ILO Decent Work Country Programmes A Guidebook

Transcription

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 [email protected]. 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 [email protected] 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: [email protected]. 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 [email protected] 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 [email protected] 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

27 ensuring smooth school to work transition in the country. The strategy consists of entrepreneurship training with methodologies already tested and adapted for the Pacific Island Countries, involvement of Kiribati Trade Union Congress and individual unions in delivering the training and also employment support services for young entrepreneurs and students, closer examination of training curricula with ILO partners in the country to avoid gender stereotyping, and provision of ILO technical advisory services, support and knowledge sharing through online community of practice, Asia Pacific Youth Employment Knowledge Network (APYouthNet), among others. The strategy also builds on the past ILO collaboration with the tripartite constituents and stakeholders in assisting the Government of Kiribati to formulate a draft National Action Plan on Youth Employment (NAP) and articulates the responsibility of the Government for finalizing and implementing the NAP, along with ILO technical assistance through YEP to strengthen social partners role in the NAP implementation. Furthermore, the strategy articulates the inclusion of persons with disabilities and equal participation of women and men in all activities to be conducted in achieving the Outcome and makes specific reference to relevant International Labour Standards that provide guidance in that regard. Relevant considerations A maximum of three CP outcomes per CP priority is recommended. There could be as little as one outcome, if that is all that seems reasonable to achieve in a given situation. Outcome indicators, targets, baselines, milestones and/or strategies should be formulated in gender responsive terms, in view of any differing results or implications for women and men. Indicators for CP outcomes should not be complex, costly or difficult to verify. It is best if existing sources of data disaggregated by sex can be used. At the same time, they should be aligned with P&B indicators and their measurement criteria, as well as with other programme /project indicators. This would ensure consistency in performance measurement and therefore, allow for comparability of performance over time and across countries. Milestones are time bound increments towards the achievement of CP outcomes, which in turn contributes to the achievement of P&B outcomes. CP outcomes and the strategies to achieve them bring focus to ILO contributions and actions. Thinking about what is to be achieved (outcomes) and with whom is a good way to approach the work of defining a strategy. Strategies should reflect a sound assessment of the capacities and commitment of the beneficiaries or target institutions as well as constituents. Attention should be given to any assumptions being made. A strategy should pay attention, among other things, to needs in terms of building the necessary knowledge base to support policy advice and technical assistance. Research should be an integral part of DWCPs, in close connection with defined CP outcomes, as relevant. 30 Any major research gap in achieving CP outcomes should be highlighted here. 30 See: Main outcomes of ILO Research Consultations and possible follow up (Geneva, 3 4 March 2008), which is available at: 20

28 Discussions about possible outcomes and strategies, and resource requirements should take into account all the resources currently being used and those that might be available. This will ensure that items such as current and possible technical cooperation activities are included in the overall assessment, which should then lead to the development of a local resource mobilization strategy for the DWCP. A key strategy element should be institutional capacity building for the tripartite constituents to design and implement DWCPs, to participate more broadly in development planning, and to play an effective role in the shaping of national economic and social policy. To this effect outputs and activities related to strengthening capacity for membership services, resource mobilization, results based management and development planning should be considered. Respect for international labour standards is a fundamental approach to ILO work at country level. In this respect, strategies should include outputs or activities to promote the ratification of up to date ILO Conventions, or addressing long standing problems in the application of standards noted by the supervisory bodies. Other initiatives arising from the governing structures of the ILO, such as follow up to the recurrent item under the ILO Declaration on Social Justice for a Fair Globalization, or the GJP, could also be considered. Defining ILO outputs can be challenging Some ILO outputs can be seen to contribute clearly to CP outcomes. For example, there is a close link between government approval of a pension reform (an outcome) and a pension reform proposal prepared by the ILO (an output) and discussed by constituents. However, many proposed ILO outputs have much less clear links to intended outcomes. For example, there can be quite a distance between a manual on working conditions in small enterprises (an output) and improved small enterprise competitiveness (an outcome). ILO outputs often consist of capacity development of constituents. While the output can easily be measured number of women/men trained, before and after training testing the influence of such capacity development on outcomes is more difficult to capture. Guidance will be provided in this regard and will be made available on PARDEV s website: A distinct issue is the extent to which success can be attributed to a DWCP or the work of the ILO in general. There are challenges with measurement (how can an outcome or expected change be described and measured?) as well as with strategy (can the outputs under a strategy be shown to have an impact on the outcome?). The rule of thumb is that a sound output is one that a reasonable observer would see as a substantial contribution to the achievement of an outcome, based on the ILO s areas of expertise and given a logical strategy, even if the outputs of others are also needed in order to realize the intended outcome. 21

