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INSTRUMENT FOR PRE-ACCESSION ASSISTANCE<br />
HUMAN RESOURCES DEVELOPMENT COMPONENT<br />
OPERATION IDENTIFICATION SHEET<br />
1. Title of the Operation: PROMOTING ACTIVE INCLUSION IN TURKEY<br />
2. Operating Structure:<br />
Ministry of Labour and Social Security (MoLSS) –EU Coordination Department<br />
3. Organisation Responsible for the Implementation of the Operation:<br />
Turkish Employment Agency (İŞKUR)<br />
Mehmet Ali ÖZKAN (Senior Representative of Operation Beneficiary)<br />
Adress : Atatürk Bulvarı No:133, Kızılay, Ankara, TURKEY<br />
Tel. : + 90 312 417 53 39<br />
Fax : + 90 312 417 19 40<br />
4. Compatibility and coherence with the Operational Programme<br />
4.1 Title and number of the Programme Human Resources Development Operational<br />
Programme - CCI No. 2007TR05IPO001<br />
4.2 Title of the priority axis: To promote an inclusive labour market with opportunities<br />
for disadvantaged persons, with a view to their sustainable integration into the labour<br />
force and combat all forms of discrimination in the labour market (Priority Axis 4 –<br />
Social Inclusion).<br />
4.3 Title of the measure: better functioning and coordination among the institutions and<br />
mechanisms in the field of labour market and social protection particularly in order to<br />
facilitate the integration of disadvantaged persons into the labour market. (Measure 4.2)<br />
5. Description of the Operation<br />
5.1 Contribution to the achievement of the Operational Programme:<br />
Promoting Active Inclusion in Turkey Operation will contribute to the achievement of the<br />
overall objective of the Human Resources Development Operational Programme (<strong>HRD</strong> OP),<br />
which is “to support the transition to a knowledge-based economy capable of sustainable<br />
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economic growth with more and better jobs and greater social cohesion”. The operation will<br />
particularly focus on the fourth priority axis of the <strong>HRD</strong> OP whose objective is “to promote an<br />
inclusive labour market with opportunities for disadvantaged people, with a view to their<br />
sustainable integration into the labour force and combat all forms of discrimination in the labour<br />
market”. More specifically, the operation will serve to the achievement of the objectives defined<br />
under Measure 4.2 priority axis of the <strong>HRD</strong> OP that aims at better functioning and coordination<br />
among the institutions and mechanisms in the field of labour market and social protection<br />
particularly in order to facilitate the integration of disadvantaged persons into the labour market.<br />
This operation will increase İŞKUR’s capacity to provide services to the disadvantaged persons<br />
especially through a model which is based on personalized public employment service approach.<br />
In addition, as will be discussed below, various public institutions provide disadvantaged persons<br />
with social services, social assistances and other related services. However, as these services are<br />
provided by different institutions that have different aims, it is not always possible to achieve a<br />
clear impact on social inclusion. To put it more openly, persons are supported by social<br />
assistances, social services and public employment services by means of a segregated system of<br />
support. That support may be for a limited period of time, for a defined amount of money or<br />
participating in active labour market measures. As a result, although those who can access to<br />
such services receive a certain help to be able to continue their lives, it is often not possible to<br />
break the circle of poverty unless a sustainable employment is achieved. Briefly, the operation<br />
will serve to the achievement of objectives defined under Measure 4.2 of the <strong>HRD</strong> OP on the one<br />
hand by creating a better functioning İŞKUR in providing services to the disadvantaged persons<br />
and on the other hand by improving the coordination between İŞKUR and other social service<br />
providers in the field.<br />
By doing this, the Operation stands as the first step to implement the active inclusion approach of<br />
the EU, which foresees labour market inclusion as the most effective strategy for ensuring social<br />
inclusion. For the first time in Turkey, services provided by various institutions will be planned<br />
in a comprehensive way to help disadvantaged persons to be integrated into the labour market by<br />
providing them opportunities for work. Putting employment at the centre of combating poverty<br />
and social exclusion derives from cross-country evidence that proves a negative correlation<br />
between employment and poverty, i.e., being employed reduces the likelihood of being poor.<br />
The operation will be compatible with the other operations carried out by İŞKUR. The outputs<br />
such as individual action plans and model offices in the Improving the Quality of Public<br />
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Employment Services Operation, women friendly activities in the Promoting Women<br />
Employment Operation entrepreneurship model in the Promoting Youth Employment Operation<br />
will be used as inputs in this operation.<br />
Since the operation depends on a personalized approach that would help disadvantaged persons<br />
on their way to work, the public employment services will be developed in a way that would<br />
support the new approach which will ensure the employability of disadvantaged persons.<br />
Therefore, the operation will also serve to the measure 4.1 of the <strong>HRD</strong> OP aiming to increase<br />
employability of disadvantaged persons, facilitate their access to labour market, and eliminate<br />
barriers for their entrance into labour market directly.<br />
5.2 Overall Objective: The overall objective of the Operation is to promote an inclusive<br />
labour market in terms of disadvantaged persons.<br />
5.3 Operation Purpose: The purpose of the Operation is to create a better functioning and<br />
coordination among the institutions and mechanisms in the field of labour market and social<br />
protection particularly in order to facilitate the integration of disadvantaged persons into the<br />
labour market.<br />
5.4 Location(s): The Operation will be implemented in both at national level, 43 provinces<br />
