ILO Decent Work Country Programmes A Guidebook

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ILO

Decent

Work

Country

Programmes

A

Guidebook

Version

3

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ii

Second edition 2008 Third edition 2011

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[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 www.ifrro.org to find the reproduction rights organization in your country.

ILO Decent Work Country Programmes, A Guidebook, Version 3

Geneva, International Labour Office 2011.

ISBN 978-92-2-123409-8 (web, pdf)

Also available in French: Programmes par pays de promotion du travail décent de l’OIT, Manuel, version 3

(ISBN 978-92-2-223409-7 Genève, 2011, in Spanish: Programas de Trabajo Decente por País, de la OIT, Guía

práctica, versión 3 (ISBN 978-92-2-323409-6), Ginebra, 2011.

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Preface

The ILO introduced time‐bound and resourced programmes, called Decent Work Country

Programmes (DWCP) in 2004. 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 guidebook2. 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 2010‐15 (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

https://www.ilo.org/intranet/edmsp1/igds/groups/circulars/documents/ilogovernance/edms_005605.pdf

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 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

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Table

of

Contents

Preface ... ii Abbreviations ... vi 1. Introduction ... 1

2. Overview: Decent work country programmes ... 2

2.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 ... 7

3.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 ... 10

4.a Results‐based management in the ILO 10 4.b Roles and responsibilities for DWCPs 10 5. Six‐step cycle of DWCP ... 13

5.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 26 6. Preparing the DWCP document ... 28

7. DWCP communications ... 30

Appendix A: Additional resources ... 31

Appendix B: A model form for DWCP MoUs ... 34

Appendix C: Templates for results framework, monitoring plan and implementation plan ... 34

Appendix D: Relationship between ILO and UN programming frameworks ... 37

Appendix E: Quality assurance checklist ... 38

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Abbreviations

ACT/EMP: Bureau for Employers’ Activities

ACTRAV: Bureau for Workers’ Activities

CCA: Common Country Assessment

CPE: Country programme evaluations

CP outcome: Decent Work Country Programme outcome

CP priority: Decent Work Country Programme priority

CPR: Decent Work Country Programme Review

DCOMM: Department of Communication and Public Information

DWCP: Decent Work Country Programme

DWT: Decent Work Technical Support Team

EVAL: Evaluation Unit

GENDER: Bureau for Gender Equality

GJP: Global Jobs Pact

IGDS: Internal Governance Documents System

ILS: International Labour Standards

IRIS: Integrated Resource Information System

JUR: Office of the Legal Advisor

MDG: UN Millennium Development Goals

OBW: Outcome‐based workplans

PARDEV: Partnerships and Development Cooperation Department

P&B: Programme and Budget

PROGRAM: Bureau of Programming and Management

PRS: Poverty Reduction Strategy

RBM: Results‐based management

RBSA: Regular Budget Supplementary Account

RPU: Regional Programming Unit

SM/IP: Implementation Planning module of the Strategic Management application in IRIS

SM/IR: Implementation Reporting module of the Strategic Management application in IRIS

SPF: Strategic Policy Framework

ITC‐Turin: International Training Centre of the ILO in Turin

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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 Philadelphia3,

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 country6;

 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. 3 http://www.ilo.org/ilolex/english/constq.htm 4_{http://www.ilo.org/wcmsp5/groups/public/} ‐‐‐dgreports/‐‐‐cabinet/documents/publication/wcms_099766.pdf 5

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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 circulars7 issued by the Director‐General in May 2004.

7_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

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Circular No. 599 notes that a country programme exercise:

 starts with problem analysis and lessons learned in that country8;

 identifies a limited number of CP priorities9 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.

8

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

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 three‐

step 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 26.11.2010.

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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

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 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.

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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 country‐

specific.

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: http://www.oitbrasil.org.br/agenda_trabalho_decente

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

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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 98th

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 2010‐152.

1

Provisional record 13, Gender equality at the heart of decent work (General discussion), Report of the

Committee on Gender Equality, 98th Session of the International Labour Conference (ILC98‐PR13‐2009‐

06‐0323), Geneva, 2009.

2

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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

http://www.ilo.org/public/english/bureau/pardev/download/toolkit_en.pdf

Toolkit for Mainstreaming Employment and Decent Work – Country Level Application

http://www.ilo.org/public/english/bureau/pardev/download/toolkit_country_en.pdf

12

PARDEV website on UN reform:

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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 20091. 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 2012‐13 biennium.

The GJP also calls for prioritising crisis response in DWCPs. In the Arab States region, an Arab

Employment Forum2 , 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” methodology3 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_2010–15:_Knowledge_Strategy_–_{Strengthening}_capacity_to_deliver_decent_work

and the Global Jobs Pact (GB.306/PFA/12/3).

2

For more detail:http://www.ilo.org/public/english/region/arpro/beirut/aef/index.htm

3

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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:

https://www.ilo.org/intranet/english/bureau/program/rbm/

14_Director_‐_General’s_{announcement:}_“Enhancing_delivery_of_ILO_services_to_{constituents”}

https://www.ilo.org/intranet/edmsp1/igds/groups/dirdocs/documents/igds/igds_002522.pdf

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”

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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 coordinators17) 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

(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.

18

For further details, please refer to the Office directive on the Outcome‐based workplans:

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.

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5.

Six

‐

step

cycle

of

DWCP

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. Linked to P&B (Outcome-based workplans) Country Context Planning Implementation CP Priorities CP Outcomes Evaluation

Results-based

management

* * *

Constituents

’

involvement

(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]

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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).

Relevantconsiderations

 What are the major decent work trends19, using any statistics or data disaggregated by sex20,

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?

(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)21.

5.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 2008‐13)22

 Promoting productive employment through labour market indicators and skills development

(Priority 1 in Afghanistan DWCP 2010‐15)23

21_Evaluation_database_{“iTrack”:}_{https://www.ilo.org/intranet/english/edmas/eval/itrack.htm} 22_The_full_DWCP_document_is_available_at:

https://www.ilo.org/intranet/english/bureau/program/dwcp/download/dwcp_cotedivoire.pdf

23

The full DWCP document is available at:

(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

2008‐11)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

Relevantconsiderations

 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:

https://www.ilo.org/intranet/english/bureau/program/dwcp/download/dwcp_elsalvador.pdf

25_For_such_capacity_building_support,_Bureaux_for_Employers_Activities_(ACT/EMP)_and_for_Workers

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5.c

Step

3:

Defining

intended

outcomes,

their

measurement

and

strategy

Countryprogrammeoutcomes

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 (2010‐15), 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,andmilestones27forcountryprogrammeoutcomes

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

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 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 (2010‐15), 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 2012. A total of 4 by 2015.

Strategiesforcountryprogrammeoutcomes

Once CP outcomes have been defined, there is a need to establish a clear outcome strategy which

would convincingly explain how activities and outputs28 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 (2009‐12)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.

(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.

Relevantconsiderations

 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),

(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

recurre