29 5.d Step 4: Planning for implementation Planning for the implementation of a DWCP has two elements. 1. A general discussion on implementation needs to occur with constituents from the beginning and throughout the development of the DWCP. This: enables discussion of the likely high level contributions to the achievement of DWCP goals by each partner; can identify gaps between the respective contributions of partners and other gaps that the ILO may be expected to help address through measures such as capacity building, knowledge development through research, and knowledge sharing; is an opportunity to clarify issues such as technical cooperation priorities and general resource expectations; can ensure full attention to how a regular, effective monitoring process and later evaluation needs can be integrated into the DWCP process. 2. The analysis and planning steps described previously should result in the creation of a broad plan to implement the DWCP strategy that should be agreed upon by all partners. To support that broad plan, each partner will need to develop its own specific implementation plan including the ILO. That ILO implementation plan: is an internal ILO document; is subject to regular review and revision by the ILO throughout the life of the DWCP; is developed and finalized on the basis of consultations on commitments and resources between the relevant field office and headquarters units; and is entered in the IRIS SM/IP module, which includes items such as the CP priorities, CP outcomes and resources, including their links to the strategic framework of the ILO. Relevant considerations Appendix C provides templates for results framework (Table I), monitoring plan (Table II) and implementation plan (Table III). These must be prepared at the time when draft DWCP documents are elaborated and be submitted for the quality assurance process. The DWCP results framework should incorporate the priorities, outcomes and indicators. Critical assumptions and risks must be identified at level of each CP outcome. The objective of the identification of risks is not necessarily to avoid them, but to assess and manage them. 22

30 The DWCP monitoring plan should include the means of verification of the identified indicators, the baselines as well as the milestones to be achieved, amongst other information. The DWCP implementation plan should incorporate all planned outputs and funding, including those related to existing technical cooperation projects, necessary to achieve the CP outcomes. For example, Jordan DWCP ( ) 31 identified the specific outputs of the 11 ILO projects that existed at the time of DWCP development or were in the pipeline and aligned those outputs with CP outcomes. In Step 4, the country office begins by estimating amount of resources required to deliver strategies per CP outcome, and then identifies resources available or likely to be available, drawing attention to any resource gap and anticipated resource mobilization needs, including local resource mobilization. PARDEV can assist regions and technical and support units in dealing with resource mobilization issues as part of implementation planning. For resource gaps identified in DWCPs, additional resources, including RBSA, are established through the OBWs. 32 Resource gaps also guide PARDEV s resource mobilization efforts. The DWCP implementation plan should address opportunities for strategic alliances and partnerships with other international organizations, as well as civil society groups such as women s rights organizations, which can channel resources towards decent work objectives and that can address common priorities such as gender equality. Some DWCPs are linked to national budget contributions. This is a practice to be encouraged, as it creates more commitment and experience in planning decent work initiatives in national budgets. 31 The full DWCP document is available at: 32 For more detail, please refer to the Office procedure on the RBSA and to Chapter 4 in the companion RBM guidebook. 23

