDAFs do not yet exist, other vehicles such as MDG Reviews and PRS generally indicate internationally understood priorities for action. Where an UNDAF or similar vehicle already exists, it should be taken into account in developing a DWCP. Efforts should be made to consider how decent work goals can be articulated to reinforce, complement and broaden UNDAF commitments. Crosscutting issues such as gender equality and non discrimination in these vehicles should be noted in the DWCP. Where an UNDAF does not yet exist, the role that the ILO often plays in issues of fundamental principles and rights at work, labour standards, employment, skills, social protection and social dialogue may often make it a lead agency in terms of helping to define goals and follow through with actions in areas of ILO competence. The ILO perspectives on fair globalization, poverty reduction and gender equality should influence the directions of future UNDAFs, particularly in the context of the global jobs crisis. 11,12 11 Toolkit for Mainstreaming Employment and Decent Work Toolkit for Mainstreaming Employment and Decent Work Country Level Application 12 PARDEV website on UN reform: 8

16 ILO activities to build the capacity of workers and employers organizations can position social partners to play a more active role among civil society organizations in UNDAF related processes and other similar development coordination efforts. Furthermore, DWCP processes should lead to a greater voice of tripartite constituents in development planning, especially in national and PRS planning, and UNDAFs. The work of the ILO does not have to align completely with the priorities set out in an UNDAF or similar plans. In particular, the ILO s unique tripartite nature and responsibilities in terms of addressing fundamental principles and rights at work must always figure in DWCPs, even if they are not reflected in an UNDAF or similar instrument. The relationship between DWCPs and other ILO and UN programming frameworks is described in Appendix D. DWCPs and ILO response to the global jobs crisis In the context of the ILO Declaration on Social Justice for a Fair Globalization and the GJP, the ILO knowledge strategy was adopted by the Governing Body at its November session in Three outcomes are defined, including one on strengthened evidence based analysis (Outcome 1). As one of the biennial milestones set under this outcome, DWCPs are to be extended and updated to embody evidence based analysis on crisis response and the Decent Work Agenda, by the end of the biennium. The GJP also calls for prioritising crisis response in DWCPs. In the Arab States region, an Arab Employment Forum 2, held in October 2009, developed an Arab Action Agenda for Employment a regional commitment for the crisis response, to be followed up through DWCPs in each country context. A methodology has been developed to provide an overview of the impact of the crisis in countries and the details on crisis response and recovery policies, using the GJP portfolio as a checklist. This GJP Country Scan methodology 3 is to be adapted for the country context analysis to design DWCPs, and further guidance will be provided in due course. 1 Results based strategies : Knowledge Strategy Strengthening capacity to deliver decent work and the Global Jobs Pact (GB.306/PFA/12/3). 2 For more detail: 3 For more detail: en/docname WCMS_143183/index.htm 9

17 4. DWCPs and results based management 4.a Results based management in the ILO DWCPs take a results based management (RBM) approach, as applied in the ILO 13. They define intended results to be achieved at the country level (i.e. CP outcomes), elaborate strategies to achieve them, and indicate how to measure the achievements. The process requires flexible use of resources and performance monitoring towards the achievement of the identified CP outcomes. It focuses not on what the ILO delivers in terms of products and services, but on changes in the policies and capacities of constituents as defined in CP outcomes which are achieved with support from the ILO and its partners, as well as the constituents themselves. 4.b Roles and responsibilities for DWCPs DWCPs are an Office wide responsibility of all managers and staff. It is the responsibility of all to ensure the success of each and every DWCP. At the same time, specific roles and responsibilities are defined for various management positions, as well as principal functions for different organizational entities in the ILO. 14, 15, 16 Key elements of the roles, responsibilities and principal functions relating to DWCPs are highlighted below: 13 Results based management, as it is used in the ILO, is described in detail in the companion guidebook, A Guidebook for Applying Results Based Management in the International Labour Organization. This guidebook and further information on ILO results based management are available at: 14 Director General s announcement: Enhancing delivery of ILO services to constituents 15 Director General s announcement: Roles and responsibilities of senior managers in the ILO 16 Director General s announcement: Principal functions of headquarters, regional offices, country offices and Decent Work Technical Support Teams 10