in 12 eligible NUTS II regions and 3 pilot provinces (İstanbul, İzmir, Mersin) in 14 eligible<br />
NUTS II regions.<br />
5.5 Duration: 23 months.<br />
5.6 Target group(s):<br />
• People with disabilities,<br />
• People who are in or at risk of poverty, including those who live in gecekondu areas,<br />
• Ex-convicts and ex-prisoners,<br />
• Internally displaced persons (IDPs),<br />
• Vulnerable persons, referred to in MIPD as "Roma"<br />
• Long term unemployed,<br />
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• Discouraged persons,<br />
• Nomads,<br />
• Other disadvantaged persons as appropriate (i.e. drug addicts, victims of domestic<br />
violence, parents of working children, temporary/seasonal workers especially in<br />
agriculture, children who are implicated in a crime and their families),<br />
• Employers and other employees at the workplace,<br />
• Staff of İŞKUR, other relevant institutions and NGOs.<br />
5.7 Description of the Operation and background:<br />
According to the 2009 Poverty Study conducted by TURKSTAT based on Household Budget<br />
Survey results, poverty rate is 18, 08 percent, which corresponds to 12.7 million people, in<br />
Turkey. Poverty is more widespread in rural areas (38, 69 percent) than in urban areas (8, 86<br />
percent). Poverty increases with household size and especially with the number of dependent<br />
children and decreases as education level increases. Parallel to the cross-country evidence,<br />
poverty rate is the lowest (6, 05 percent) among wage/salary earners and the highest among the<br />
unemployed (19, 51 percent).<br />
Although poverty is closely related with social exclusion, social exclusion represents a more<br />
comprehensive approach where both monetary and non-monetary factors are taken into<br />
consideration. For instance, although a poor person is more likely to be socially excluded, a<br />
socially excluded person does not have to be poor. An example may be a disabled person who is<br />
socially excluded due to reasons other than poverty (such as physical reasons, prejudices against<br />
them or having less chances in life due to low access to education). Thus, it may be argued that<br />
social exclusion has a wider perspective than monetary poverty in explaining people’s living<br />
conditions and difficulties that they face.<br />
Therefore, by and large, target groups of this Operation are those who are poor, at risk of poverty<br />
and/or socially excluded. Although the needs of target groups referred in section 5.6 above<br />
differ, it is well known that common characteristics of all disadvantaged persons are being poor<br />
or at risk of poverty resulted primarily by low chances of being employed, living in gecekondu<br />
areas, working in unregistered and/or temporary jobs and having low education and skills.<br />
Therefore, active labour market policies that would support their access to labour market should<br />
be at the centre of an attempt to ensure their inclusion in the social life. Unlike other unemployed<br />
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and inactive people, disadvantaged persons need additional supports before being involved in<br />
active measures.<br />
As in the case of poverty, being employed still stands as the best response to social exclusion<br />
simply because a sustainable and decent employment opportunity makes it easier to be integrated<br />
in the social life. There are no concrete data and statistics regarding labour market situation and<br />
poverty of disadvantaged groups, apart from disabled people. According to TURKSTAT<br />
Statistical Year 2010, the labour force participation rate for disabled people is 22.29 percent;<br />
while the unemployment rate for the disabled people is 13.11 percent in 2002. However, it is not<br />
difficult to conclude that labour market conditions (both labour market participation and<br />
unemployment rates) in terms of disadvantaged persons are more severe than the average by<br />
taking into account their low level of education and skills intensified with the social prejudices<br />
preventing their equal access to the labour market.<br />
In Turkey, social assistances, social services and public employment services have been<br />
provided by different institutions for their target groups defined by their own legislation. A<br />
summary of public institutions providing social services, social assistances, public employment<br />
services and other services are provided in Box 1 below.<br />
Box 1: Main Service Providers in the Field<br />
- Ministry of Labour and Social Security (ÇSGB) is the main institution for designing<br />
employment policy.<br />
- ÇSGB General Directorate of Labour provides services for disadvantaged persons, particularly<br />
for women, disabled and working children.<br />
- Turkish Employment Agency (İŞKUR), an affiliated institution of ÇSGB, is the public<br />
employment institution that provides a wide range of services including ALMPs (vocational and<br />
on-the-job trainings, job and vocational guidance services, job search assistance and jobcoaching<br />
services), collecting, analyzing and reporting labour market data at national and<br />
regional levels, coordinating Labour Market Information and Consultation Board, making<br />
needs analyses of labour in order to define the demand for and supply of labour, and conducting<br />
work and occupation analyses. It provides these services for all job seekers with a special<br />
emphasis to people with disabilities and ex-convicts deriving from its legislation.<br />
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- Social Security Institution (SGK) provides social assistances to old-aged and disabled who has<br />
no income to support themselves in addition to its contribution-based social insurance services.<br />
- Ministry of Family and Social Policies was established on 03.06.2011 by decree law. General<br />
Directorate of Child Services and General Directorate of Social Assistance (SYDGM) will carry<br />
out their activities under this Ministry.<br />
- General Directorate of Child Services provides services for children in need of protection.<br />
- General Directorate of Social Assistance is the main social assistance institution providing in<br />
cash and in kind transfers to people in need by means of its 931 Social Assistance and Solidarity<br />
Foundations (SYDVs).<br />