31 Risk management for DWCPs Risk management supports results based management (RBM) in the ILO. Both concepts have the overriding aim of achieving measurable results. An essential part of RBM is the identification of outcomes and the implementation of activities necessary to achieve planned results. Risk management aids this process by helping managers to identify, quantify, prioritize and decide how best to manage risks related to achieving those results. (Director General s announcement: ILO policy on risk management ) For DWCPs, any assumptions and risks must be identified at the level of each CP outcome. Those assessed to be most critical in achieving the CP outcome must be indicated in the designated column in the results framework (Appendix C). The objective of risk management is not necessarily to avoid risks, but they must be identified, assessed and managed by the responsible managers. Principles of risk management include implementation of appropriate and timely remedial actions and, if risks materialize, to minimize and contain their consequences, while balancing the costs for managing risks with the anticipated benefits. Further guidance on operational risk management can be found in the IGDS, and training will be incorporated in the Internal Governance and Accountability Programme, which can be adapted and applied to the risk management for DWCPs. 5.e Step 5: Implementation, monitoring and reporting There are two coordinated processes of implementation and its monitoring for a DWCP: One includes all partners in a DWCP and centres on the extent to which progress is being made towards the CP outcomes set out in the DWCP, the extent to which partners are contributing to strategies as expected and the management of issues that arise. For this process, the modality of Decent Work Country Programme Review (CPR) can be applied. The other is specific to ILO management needs and includes an analysis of progress made, in accordance with the detailed implementation plans, and through periodic Office wide reviews of the OBWs. It addresses the extent to which ILO resources have been used to deliver outputs that clearly move the DWCP strategy forward, and in turn, the extent to which country level progress can be counted towards the achievement of targets set for each P&B outcome. As noted earlier, country office directors in their role as country program managers are accountable for the results achieved in the countries. Their role is fundamentally strategic, not simply operational. 24

32 Decent Work Country Programme Review (CPR) 33 CPR is a management tool for those in charge of designing and delivering a DWCP. As such, it is a participatory tool used to review the design of a DWCP, examine recent performance against stated outcomes, discern what has been achieved, whether outputs are being converted into expected outcomes, and whether the strategies and partnerships are effective and efficient. The CPR is a useful means by which constituents and other partner agencies provide their feedback regarding collaboration and coherence within a larger multi agency context. It also enables constituents and partners to consider strategies and actions needed in future. Roles and responsibilities Regional offices are responsible for selection, planning, managing, financing and coordinating follow up to CPRs. The CPR should cover the full content of the DWCP, for a biennial period or another time span that is relevant in the country context. The CPR should be conducted by a professional evaluator and take between 2 and 4 weeks of an external consultant s time. The CPR scope has two main components. The first involves a review of the appropriateness and adequacy of DWCP design, outreach/partnership and overall DWCP implementation performance. The second component is an operational assessment to report on progress being made on tangible outcomes directly resulting from ILO contributions. Key criteria for the review are: 1) adequacy of resources, 2) delivery of outputs, 3) use of outputs by partners, 4) progress made towards outcome, and 5) emerging risks and opportunities. Implementation of CPR is also part of the key field performance indicators to be measured and reported on. See Indicator 2.2 in the Office Procedure IGDS No. 198 (Version1) of Monitoring and reporting Monitoring and reporting on DWCP progress takes a number of forms: At the country level: o o There may be a commitment among constituents to regularly monitor and track progress made towards the achievement of CP outcomes. In some countries, this process is institutionalized through National Tripartite Steering Committees or similar fora (see also below). Country offices also prepare annual progress reports on DWCP implementation that align with UNDAF reporting requirements CPR guide is available at: 34 The latest format and guidance is available at: 25

33 o Country offices prepare monitoring plans for the countries they cover at the time when draft DWCP documents are elaborated and update them as resources and associated outputs change. At the regional level, the regional offices: o o o oversee the monitoring plans; complete the selected CPRs; report on the status of DWCP development in each region. These reports are consolidated and made available to the public through the ILO public web site according to established schedules. ( Reportable results at the country level inform biennial report on ILO Programme Implementation, which is submitted to the Governing Body and to the International Labour Conference in evennumber years. Relevant considerations A process should be established for regular assessment by all DWCP partners of progress towards CP outcomes and issues to be addressed. A national tripartite steering committee or similar forum may be established to coordinate DWCP implementation, without restricting the ability of the ILO or other partners to adapt strategies to better achieve CP outcomes. That committee could oversee or conduct ongoing monitoring of activity and serve as a forum to address issues that emerge. It may also be a basis for interaction with other interested groups such as those associated with the UNDAF process in a country. Along with the DWCP formulation function, country office directors responsible for a particular country also lead the process of engaging headquarters managers in planning and supporting DWCP driven activities in specific countries, which also contribute to progress toward outcomes set out in the P&B. 5.f Step 6: Independent evaluation Independent country programme evaluations (CPEs) aim at assessing the ILO s contributions towards supporting national development agendas and/or national PRS within the decent work framework, through engagement with constituents. 35 They also focus on the coherence and 35 Further guidance is available at: 26