18 Country office directors serve as programme managers of ILO activities in the countries under their geographical responsibility. They are responsible for initiating and developing DWCPs and ensure that ILO constituents are provided with high quality, timely, well coordinated and integrated services responsive to their needs and tailored to their realities. Country offices collaborate with ILO constituents to design and implement DWCPs which can lead to visible and measurable results. ILO national coordinators, where available, report to the country office directors covering the country in which they are located. Decent work technical support team (DWT) directors lead and manage teams of technical specialists to provide support, upon request, to assigned country offices in the design and implementation of high quality integrated and relevant DWCPs. Decent work technical support teams (DWT) provide technical support and policy advice to country offices in response to the needs of ILO constituents in the design and implementation of DWCPs which can lead to visible and measurable results. Regional directors articulate the regional dimension of the Office wide strategies set out in the SPF and the approved P&B, ensuring its alignment with, and support for, ILO goals and priorities identified in the DWCPs and UNDAFs of the countries of their regions. Regional offices (Programming services) coordinate programme planning by country offices reflected mainly in DWCPs and directed at the delivery of results within the framework of regional objectives and priorities and linked to overall ILO goals. Headquarters contribute technical advice and resources to the delivery of results as defined in DWCPs and assist the regions, where needed, in monitoring their progress against stated outcomes, indicators, targets and quality standards. Headquarters managers (line managers and outcome coordinators 17 ) are responsible for delivering strategies and global products to achieve outcomes in a biennial P&B framework, at the global, aggregate level, through actions such as networking, knowledge development and sharing, resource 17 Outcome coordinators are designated officials from a lead sector or departments for each P&B outcome. The list of outcome coordinators is available on the Overview page of the Strategic Management/Implementation Planning (SM/IP) module in IRIS. 11

19 mobilization and partnership, in consultation with field offices and other headquarters units. In so doing, they: establish workplans towards the achievement of P&B outcomes, called Outcome based workplans (OBW) 18, particularly to meet the targets set for each indicator, based on the CP outcomes identified as such, and monitor their progress in collaboration with field offices and other headquarters units; contribute technically and financially to the delivery of results as defined in DWCPs in coordination with field offices, and in accordance with the OBW; and coordinate reporting on the ILO s contribution towards the achievement of P&B outcomes and on the specific targets set for each indicator, as informed by results achieved at regional, sub regional and country levels. ACT/EMP, ACTRAV, EVAL, GENDER, PARDEV and PROGRAM play an advisory role in finalizing DWCPs through Quality Assurance Mechanism and provide feedback on draft DWCPs to ensure their conformity with Office wide policies and strategies on tripartism and social dialogue, gender equality, RBM approach and evaluability, resource mobilization, UNDAF alignment, etc. Integrated Resources Information System (IRIS) for managers The IRIS Strategic Management/Implementation Planning (SM/IP) module is used to establish a link between P&B outcomes and CP outcomes. It facilitates Office wide resource planning to achieve those outcomes as part of the OBW. The SM/IP module allows: Country office/dwt directors to see available resources to achieve CP outcomes, whether the resources are under their direct control or shared with headquarters, and also to identify any resource gaps against the estimated resource requirements; and Managers at the headquarters to see resources linked to P&B outcomes across different units at the headquarters and in the field, as well as which CP outcomes are linked to the P&B outcomes either as target for a specific biennium or otherwise. 18 For further details, please refer to the Office directive on the Outcome based workplans: 12

20 5. Six step cycle of DWCP Evaluation Country Context Implementation Results-based management * * * Constituents involvement CP Priorities Planning CP Outcomes Linked to P&B (Outcome-based workplans) The beginning of a DWCP process depends significantly on the situation in a member State. It will often begin with ILO officials raising awareness about the purpose and value of a DWCP. This may be carried out by the country office director responsible for a particular country or by employers or workers activities specialists. Constituents themselves may seek ILO support for the development of a DWCP. A first stage may be a meeting of constituents to learn more about DWCPs and what is expected of all partners in the process. This may link with activities related to a national development plan process or to initial efforts toward the creation of an UNDAF. This stage may also include attention to possible strategic partnerships and the priorities of potential donors. In all cases, DWCP formulation and the subsequent process follow the structure set out on the following pages. Throughout the formulation process, a Quality Assurance checklist is to be applied, in order to ensure quality standard of DWCPs across the board. When developing new DWCPs, where previous ones existed, the recommendations and lessons learned from evaluations should be addressed. 13