- Ministry of Interior provides services for internally displaced persons (IDPs) and vulnerable<br />
persons referred to in MIPD as "Roma<br />
- Turkish International Academy against Drugs and Organized Crime (TADOC) an affiliated<br />
institution of Ministry of Interior (GD of Turkish National Police) combats narcotics and<br />
organized crime.<br />
- Ministry of Health provides rehabilitation services for disadvantaged groups.<br />
- Ministry of Justice provides services for ex-convicts and ex-prisoners<br />
- Ministry of National Education, General Directorate of Special Education, Guidance and<br />
Counselling Services provides services for developing education and training of persons who<br />
need special education.<br />
Housing Development Administration of Turkey (TOKI) provides cheap housing<br />
opportunities to low-income people.<br />
In addition to public institutions, municipalities and NGOs provide social services and social<br />
assistances.<br />
In order to render more efficient service, an Action Plan (Establishment and Functioning of a<br />
Linkage between Social Assistance System and Employment Services Action Plan) is prepared<br />
by Ministry of Development by the involvement of all relevant public institutions. The main aim<br />
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of the action plan is to strengthen the linkage between social assistance system and employment<br />
by three main activities:<br />
- Persons, who are proper for working but don’t work and has applied and received social<br />
assistance recently will be registered to İŞKUR’s system by related institutions.<br />
- Those people directed from social assistance institutions to İŞKUR will be contacted;<br />
their skill levels will be tested, they will be directed to training programs they need and<br />
they will receive job seek support or will be directed to vacancies and placed to jobs.<br />
- Special programmes will be developed by İŞKUR for them.<br />
Following the action plan, by signing protocols between İŞKUR and related institutions legal<br />
background is determined. Most of the activities have already started to be implemented (Most<br />
of the activities already have been started, for later it is planned to continue). Consequently, (i)<br />
İŞKUR will be covering more unemployed/inactive people, (ii) those who receive social services<br />
and/or social assistances will be directed towards public employment services, and (iii) İŞKUR<br />
will contact to those persons and develop appropriate programs for them. 1.868 of those people<br />
who are directed by this way were placed to jobs; 2.433 of them attended to labour force training<br />
courses and 12.095 of them benefited from guidance and counselling services. 1 The model to be<br />
developed by the Operation will contribute to execution of that protocol.<br />
In order to tackle with the problem stemming from the lack of coordination among social<br />
assistances, social services and public employment services, as a second attempt, some of<br />
services especially the ones related to social assistances were gathered under one ministry;<br />
Ministry of Family and Social Policies was established by Decree Law numbered 633.<br />
Despite the affirmative actions taken in the field to respond challenges identified above, there is<br />
an imminent need for additional actions to promote social inclusion of the disadvantaged<br />
persons. This operation will concentrate more on employment policies which have been included<br />
in the policy options for social inclusion in recent years. In many countries, traditional policies<br />
aiming at tackling poverty and social exclusion (such as social services and social assistances)<br />
have been combined with employment policies especially for disadvantaged persons with a view<br />
to direct them towards employment. Known as ‘active inclusion’, this approach underlines the<br />
necessity of an integrated comprehensive strategy combining various supports with a view to<br />
1 İŞKUR data base November 2011<br />
7
increase employability and employment. Hence, the new public service model including<br />
employment services developed under this operation will base on such a comprehensive strategy<br />
named as personal pathways to work approach and identified in the Box 2 below.<br />
Box 2: Personal Pathways to Work<br />
As discussed above, training is important for all disadvantaged persons as low education and<br />
skills are their common problems. However, disadvantaged persons are composed of different<br />
people having different specific needs. Therefore, trainings and other active measures should be<br />
supplemented by other measures, which are defined as guidance and rehabilitation services and<br />
awareness raising activities below. Supplementary supports may be in the form of psychological<br />
help (especially for women, ex-convicts and ex-prisoners and disabled) in order to motivate them<br />
towards trainings and jobs, personal guidance to support them in the process, involving<br />
employers, family members and larger society to break the prejudices and negative attitude<br />
towards them. This implies a need for a ‘personalized support’ rather than simply involving them<br />
in existing services of İŞKUR. Therefore, within the scope of Operation:<br />
- Active Labour Market Programmes (ALMPs), i.e., training and re-training including<br />
vocational and on-the-job trainings, job search assistance, job and vocational guidance and<br />
counselling services, and entrepreneurship trainings/supports, targeting disadvantaged persons<br />
should be implemented with an extensive approach in a way to include following dimensions,<br />
- Guidance and counselling services for those who may be directed towards the labour market<br />
through any type of guidance and counselling services,<br />
- Rehabilitation programmes, especially in the cases of the disabled, ex-convicts, ex-prisoners,<br />
who need physical and/or psychological rehabilitation before taking part in any other activity to<br />
be employed,<br />
- Awareness raising activities to inform the target groups on their legislative rights, existing<br />
services of public institutions and the ways to access to these services as well as to tackle with<br />
prejudices against them in the society/workplaces, which stand as the main obstacle hindering<br />
their access to labour market.<br />