34 coordination of the ILO s work with tripartite constituents and UN agencies within UNDAFs. They provide transparent information about the results of ILO s work to all partners of the ILO. Roles and responsibilities By managing independent CPEs, EVAL ensures their credibility. EVAL confirms the country choice, draft Terms of Reference, selects evaluators and undertakes other tasks according to the general responsibilities of EVAL. EVAL is in charge of summarizing and disseminating the independent evaluations main finding and recommendations at global level (e.g. through its annual evaluation report to the Governing Body and its web site). It also monitors follow up on the recommendations. ILO senior management, the Evaluation Advisory Committee, and the Regional offices can propose countries for independent CPEs and provide administrative, technical and financial support, however the final selection is determined by EVAL and reported to the Governing Body. Regional offices provide input regarding the scope, methodology and purpose of independent evaluations for the Terms of Reference and are responsible for the dissemination of results within the region. Country offices constitute the interface with national constituents in planning and implementing a CPE, including its follow up. Timing EVAL is expected to undertake a minimum of one independent CPE each year. The duration for conducting the evaluations is calculated to range from 4 to 6 months. Financing Regional offices are required to finance CPEs conducted in their region through extra budgetary and/or regular budget funds. Relevant considerations As noted earlier, only a few independent CPEs can be undertaken per year. For those DWCPs that cannot be fully evaluated at the end of the cycle in a timely manner, the CPR methodology can be nevertheless effectively applied so as to identify any lessons and good practices and to feed them into the next DWCP cycle. 27

35 6. Preparing the DWCP document The DWCP document should not be longer than 10 pages (4,000 4,500 words). It contains four sections, to address the six steps described in the previous Chapter in this guidebook. The table below describes the key documents in the development of DWCPs. Document Definition Content DWCP concept paper 36 Draft DWCP document DWCP final document (or final version) A document prepared by a country office that: (i) presents analysis and data which help tripartite constituents set DWCP priorities, and (ii) identifies and advocates core priorities which should be present in all DWCPs, in particular strengthening tripartite constituents and applying international labour standards. Concept papers are not a required step in the DWCP development process. However, some means has to be found to provide sound inputs into the process. Concept papers are meant to initiate discussions with constituents. A preliminary document that includes all the main elements of DWCPs, developed through a process of consultation with tripartite constituents. This document goes through the quality assurance process. This DWCP version will be posted on the DWCP intranet web site by PROGRAM. A DWCP document that, while subject to modification if conditions change, has been approved by the regional director and can be cited as the vehicle for ILO action in a particular country. This DWCP version will be posted on both DWCP public and intranet web sites by PROGRAM. Explicit links to the national development framework, UN country programmes, UNDAF, MDGs or PRS. Analysis of the national context and decent work gaps. Technical cooperation programmes within the country, and lessons from previous cooperation and efforts of other agencies. Information on priorities of government and workers and employers organizations. Information related to the application of standards and fundamental principles and rights at work in the country. Information related to measures needed to strengthen the ILO s constituents. Explicit links to the national development framework, UN country programmes, UNDAF, MDGs or PRS. Summary of tripartite consultation in the preparatory phase. Statement of country programme outcomes that are explicitly linked to Programme and Budget outcomes. Results framework, monitoring plan and implementation plan (Tables I III in Appendix C) Cross cutting issues such as gender equality and non discrimination are consistently addressed. Adherence to the content and format defined in the DWCP guidebook. A draft DWCP that has been appraised and revised by a country team through quality assurance process, that has gone through a final stage of consultation with constituents, and that has been approved in its final form by the regional director. Results framework (compulsory) and monitoring plan (optional) annexed. 36 Decent Work Country Scan, to be adapted from the GJP Country Scan, will serve the purpose in the future. 28