21 Revised DWCP quality assurance process (continued from Page 3) 1. Design (including self appraisal) An ad hoc team, set up and led by the relevant country office/dwt director, is responsible for the design of a DWCP (as well as for its implementation and monitoring). The team will primarily draw on the members of relevant DWT for the country. Technical specialists in other DWTs in the region and/or at the Headquarters may be called upon to provide support, especially where required technical expertise is not available. Each ad hoc team should systematically include: Employers and Workers specialists, a Standards specialist (to be identified in consultation with NORMES if unavailable in the particular DWT) and a Gender specialist (to be identified in consultation with GENDER if unavailable in the particular DWT). In designing the DWCP, the team should apply and complete the quality assurance checklist (see Appendix E). The country office/dwt director should then submit the draft DWCP to the Regional Office, along with the quality assurance checklist and the associated templates (see Appendix C). CO/DWT director forms The team drafts a DWCP The director submits the draft a team for a DWCP as per the checklist and completed checklist to RO 2. Appraisal The Regional Office, through its Programming Unit (RPU), is responsible for ensuring that quality assurance criteria are applied in the design of DWCPs. As part of the appraisal of draft DWCPs, it is also responsible to seek feedback from specific Headquarters units, namely ACT/EMP, ACTRAV, EVAL, GENDER, PARDEV and PROGRAM. These units appraise draft DWCPs in terms of its conformity with Office wide policies on tripartism, social dialogue and gender quality, guidance on programming, links to technical cooperation projects and evaluability. The RPU provides the concerned country office/dwt with consolidated feedback for review and necessary adjustments to the draft DWCP. RPU appraises the draft and RPU consolidates the feedback The team makes necessary also seeks HQ feedback and provide it to the team adjustments to the draft 3. Approval Following the necessary adjustments, and with the clearance from the RPU, the concerned country office/dwt director submits the final draft to the Regional Director for approval. Once approved, the DWCP document is considered as final and is to be forwarded to for publication on the websites. The DWCP document may go through a formal process of endorsement by constituents; further guidance is provided in the box: Political and legal framework for DWCPs on page 6 in this guidebook. The team seeks RPU clearance The director submits the final RO sends the approved DWCP on the revised draft draft to the RD for approval document to 14

22 5.a Step 1: Defining the country context The first step is to define a high level strategic description of the main labour and social issues and policies in a country and gather information on the work of the ILO, the national constituents and other partners. This section is not meant to provide an extensive overview of the general economic, social and political situation in the country. The focus here should be on the specific issues that the ILO may be expected to help address, based on its comparative advantage. This section sets the stage for the following two sections of the DWCP document, on CP priorities and CP outcomes respectively. Therefore, it will be helpful to identify challenges, strategic developments and trends that are of the greatest interest to the ILO that are most likely to influence CP priorities and strategies over a period of some four to six years. It may be useful to prepare a DWCP concept paper at this stage (See Chapter 6 for more details). Relevant considerations What are the major decent work trends 19, using any statistics or data disaggregated by sex 20, and what are the principal causes driving these trends within the country, including social, political and economic factors? Any major knowledge gaps (e.g. statistics, research) on these trends should be highlighted. For those countries that have undertaken a GJP Country Scan and/or a Decent Work Country Profile, their findings should serve as a basis for defining the country context, as well as for tripartite dialogue and priority setting. How are decent work issues reflected in national priorities, development frameworks and plans (MDG Reviews, PRS, UNDAFs) and other bilateral and multilateral strategies? What are the priorities of workers and employers organizations (e.g. national policies, statements, research )? What commitments has the member State undertaken under ratified ILO Conventions, and how should actions on implementation gaps raised by the ILO s supervisory bodies be prioritized? How does the country situation intersect with the ILO global strategy as found in the SPF and the P&B or, where applicable, with a regional decent work agenda/decade? 19 en/index.htm

23 What are the ILO s comparative advantages in the country and how do they link to the priorities of development partners and donors? To what extent are major donors investing development aid resources in areas of relevance to the Decent Work Agenda as opposed to other areas? What key lessons learned from past cooperation on decent work issues in the country (e.g. policy experience, constituents capacity, partnerships, networks) should be taken into account to make DWCP responses more effective? This information should be drawn from ILO and other sources (e.g. DWCP evaluations, project evaluations, implementation reports, assessments and other studies) b Step 2: Establishing country programme priorities This is normally the first major focus of constituent consultations. The goal is to bring focus to an eventual DWCP for a specific member State by identifying a small number maximum three of CP priorities that synthesize: the country situation (as relevant to the ILO mandate); the shared priorities of constituents; ILO global objectives and commitments; and the ILO comparative advantage (its best contribution). From this step onwards, Tables I (Results Framework) and II (Monitoring Plan) provided in Appendix C can start being completed, and to the extent possible Table III (Implementation Plan). The following are examples of CP priorities: La promotion d emplois décents pour les jeunes filles et garçons dans une perspective de sortie de crise et de développement durable ( : Promotion of decent employment for young women and men in overcoming the crisis and for sustainable development ; Priority in Côte d Ivoire DWCP ) 22 Promoting productive employment through labour market indicators and skills development (Priority 1 in Afghanistan DWCP ) Evaluation database itrack : 22 The full DWCP document is available at: 23 The full DWCP document is available at: 16