Developments outlined above intensified the registration of the disadvantaged persons in<br />
İŞKUR’s database. But, İŞKUR is lack of a public employment services for providing effective<br />
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services to the disadvantaged. Therefore, there is a need for a model which will make İŞKUR<br />
capable in providing quality guidance and consultation services to the disadvantaged to achieve<br />
their labour market integration. This operation was originated from the detection of this need<br />
and aims to the development of an innovative public employment service model which will<br />
increase İŞKUR’s capacity to provide services to the disadvantaged persons. To that aim, public<br />
service model including employment services should be personalized so as to provide the<br />
disadvantaged persons with necessary services, and institutional capacity of İŞKUR (as well as<br />
related social assistance institutions) must be supported to be able to provide such services to<br />
eliminate barriers for disadvantaged persons’ entrance into the labour market. Moreover,<br />
requirements of the labour market in the location where the Operation is implemented shall also<br />
be taken into consideration in this newly developed model.<br />
Public service model including employment services developed within the scope of the operation<br />
will be implemented by job and occupational counsellors. In order to carry out the services<br />
İŞKUR restructures job and occupational counselling services. Accordingly, İŞKUR will hire<br />
2000 contracted job and occupational counsellors in 2012 all over Turkey. İŞKUR will provide a<br />
detailed training program for those job and occupational counsellors. 502 of those job and<br />
occupational counsellors who are hired will be employed in 12 NUTS II and 180 of them will be<br />
employed in 3 pilot provinces, 14 NUTS-II These 682 2 job and occupational counsellors will<br />
also have an extra training to be able to provide services to the disadvantaged persons within the<br />
scope of the operation.<br />
Within the scope of the model developed in this operation, the disadvantaged persons receiving<br />
public employment services from İŞKUR will be followed by means of personal files which<br />
contain the necessary information related to disadvantaged persons such as qualifications, living<br />
conditions, social assistance or rehabilitation services received or needed, and difficulties faced<br />
in access to labour market. Those files will be recorded by job and occupational counsellors. By<br />
doing so, the coordination among the services of the institutions to achieve the integration of<br />
disadvantaged people into labour market will also be achieved.<br />
In the scope of newly developed model, job and occupational counsellors will be the personal<br />
contact point for disadvantaged persons within İŞKUR. The model should be designed in a way<br />
to ensure that provision of following services to the disadvantaged by job and occupational<br />
2 See Annex I for 682 job and occupational counsellors’ distribution in provinces<br />
9
counsellors (This is not an exclusive list of services provided by job and occupational<br />
counsellors, the model may include more than the services listed below):<br />
conducting the first interview with the person in order to understand his/her education<br />
level, skills, previous work experience (if any), living conditions and obstacles for<br />
work,<br />
preparing a personal pathway to work (please see Box 2 above) with the person<br />
himself/herself,<br />
directing him/her to guidance, rehabilitation, and vocational trainings or any other<br />
activity according to his/her needs,<br />
helping him/her on CV preparation and interview techniques,<br />
following the person in each step, meeting at the end of each step to talk and update<br />
his/her pathway according to the level of employability achieved,<br />
organizing visits to employers, employer organizations, finance institutions and to<br />
any other organization that would possibly have positions for persons in the<br />
counsellors’ portfolio,<br />
paying special attention to fulfillment of disabled employment quotas in private and<br />
public institutions,<br />
collecting all the information about each of the disadvantaged in a computer-based<br />
file that will enable to follow the progress achieved in a faster way by taking personal<br />
data protection into account.<br />
Deriving from the multi-dimensional nature of social inclusion and the wide range of target<br />
groups of the Operation, two additional bodies will be established namely Central Coordination<br />
Board (CCB) and Local Coordination Boards (LCBs).<br />
Central Coordination Board (CCB) : In order to implement the new integrated service model<br />
which will be designed by the Operation, CCB will be established. That board will coordinate<br />
the implementation of activities at central level. It will consist of representatives (who will also<br />
be the contact persons for this Operation) of the relevant ministries and institutions that are<br />
directly responsible for target groups. The representatives will be from:<br />
Ministry of Family and Social Policies<br />
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• General Directorate of Social Assistance for people, General Director<br />
• General Directorate of Child Services, General Director<br />
• General Directorate on the Status of Women (KSGM), General Director<br />
• General Directorate of Services for Disabled and Old People, General Director<br />
Ministry of Interior, related General Director<br />
Ministry of Justice related General Director<br />
Ministry of Health related General Director<br />
Ministry of Interior (TADOC- Turkish International Academy against Drugs and<br />
Organized Crime), Head of TADOC<br />
GD of Labour of MoLSS, General Director<br />
Social Security Institution (SGK), , Head of SGK<br />
GD of Special Education, Guidance and Counseling Services, Ministry of National<br />
Education, General Director<br />
Housing Development Administration of Turkey(TOKI)<br />
The Union of Municipalities, Head of Union<br />
In addition to public institutions, representatives from related institutions and NGOs will<br />
be invited to CCB meetings in order to facilitate employment opportunities for the target<br />
groups.<br />
CCB will meet bimonthly. Organization of the meetings will be conducted by TAT in<br />