36 The table below summarises key elements of a DWCP document. Quality assurance process should be followed through, as detailed in Chapter 5. Section heading Suggested page length 1 Country context CP priorities 1 3 CP outcomes, indicators and brief strategy 1 3 Description of content Salient points only, not an exhaustive analysis. Includes: main trends and issues in decent work with any statistics or data disaggregated by sex, taking into account, where available, the findings of the GJP Country Scans/Decent Work Country Profiles; reference to national development goals and development cooperation frameworks (UNDAF and related), including any crosscutting or mainstreamed themes; priorities of constituents; commitments under ratified conventions, and other implementation gaps; relevant government/donor/ other programmes; relevant lessons learned from past cooperation or previous DWCPs. Statement of CP priority only (justification follows from prior analysis). Hard choices will have to be made because limiting the number of CP priorities is critical one to a maximum of three seems adequate range. Outcomes are formulated in concise and precise language. For each outcome, there are one or maximum three indicators to measure performance. Each outcome is followed by a brief strategy statement indicating how and with whom work will proceed, along with mandatory biennial (or annual) milestones. Critical assumptions and risks can be mentioned. Fewer, focused outcomes are better. Results framework (Table I in Appendix C) must be annexed to the public DWCP document. Brief description of management arrangements for the planning, monitoring and reporting of DWCP implementation e.g. set up of national tripartite steering committee, schedule for CPR, any evaluation activities etc. Monitoring plan (Table II in Appendix C) may be annexed to the DWCP document. 4 Implementation planning, management and evaluation 1 The implementation plan (Table III in Appendix C) is also to be developed, but as an internal management tool, it is not annexed to the public DWCP document. It is to be supported by the unit/office workplans as well as individual performance management framework. Updating the implementation plan forms the basis for a periodic, but at least annual, internal implementation report. Such report states planned versus actual delivery of outputs and any annual self evaluation. 29

37 7. Communicating DWCPs Final DWCPs are important tools for communicating the ILO s work. They are public documents that should be posted on a dedicated web site on the public Internet: They can also be featured under decentralized country office web sites. It is a good communication practice to prepare a one page summary of the approved DWCP, written with target audiences in mind, such as workers, employers, donors and the public. This can be complemented with success stories from projects implemented through the DWCP. A version written in accessible language, and backed up by tangible examples of the impact of ILO projects, will prove invaluable at donor briefings and can be used more broadly within communication and advocacy campaigns. When developing communication materials locally it is always useful to consult your regional communication officer or the Department of Communication and Public Information (DCOMM) in Geneva. The DCOMM handbook also provides helpful advice, including on gender responsive text and images, and can be accessed at Furthermore, the online DCOMM Decent Work communication platform provides access to tools and guidelines for communicating decent work. The platform can be accessed at Please contact [email protected] for any log in queries. 30

38 Appendix A: Additional resources Policy framework and guidance Strategic Policy Framework (Brochure: Programme and Budget for : Governing Body decision on gender issues in technical cooperation (GB292/PV) Governing Body decision on matters arising out of the work of the 98th Session of the International Labour Conference: Follow up to the adoption of the resolution concerning gender equality at the heart of decent work (dec GB.306/3/2). en/wcms_117616/index.htm Governing Body document on the role of Decent Work Country Programmes in the enhanced Technical Cooperation Strategy (GB.307/TC/1) ed_norm/ relconf/documents/meetingdocument/wcms_ pdf Governing Body document on an ILC resolution on tripartism and social dialogue in the ILO (GB.285/GB/7/1) pdf Governing Body document on guidelines for consultations with the Bureaux for Employers and Workers Activities (GB.295/TC/6/1) pdf Office guidelines, procedures and other information Regular Budget Supplementary Account (RBSA) instructions General information on RBSA Information about DWCPs and their links to the work of ILO units at headquarters and in the regions that can be drawn from IRIS. 31

