ANNEX XXI - (HRD OS) > Home

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