coordination with İŞKUR. TAT will be responsible from taking the minutes and inform the<br />
members about the agenda before meetings. At these meetings, implementation of operation<br />
activities, issues related to target groups will be discussed and representatives of relevant<br />
ministries and institutions (especially those who work with the same target groups) will consult<br />
with each other. CCB meetings are vital for ensuring exchange of views and taking decisions<br />
during the implementation phase of the Operation. <strong>OS</strong> will participate in these meetings as an<br />
observer. A representative of OCU and TAT will participate in the meetings for providing<br />
information.<br />
Local Coordination Boards (LCBs): LCBs will be the main coordination body at the<br />
provincial level. Provincial directorates of İŞKUR and Provincial Employment and Vocational<br />
Training Boards will coordinate activities of LCBs. Members of the Provincial Employment and<br />
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Vocational Training Boards will be the core members of LCBs, representatives of NGOs and<br />
other relevant institutions (Provincial Directorates of CCB members) will be invited to meetings<br />
when necessary. LCB meetings will be combined with the meetings of the Provincial<br />
Employment and Vocational Training Boards and meeting minutes will be delivered to OCU by<br />
the LCBs.<br />
The Operation will contribute to the achievement of the objective defined above through a<br />
service contract which serves to transform İŞKUR into a more effective public employment<br />
services institution. The service contract will support the developing a new public service model<br />
including employment services specific to the disadvantaged persons and aiming to enhance<br />
their integration to the labour market.<br />
The operation will compose of two main sets of activities:<br />
Capacity building activities will be conducted in order to support İŞKUR’s capacity and<br />
coordination between İŞKUR and social protection institutions with the aim of enhancing<br />
employability/employment of disadvantaged persons.<br />
Awareness raising activities will be carried out for:<br />
• Disadvantaged persons to inform them about means to access public employment<br />
and social protection services as well as to increase their self-esteem, selfconfidence<br />
and motivation. Besides, by means of these awareness raising<br />
activities, the Operation will also be promoted.<br />
• General public especially for employers and other employees at the workplace<br />
about the newly developed model and the prejudices against disadvantaged<br />
persons to ensure their inclusion.<br />
As the final objective of this Operation is increasing labour market integration of the<br />
disadvantaged persons, all activities outlined above will be designed in such a way that the<br />
persons will be supported by any of these services according to the type and level of their<br />
disadvantage, specific needs and qualifications. Therefore, all the ingredients of the ALMPs<br />
indicated in Box 1 will be consecutive, complementary and strongly linked; so that any person<br />
shall be guided from one type of activity to another until s/he is employable / employed. Any of<br />
the activities may be by-passed taking into consideration the special conditions of persons.<br />
5.8 Results with measurable indicators:<br />
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1. The capacity of İŞKUR and other relevant institutions increased in order to provide<br />
improved services to the disadvantaged persons.<br />
• One service model to enhance employability/employment of disadvantaged persons<br />
was designed and put into force.<br />
• X number of disadvantaged persons 3 received guidance, counseling and/or<br />
rehabilitation services from İŞKUR and/or other relevant institutions.<br />
• Approximately X number of staff of İŞKUR and other relevant institutions<br />
participated in the training activities of this operation.<br />
• X% of the disadvantaged persons benefited from guidance, counseling and/or<br />
rehabilitation services from İŞKUR and/or other relevant institutions were activated.<br />
2. Awareness raising activities aiming to combat discrimination and prejudices against the<br />
disadvantaged, which stands as a barrier for their entrance into labour market were conducted.<br />
• At least X number of people were reached by various awareness raising programmes.<br />
5.9 Activities:<br />
‣ Project launching ceremony.<br />
Result 1. The capacity of İŞKUR and other relevant institutions increased in order to provide<br />
improved services to the disadvantaged persons.<br />
1.1. Conducting background studies in order to ensure a better understanding of being<br />
disadvantaged and prevailing conditions in the local labour markets in terms of disadvantaged<br />
persons. 4<br />
1.2. Developing the guidance, counseling, rehabilitation services delivered for increasing the<br />
employability of labour force and other services for job placing in a way that the disadvantaged<br />
persons access and benefit easily and designing a public service model including an integral<br />
service delivery which is coordinated by the institutions.<br />
3 Half of them is planned to be women.<br />
4 Background studies may be conducted for each target group where applicable.<br />
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1.3 Training the staff on the basis of new public service model including employment services<br />
specific to the disadvantaged persons<br />
Result 2: Awareness-raising activities aiming to combat discrimination and prejudices<br />
against the disadvantaged persons which stands as a barrier for their entrance into labour<br />
market were carried out.<br />
2.1 Preparing and organizing communication campaigns which aim to increase accessibility of<br />
disadvantaged persons to public and private workplaces, educational institutions and relevant<br />
public service providers.<br />
2.2. Identifying role models who had similar problems in the past and sharing their success<br />
stories by visual materials and ensuring the broadcasting of some visual materials as public<br />
spot. 5<br />
2.3. Holding awareness raising conferences 6 to inform disadvantaged persons about the newly<br />