39 Evaluation reports supply critical information on project experience within a country, including separate datasets on lessons learned. These can be accessed through the Evaluation Unit (EVAL)'s intranet site: (See also Section 5.f in this guidebook.) Technical Cooperation Manual Technical cooperation procedures, guidelines and tools Local resource mobilization guidelines Local resource mobilization good practices and lessons learned Compilation of policies, tools and methodologies for evaluation managers and evaluators Completed project evaluations offering a range of evaluation findings relevant to the DWCPs context through the i Track database DWCP focused guidance and support sources The DWCP web page: o o Public site: Intranet site : for specific inquiries and support: [email protected] RPUs and evaluation officers Outcome coordinators at headquarters Overview pages of IRIS SM modules provide practical guidance and information on various exercises in the ILO programming cycle, in particular, SM/IP and SM/IR modules. EVAL guidance materials on the intranet: o Independent CPE o DWCP monitoring and self evaluation guide 32

40 o CPR guide o Meta analysis report on DWCP evaluations, drawing lessons learned and good practices meta analysis pdf o Completed independent CPEs en/index.htm In addition, many headquarters based groups and technical specialists in the regions, such as workers and employers activities specialists, and gender specialists, can provide guidance and support on specific topics. 33

41 Appendix B: A model form for DWCP MoUs Prior to concluding an MoU using this model, please ensure it has been approved by JUR. Whereas the Government of [name of the country] (Government), the undersigned workers and employers organizations, and the International Labour Organization (ILO), represented by the International Labour Office (referred collectively as the Parties), wish to collaborate in order to promote and advance decent work in [name of the country]. Whereas [reference may be made, in this and additional paragraphs, to prior DWCP pre existing agreements/commitments pertaining to the country, such as regional agenda or jobs pact, or agreements concerning privileges and immunities clause to be finalized by JUR ]. Now therefore, the Parties hereby agree as follows: 1. The Parties affirm their commitment to collaborate in the implementation of the Decent Work Country Programme (DWCP). The following are agreed as priorities of the DWCP: [Include a maximum of three CP priorities] 2. The ILO agrees to assist in the mobilization of resources and to provide technical cooperation in the implementation of the DWCP, subject to its rules, regulations, directives and procedures, the availability of funds and conditions to be agreed upon in writing. 3. In relation to DWCPs and to any related activities of the ILO in the country, the Government will apply, to the Organization, its personnel and any person designated by the ILO to participate in ILO Activities, the provisions of [clause on privileges and immunities to be finalized by JUR based on the country context]. [State, as applicable, any other commitments by other Parties. For intellectual property matters, consult with JUR as to introducing a relevant clause]. 4. This Memorandum of Understanding (MoU) may be modified by agreement between the Parties. Nothing in or relating to this MoU shall be construed as constituting a waiver of the privileges and immunities enjoyed by the ILO. The DWCP document is attached to this MoU. In the event that the terms contained in the DWCP document are incompatible with the terms of this MoU, including the provisions referenced in article 3, then the latter shall govern and prevail. The original of the MoU has been written and signed in [English, French or Spanish]. If this MoU is translated into another language, the [English, French or Spanish] version shall govern and prevail. This MoU, superseding all communications on this matter between the Parties, shall enter into force with effect from its signature by the authorized representatives of the Parties. For and on behalf of the Government Its Authorized Representative Its [Title] In [Location] On [Date] For and on behalf of [name of employers /workers organization] Its Authorized Representative Its [Title] In [Location] On [Date] For and on behalf of the International Labour Office Its Authorized Representative Its [Regional Director/authorized representative] In [Location] On [Date] For and on behalf of [name of employers /workers organization] Its Authorized Representative Its [Title] In [Location] On [Date] For more information, please contact [email protected] 34

42 Appendix C: Templates for results framework, monitoring plan, and implementation plan Results framework (Table I) First preparation date: Revision date: Results Indicators and data sources Critical assumptions and risks Link to UNDAF outcomes and national development plans Link to P&B outcomes Link to regional agenda CP priority 1: CP outcome 1.1: Indicator 1.1.1: Data source: Indicator 1.1.2: Data source: CP outcome 1.2: Indicator 1.2.1: Data source: CP priority 2: CP outcome 2.1: Indicator 2.1.1: Data source: Indicator 2.1.2: Data source: Indicator 2.1.3: Data source: Monitoring Plan (Table II) First preparation date: Revision date: CP priority 1: Indicators Means of verification End Baseline (Data sources, frequency and collection target and date methods incl. any M&E link to TC projects) and date Year 1 Milestones Year 2 Year 3 Year 4 Responsible staff/entity Resources (US$) Required Available CP outcome 1.1: 1.1.1: 1.1.2: CP outcome 1.2: 1.2.1: CP priority 2: CP outcome 2.1: 2.1.1: 2.1.2: 2.1.3: 35