24 Promover el cumplimiento efectivo y aplicación de las normas internacionales del trabajo y de la legislación laboral nacional (: Promote the effective implementation and application of international labour standards and national labour legislation; Priority 1 in El Salvador DWCP ) 24 Unlike the CP outcomes to be described in the next step, CP priorities are not set within a particular time or resource frame. Employers and workers activities specialists have a critical role to play in support of this process, as do other technical specialists. Support to workers and employers organizations to enable them to gain the capacity to participate effectively in these priority setting discussions and the entire DWCP process is a key pre requisite. 25 Relevant considerations CP priorities must be ones to which the ILO can make a substantial contribution over a medium term, and for which the ILO has a real comparative advantage. International labour standards, tripartism and social dialogue are integral to ILO responses in all countries. Gender equality and non discrimination aspects should be visibly and systematically mainstreamed throughout all CP priorities. The Office may play a valuable role in this process by helping constituents find common ground on issues that matter to progress on the Decent Work Agenda. Constituents shall be involved in the development of each DWCPs. While a consensus is desirable, no one has a veto in this process because the ILO goal at this stage is to design a DWCP that is most likely to achieve results of value. 24 The full DWCP document is available at: 25 For such capacity building support, Bureaux for Employers Activities (ACT/EMP) and for Workers Activities (ACTRAV) are available to provide specific guidance, in collaboration with the ILO International Training Centre (ITC Turin). 17

25 5.c Step 3: Defining intended outcomes, their measurement and strategy Country programme outcomes Within each CP priority, the DWCP sets out CP outcomes that: establish specific commitments under the CP priorities (measurable contributions to moving the Decent Work Agenda forward in that country); and contribute to the achievement of the outcomes that are set out in the P&B (the best contributions to moving the Decent Work Agenda forward globally). As the RBM guidebook notes: Outcomes are significant changes (policies, knowledge, skills, behaviours or practices, etc.) that are intended to occur as a result of actions taken by constituents with the Office s support, whether independently or in collaboration with other partners. 26 In the context of DWCPs, the involvement of and commitment from the constituents are essential in identifying and achieving outcomes. Thus, CP outcomes should be understood as significant changes that are intended to be achieved by constituents, with the Office s support. Here are some examples adapted from Afghanistan DWCP ( ), under Priority 1, Promoting productive employment through labour market indicators and skills development: Labour Market Information Systems are in place and provide timely detailed and disaggregated information on key labour market indicators (Outcome 1.1) ; Training and employment opportunities are increased for women and men (Outcome 1.2). Indicators, targets, baselines, and milestones 27 for country programme outcomes Each CP outcome should have at least one up to a maximum of three outcome indicators. Those outcome indicators set out the criteria and data that will be used to verify or measure achievement of that CP outcome. For effective measurement, a baseline and a target should be set for each indicator, along with annual or biennial milestones. 26 Full discussions of the key terms used in this section are provided in the companion RBM guidebook. 27 Guidance on how to formulate each of these elements is provided in the companion RBM guidebook. 18

26 Good indicators are SMART: o Specific o Measurable o Attainable o Realistic (or Relevant) and o Time bound (or Timely or Trackable) A baseline is established at the time when data is collected on the indicators. Targets define the level of achievement intended toward the desired result within a specific timeframe. Targets are divided into time bound (e.g., quarterly) increments called milestones. Here is an example of a set of indicator and target for the above mentioned outcome in Afghanistan DWCP ( ), Labour Market Information Systems in place and providing timely detailed and disaggregated information on key labour market indicators. Indicator: Number of detailed and disaggregated information by gender, age, areas, literacy and education, etc. reports on labour employment trends published per year by the future Labour Market Information and Analysis Unit. Target: 1 per year beginning in A total of 4 by Strategies for country programme outcomes Once CP outcomes have been defined, there is a need to establish a clear outcome strategy which would convincingly explain how activities and outputs 28 will contribute to the achievement of the stated outcome. Inputs (i.e. human and financial resources) to carry out the activities and outputs defined by the strategy should be clearly identified upfront. The strategy clearly establishes the approach that the ILO and its partners plan to take in order to achieve the CP outcomes, and identifies beneficiary institutions or groups, and the role of constituents and any other partners. For example, the strategy for Outcome 1.1: Improved decent employment opportunities for youth. In Kiribati DWCP ( ) 29 sets out contributions of technical cooperation programmes such as the Youth Employment Programme (YEP) and Women s Entrepreneurship Development and Gender Equality (WEDGE), as well as strong link with the International Programme on Child Labour (IPEC) in 28 Definitions of inputs, activities and outputs can be found under Glossary of terms used in the companion RBM guidebook. 29 The full DWCP document is available at: 19

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