established model of İŞKUR and to eliminate widespread prejudices of general public, especially<br />
employers and NGOs.<br />
2.4. Preparing and distributing promotion materials and short movies to combat discrimination<br />
and to eliminate prejudices at national, regional and local levels and ensuring the broadcasting of<br />
some visual materials as public spot.<br />
2.5. Implementing awareness raising activities for the persons out of the target groups through<br />
visual and written/ printed publicity materials (especially by Radio and Television Supreme<br />
Council -RTÜK, Ministry of Family and Social Policies, Department of Religious Affairs,<br />
MoNE and Ministry of Health).<br />
6. Implementation arrangements<br />
6.1 Institutional framework:<br />
The overall management of the Operation will be carried out by the following structures:<br />
• Contracting Authority (CA)<br />
• Operation Beneficiary (OB),<br />
5 The role models will share their stories in awareness raising conferences identified under Activity 2.3<br />
6 These conferences/ seminars should also be used as an opportunity to access disadvantaged persons who are not<br />
registered to İŞKUR database or out of scope of services provided by İŞKUR.<br />
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• Senior Representative of the Operation Beneficiary (SROB),<br />
• Operation Coordination Unit (OCU).<br />
This operation will be implemented under the Human Resources Development Operational<br />
Programme (<strong>HRD</strong> OP) which is managed by Ministry of Labour and Social Security (MoLSS)<br />
as the Operating Structure (<strong>OS</strong>) which also fulfills tendering and contracting tasks as the <strong>HRD</strong><br />
Contracting Authority. The <strong>OS</strong> will be represented by Deputy Undersecretary of MoLSS as the<br />
Head of Operating Structure while the CA will be represented by the Head of EU Coordination<br />
Department as Programme Authorising Officer (PAO).<br />
Contracting Authority: The CA will be responsible for tendering, technical and financial<br />
management of contracts under the operation. It ensures that all the documents, reports submitted<br />
by contractors are duly checked /controlled/ read/ approved by the OB which cooperates with the<br />
CA in managing the operation and any other aspects with relevance to the implementation of the<br />
Operation.<br />
Operation Beneficiary: İŞKUR as the operation beneficiary will be responsible for the<br />
implementation of this operation. To that end, İŞKUR will assign a high level manager who will<br />
act as SROB that will be the official representative of the OB. OB will establish an OCU which<br />
is the responsible body for supervision of implementation of the operation.<br />
Senior Representative of the Operation Beneficiary: The operation will be implemented under<br />
the authority of the SROB on the side of beneficiary. The SROB will act as the formal<br />
representative of İŞKUR and will assume ultimate responsibility for the successful<br />
implementation of the operation against the <strong>OS</strong>. He/she cooperates with the teams responsible to<br />
implement contracts (such as grant beneficiaries) ensuring that the tasks are performed in<br />
accordance with the pre-defined deadlines and the standards of quality required. He/she will<br />
provide preliminary approval of the reports of the contracts, or any technical and financial<br />
documents (such as approval of invoices with “read and approved” stamp) or deliverables and<br />
outputs, before final approval by the Contracting Authority.<br />
Operation Coordination Unit: İŞKUR will establish an OCU which will be adequately staffed<br />
composing of an Operation Coordinator and (at least) five İŞKUR experts. The exact number of<br />
OCU staff will be determined through the Operational Agreement which will be signed between<br />
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SROB and Head of Operating Structure. Existence of a professional and stable staff of OCU is<br />
guaranteed by İŞKUR as a crucial factor for the timely and proper implementation of the<br />
Operation.<br />
OCU is responsible for supervising the implementation of the operation which may include<br />
different types of contracts that will be managed by the CA. It will perform the following tasks<br />
(it is not an exhaustive list):<br />
- Following operation activities and working in close cooperation with the teams<br />
responsible to implement contracts,<br />
- Coordinate and facilitate processes between SROB, the teams responsible to implement<br />
contracts (consultant, contractor, grant beneficiary, TAT, etc. ) and the CA regarding any<br />
kind of reports, requests, documents which need approval of SROB.<br />
- Ensuring the required coordination with other departments within İŞKUR or other<br />
institutions related to the implementation of the operation.<br />
- Ensuring timely delivery of all electronic and in paper reports, documents, transactions<br />
and information from grant beneficiaries as well as first level check and control of<br />
administrative, technical and financial aspects of the reports in accordance with the forms<br />
and instructions forwarded by the CA. OCU will act in line with the instructions<br />
delivered by the CA in terms of on desk and on spot checks/controls.<br />
6.2 Proposed monitoring structure and methodology:<br />
The overall monitoring of the Operation will be performed by the following structures and tools<br />
under the daily supervision and secretariat of the OCU:<br />
• Operation Steering Committee Meetings,<br />
• Operation Monthly Management Meetings (and other if necessary),<br />
Operation Steering Committee (<strong>OS</strong>C): <strong>OS</strong>C will be established to serve as a platform to share<br />
results achieved, follow-up of progress of the Operation (including different types of<br />
components/contracts) and exchange experiences, ideas etc. The SROB will initiate the<br />
establishment of a core <strong>OS</strong>C which will be composed of representatives of OCU, the teams<br />
responsible to implement contracts (consultant, contractor, grant beneficiary, Technical<br />
Assistance Team (TAT) , etc.), the CA, stakeholders such as Ministry of Development, MoLLS<br />
MoNE, TÜİK, Under secretariat of Treasury, Ministry of EU Affairs, TOBB, TİSK, TESK,<br />
TÜRK-İŞ, HAK-İŞ, DİSK and the institutions existing in the CCB. Contracting Authority and<br />