43 Implementation Plan (Table III) First preparation date: Revision date: What CP outcome 1.1: When Year 1 Year 2 Q Q Q Q Q Q Q Q Who Staff/entity responsible Partners Funded how Estimated costs USD USD Available funds Source [1] Origin [2] Time period [3] Resource gap USD Potential source [4] Output 1.1.1: Output 1.1.2: Output 1.1.3: CP outcome 1.2: x x x x x x x x x x Output 1.2.1: Output 1.2.2: CP outcome 2.1: x x x x x Output 2.1.1: x x x x x [1] RB, RBTC, PSI, XBTC, RBSA [2] Organizational units e.g. Country Offices, HQ departments, TC programmes and projects etc. [3] Biennium or specific period during which the funds are available e.g , May April 2012, etc. [4] RBSA, XBTC etc. The name of the project should be included in this column. 36

44 Appendix D: Relationship between ILO and UN programming frameworks Decent Work Strategic Objectives SPF DWCP CP priorities UNDAF PRS Strategy Indicator, Baseline, Target, Measurement criteria Linked for reporting P&B outcome CP outcome CP outcome ILO-wide collaboration Strategy Indicator, Baseline, Target, Milestones Inputs for reporting Strategic alignment (Country assessment, results matrix, etc.) Strategy Indicator, Baseline, Target Outcome-based workplans CP outcomes as P&B targets Global Products Strategy $ Unit/office workplans Personal performance plans Following the 2007 Triennial Comprehensive Policy Review of Operational Activities of United Nations Development System (TCPR) 37, UN resident coordinators, supported by the United Nations Country Teams (UNCT), should report to national authorities on progress made against UNDAF results. The same request was reiterated in the 2009 Resolution of the UN Economic and Social Council (ECOSOC) and was responded by action taken by the UN Development Group (UNDG) in developing the Standard Operational Format and Guidance for Reporting Progress on the UNDAF 38 for use by the UNCT when reporting on progress towards the UNDAF results to national authorities. In this context, it is important that ILO country office directors ensure integration of DWCP progress and results information in UNDAF Progress Report. Through participation in the annual review process, normally applied by UNCT to develop the UNDAF Progress Report, ILO can organize annual consultations with tripartite constituents to review and agree on progress made, including on the related outputs to UNDAF Results Matrix. 37 For more detail:

45 Appendix E: Quality assurance checklist DWCP Quality assurance checklist The purpose of this checklist is to facilitate country teams to formulate DWCPs that meet quality criteria. It is a self assessment tool to be applied by country teams. It also serves as an appraisal tool to be applied by the regional offices, as well as by the headquarters at a later stage, for any revision for final approval, ensuring conformity with a common set of criteria. Six quality assurance areas are listed that represent Office wide policy perspectives including RBM approach. Country: Date: Quality Assurance Area Country Team RO PROGRAM PARDEV EVAL ACT/EMP, ACTRAV, GENDER 1. Relevance and strategic fit 2. Tripartism and social dialogue 3. Policy coherence 4. DWCP logic and feasibility 5. Technical cooperation, resource mobilization and partnerships 6. Methodology Quality Assurance Question Quality Criteria 1. Relevance and strategic fit 1.1 Are the DWCP priorities and outcomes consistent with the country context analysis? Comments by the Country Team: Comments by the RO: Comments by (HQ unit): N.B. Same format to be followed for the other criteria. 1.2 Do DWCP priorities align with national development frameworks, including CCA, UNDAF, PRSs, and other national development plans? Comments by The DWCP draft shows a clear link between identified priorities and outcomes and the country context analysis addressed in the DWCP. The DWCP is coherent with national priorities and contributes to UNDAF in the areas pertaining to ILO s mandate. The DWCP draft explains how the outcomes defined fit into the broader framework of aid assistance to the country, including PRSs, as relevant. 1.3 Does the DWCP build on earlier or on-going ILO initiatives undertaken in the country? Comments by The DWCP draft incorporates and reflects on the work previously addressed in the country by the field, HQ and other development partners (including other UN agencies, donor countries, World Bank etc). 38