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the European Union Delegation in Turkey (EUD) are ex officio members of the Committee. The<br />
<strong>OS</strong>C will meet on a semi-annual basis. First <strong>OS</strong>C will be organized 6 months after the first<br />
service or grant contract signed under the Operation. Organization of <strong>OS</strong>C meetings is under<br />
responsibility of İŞKUR which may use TAT when available. Agenda of the <strong>OS</strong>C and brief note<br />
on the issues that will be discussed in the meeting will be provided to the members of the <strong>OS</strong>C at<br />
latest 1 week before. Minutes of <strong>OS</strong>C meetings will be kept by İŞKUR (or TAT when available)<br />
and submitted to the participants in the meetings for their approvals at latest 1 week after.<br />
Minutes, agenda and brief notes can only be sent to the participants after the approval of the CA.<br />
Operation Monthly Management Meetings: It will be convened in order to monitor the activities<br />
of the operation, discuss and assess the progress of the operation and provide solution to the<br />
problems arising during the implementation of the operation. These meetings will be chaired by<br />
SROB. Contracting Authority, EUD, OCU and representatives of the contracts composing the<br />
operation (such as TAT) will be participants of the monthly management meetings. Minutes of<br />
OMMM will be kept by İŞKUR (or TAT when available) and submitted to the participants in the<br />
meetings for their approvals. OCU may organize additional meetings with the teams responsible<br />
to implement contracts if necessary.<br />
As regards monitoring of operation on the basis of reports;<br />
In terms of entire operation; İŞKUR will submit progress reports to the CA on the overall<br />
progress of the operation. The format of the progress reports including irregularity reports will be<br />
provided by the CA. Progress reports (PR) will cover the developments (such as technical and<br />
financial progress and indicators, achievements, risks and remedial actions etc.) incurred under<br />
the operation. PR will be submitted once in a year. Exact timing of submitting PR to the CA will<br />
be defined by the <strong>OS</strong> through the Operational Agreement.<br />
İŞKUR will prepare Final Component Reports (FCR) when a component (service contract,<br />
supply contract, grant scheme) under the Operation is concluded. The format of the FCR<br />
including irregularity reports will be provided by the CA. FCR will cover all activities and<br />
transactions (such as technical and financial data and indicators, achievements, failures,<br />
sustainability, lessons learnt etc.) incurred under the operation. Exact timing of submitting FCR<br />
to the CA will be defined by the <strong>OS</strong> through the Operational Agreement.<br />
In terms of contracts; İŞKUR with its OCU will ensure that the responsibilities regarding<br />
delivery, check, control and approval of documents as stated in 6.a part of the OIS are duly<br />
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performed. Types, frequency and content of the documents and reports will be defined<br />
specifically in the relevant tender documents of the contracts.<br />
İŞKUR is aware of its responsibilities as the OB including reporting requirements which will be<br />
defined in the Operational Agreement in detail. İŞKUR is also aware that in addition to the<br />
reports mentioned above, ad hoc reports may be requested by the Contracting Authority on<br />
various aspects or issues related to the implementation of the operation. The content and time of<br />
submission of such ad-hoc reports will be agreed between İŞKUR and the Contracting Authority<br />
on a case-by-case basis.<br />
6.3 Required procedures and contracts for the implementation of the operation and<br />
their sequencing:<br />
Contract(s) Call for Tendering Signing contract Contract Completion<br />
Service<br />
Contract<br />
2012/ Q2 2013/ Q1 2015/ Q1<br />
7. Risks and assumptions:<br />
Risks:<br />
• Major break or interruption on the implementation of IPA in Turkey.<br />
• Lack of adequate political commitment to the objectives of the Operation.<br />
• Lack of awareness, willingness and motivation of the target groups.<br />
• Major changes in the staff working in the Operation.<br />
• Difficulties in reaching the target groups.<br />
• Lack of job opportunities and of appropriate working environment for the target groups of this<br />
Operation.<br />
• Lack of coordination among key institutions and İŞKUR.<br />
Assumptions:<br />
• Smooth implementation of the IPA instrument all over the period of execution of the<br />
Operation is ensured.<br />
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• Political and institutional stability is maintained.<br />
• Active and committed coordination and cooperation among all parties are achieved.<br />
• Target groups are fully committed and willing to take part in the activities.<br />
• Central and local administrations are supportive regarding Project implementation.<br />
• The institutions are aware of their roles and responsibilities in the Operation.<br />
• Successful flow of information and connections among the institutions providing services to<br />
the disadvantaged persons are achieved.<br />
8. Expected impact of the operation on the target group and multiplier/spillover effects:<br />
The main expected impact of the Operation on the target group, namely the disadvantaged<br />
persons, will be increasing their employability and eliminating barriers against their access to<br />
labour market.<br />
Anticipated multiplier/spillover effects are the following:<br />
• Decreased risk of social exclusion of the disadvantaged persons that will lead to greater social<br />
cohesion.<br />
• Improved synergy, coordination and culture of working together among the institutions<br />
functioning in the field of social protection.<br />
• More and accurate information on the target groups that will improve the quality of projects<br />
and policies.<br />
• New mechanisms and practices leading to easier access of the disadvantaged persons to the<br />
services.<br />
• Increased awareness of the employers, employees and the society at large that would lead to a<br />
decrease in the prejudices against the disadvantaged persons.<br />