46 1.4 Does the DWCP focus on the priority areas where the ILO has a clear comparative advantage vis-à-vis other UN partners and one UN programme (when applicable)? The DWCP clearly articulates ILO capacity and mandate with respect to the outcomes in the DWCP document. Comments by 2. Tripartism and social dialogue 2.1 Is the DWCP formulated with full involvement of tripartite constituents? Comments by Evidence demonstrates how constituents have played an active role in the DWCP formulation, and their views have been reflected in the document. 2.2 Are the governments, the employers and workers organisations clearly identified as major partners and beneficiaries, including capacity development initiatives? The roles of governments, employers and workers organizations are clearly defined. Comments by 2.3 Do the tripartite constituents and other national institutions have absorptive capacity and will to sustain the results achieved through the DWCP? Comments by There is evidence that they are in a position to assume the ownership of parts of the DWCP and progressively assume larger parts of it. Where there are weaknesses, adequate capacity-building measures are identified. 3. Policy Coherence 3.1 Do the DWCP outcomes support the attainment of the Programme and Budget outcomes and the Strategic Policy Framework as well as regional priorities? Each DWCP outcome has a clear link to the relevant Programme and Budget outcome, the Strategic Policy Framework and the regional priorities. Comments by 3.2 Have relevant technical units been involved in the formulation of priorities, outcomes and strategies, through the direct involvement of CO or DWT specialists, or Headquarters specialists? Relevant technical specialists whether at the CO/DWT or at Headquarters have been involved in the formulation of priorities, outcomes and strategies. Comments by 3.3 Do the outcomes and strategies reflect an integrated approach in line with the inseparable, interrelated and mutually supportive nature of the four strategic objectives? The DWCP shows that outcomes and their corresponding strategies are to be delivered through a coherent and collaborative approach, as indicated in the ILO Declaration on Social Justice for a Fair Globalization. Comments by 3.4 Are issues raised by the supervisory bodies addressed through the DWCP? Comments by Issues raised by the ILO supervisory bodies are indicated in the country context and improved application of standards is integrated in the strategies. 3.5 Are gender equality and non-discrimination addressed through the DWCP? Gender equality and non-discrimination are reflected throughout the document including in the outcome strategies and the corresponding indicators. 39

47 Comments by 4. DWCP Logic and feasibility 4.1 Are outcomes expressed in RBM terms? Outcomes are expressed in RBM terms, according to ILO RBM guidelines. Comments by 4.2 Is there a clear strategy on how to achieve each outcome? There is a clear a strategy on how to achieve each outcome, following ILO s RBM guidelines. Comments by 4.3 Are results framework, monitoring plan and implementation plan prepared, alongside the DWCP document? The results framework, monitoring plan and implementation plan were prepared, as per Tables I-III in Appendix C of this guidebook. Comments by 5. Technical cooperation, resource mobilization and partnerships 5.1 Does the DWCP incorporate technical cooperation and other kinds of partnership initiatives already taking place in the country? Comments by Technical cooperation projects whether they are being implemented or in pipeline are part of the strategy to address the priorities and outcomes defined in the DWCP. The DWCP takes into account relevant lessons learned from TC project interventions. 5.2 Is there a clear and coherent link between outputs delivered by TC projects and the DWCP results in the country? TC project outcomes contribute in a substantive way towards achieving DWCP results (either as outputs or outcomes milestones). Comments by 5.3 Have the areas for partnerships been identified? Comments by The document makes reference to partnerships with UN agencies and/or multilateral institutions, as well as with local partners (donors, civil society and private sector etc.). 6. Methodology 6.1 Does the draft document follow the methodology as set out in the DWCP guidebook? Comments by The document is clear, succinct and complete, and in line with the initial steps of the DWCP cycle, concerning design (country context; country programme priorities; country programme outcomes and the corresponding strategies), as set out in the guidebook. 40