• Changed attitude towards the disadvantaged persons and improved social cohesion<br />
encouraging the persons at risk of exclusion to integrate into both social life and labour<br />
market.<br />
• New approaches providing tailor-made solutions for specific needs of disadvantaged persons.<br />
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9. Sustainability:<br />
The sustainability of the Operation will be ensured, first of all, through Establishment and<br />
implementation of a new public services model including employment services in the Operation:<br />
In order to carry out İŞKUR’s services more effectively and efficiently, Job and Occupational<br />
Consultancy services are re-organized in institutional structuring. Accordingly, İŞKUR will hire<br />
2000 contracted job and occupational counselors in 2012 and 2000 more counselors in next<br />
period with a total number of 4000. 502 of them will work in 43 provinces in 12 NUTS II region<br />
and 180 of them will be employed in 3 pilot provinces, 14 NUTS-II Institutional sustainability<br />
will be ensured by trained and more productive job and occupational counselors hired.<br />
In order to ensure the sustainability of the model, it is planned to deliver training of trainers for<br />
the personnel of General Directorate and the most successful counsellor of each province who<br />
are trained within the scope of the model. After the operation is ended, 50 staff of İŞKUR who is<br />
competent in the model will train the job and occupational counselors who work in provinces<br />
which were not covered in the operation and the sustainability will be ensured by this way.<br />
Training expenses of job and occupational counsellors will be covered from İŞKUR budget.<br />
Consequently, the model developed under this operation will be implemented by İŞKUR across<br />
the country.<br />
CCB and LCBs, on the other hand, are expected to continue to work after the finalization of the<br />
Operation. Existing local structures, i.e. Provincial directorates of İŞKUR and Provincial<br />
Employment and Vocational Training Boards will be strengthened by this and other Operations<br />
financed by <strong>HRD</strong> OP and they will be able to work together after the Operation.<br />
Close cooperation among different stakeholders developed within the planning and<br />
implementation of activities will continue at national and local levels in order to assure the<br />
labour market inclusion of disadvantaged people. İŞKUR and social protection institutions will<br />
experience working together in providing people with a set of services in a coordinated way<br />
rather than providing various services to their target groups in a non-coordinated way. For this<br />
reason, besides the current protocols applied, with the contribution of the operation, it is<br />
important to cooperate and sign protocols with other institutions that this policy will ensure the<br />
sustainability after the operation.<br />
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10. Horizontal Issues:<br />
The Operation will take into consideration the following horizontal issues which <strong>HRD</strong> OP and<br />
MIPD for Turkey refer:<br />
Equal opportunities for men and women will be ensured in the selection of participants except<br />
for the activities planned solely for women. All the participants of this Operation will fully<br />
benefit from equal opportunities, especially with respect to their gender; special measures will be<br />
taken to encourage women’s participation to this Operation by taking the social and economic<br />
obstacles for women’s employment in the region into account. For instance, a particular attention<br />
on gender dimension will be given in research activities, background studies and manuals of<br />
guidance.<br />
As regards sustainable development and environmental protection, necessary actions for<br />
ensuring the well-being of environment and society will be taken when appropriate. To that aim,<br />
for example, usage of environment-friendly materials and equipment during the Operation will<br />
be encouraged.<br />
As regards participation of civil society, partnership approach will be ensured in the<br />
implementation phase. Civil society and local administrations as well as provincial<br />
administrations and municipalities will be participating in the Operation actively in the form of<br />
partnership.<br />
As regards geographical, sectoral and thematic concentration, Operation will be implemented in<br />
eligible 12 NUTS II regions (15 growth centers and hinterlands), as mentioned before. 3 pilot<br />
provinces from 14 NUTS II regions were selected for implementation of the operation. The<br />
thematic focus of this operation will be ensured by delivering active labour market policies to<br />
increase employability of the disadvantaged and entrepreneurship. The sectoral concentration<br />
will also be achieved by conducting vocational training/retraining and entrepreneurship activities<br />
in line with the labour market and economic needs at local level.<br />
As regards good governance, that issue will be a permanent concern of the Operation at all<br />
stages and levels. All administrative procedures concerned with the award of contracts will<br />
strictly follow relevant EU rules and procedures. Lastly, transparency of procedures and results<br />
will be sought at all times.<br />
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11. Links with other IPA component measures:<br />
This operation is linked with IPA component III on “Regional Competitiveness OP (RC OP)”<br />
and particularly with the measure M.2.1 of the RC OP which aims at improving the<br />
entrepreneurial skills. The disadvantaged who will benefit from entrepreneurial trainings and<br />
guidance services delivered in the Operation will also be supported by the RC OP to start-up<br />
their business and to establish their business plans. Furthermore, improving the employability of<br />
the disadvantaged people will assist on the improvement of business environment by providing<br />
a more skilled labour force. In addition to these issues, attention will be paid to the sectoral<br />
analyses and priorities of the RC OP in order to ensure that trainings and guidance delivered in<br />
this operation will be consistent with the local/regional economic needs.<br />
Total Budget of the Operation: 7.700.000 €<br />
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