Independent Evaluation Of The ILO's Decent Work Country Programme .
Independent evaluationof the ILO’s Decent WorkCountry Programme Strategiesand Activities in North-Africa:2010-2013For more information:International Labour Office (ILO)Evaluation Unit (EVAL)4, route des MorillonsCH-1211 Geneva 22SwitzerlandTel.: ( 41 22) 799 6440Fax: ( 41 22) 799 6219E-mail: NOFFICE
Independent evaluation of the ILO’s DecentWork Country Programme Strategies andActivities in North Africa: 2010–2013International Labour OfficeSeptember 2014Evaluation Office
Copyright International Labour Organization 2014First published 2014Publications of the International Labour Office enjoy copyright under Protocol 2 of the Universal CopyrightConvention. Nevertheless, short excerpts from them may be reproduced without authorization, on condition thatthe source is indicated. For rights of reproduction or translation, application should be made to ILO Publications(Rights and Permissions), International Labour Office, CH-1211 Geneva 22, Switzerland, or by email:pubdroit@ilo.org. The International Labour Office welcomes such applications.Libraries, institutions and other users registered with reproduction rights organizations may make copies inaccordance with the licences issued to them for this purpose. Visit www.ifrro.org to find the reproduction rightsorganization in your countryIndependent evaluation of ILO Decent Work Country Programme Strategies and Activities in NorthAfrica : 2010-2013 / International Labour Office. - Geneva: ILO, 2014ISBN 978-92-2-129141-1 (print)ISBN 978-92-2-129142-8 (web pdf)International Labour Officedecent work / promotion of employment / social protection / social dialogue / plan of action /programme evaluation / role of ILO / North Africa13.01.1ILO Cataloguing in Publication DataThe designations employed in ILO publications, which are in conformity with United Nations practice, and thepresentation of material therein do not imply the expression of any opinion whatsoever on the part of theInternational Labour Office concerning the legal status of any country, area or territory or of its authorities, orconcerning the delimitation of its frontiers.The responsibility for opinions expressed in signed articles, studies and other contributions rests solely withtheir authors, and publication does not constitute an endorsement by the International Labour Office of theopinions expressed in them.Reference to names of firms and commercial products and processes does not imply their endorsement by theInternational Labour Office, and any failure to mention a particular firm, commercial product or process is not asign of disapproval.ILO publications can be obtained through major booksellers or ILO local offices in many countries, or directfrom ILO Publications, International Labour Office, CH-1211 Geneva 22, Switzerland. Catalogues or lists ofnew publications are available free of charge from the above address, or by email: pubvente@ilo.orgVisit our website: www.ilo.org/publnsPrinted in Switzerland
CONTENTSPageLIST OF TABLES . VLIST OF FIGURES. VABBREVIATIONS. VIACKNOWLEDGEMENTS . IXEXECUTIVE SUMMARY . XPURPOSE OF THE EVALUATION. XOPERATIONAL APPROACH. XSUMMARY OF FINDINGS . XIRELEVANCE . XICOHERENCE AND VALUE ADDED . XIEFFECTIVENESS . XIIEFFICIENCY . XIIIMPACT . XIIISUSTAINABILITY . XIIIOVERALL PERFORMANCE . XIVRECOMMENDATIONS . XVI1.1.1.1.2.1.3.1.4.1.5.1.6.1.7.2.3.INTRODUCTION . 1EVALUATION CRITERIA AND QUESTIONS . 1CONCEPTUAL FRAMEWORK . 2EVALUATION METHODOLOGY . 3DATA SOURCES AND COLLECTION METHODS. 4INTERNET SURVEYS . 8LIMITATIONS . 9REPORT LAYOUT . 9CONTEXT . 112.1.NORTH AFRICA: DECENT WORK DEFICITS AND OPPORTUNITIES. 112.2.SOCIAL DIALOGUE AND TRIPARTISM . 212.3.SOCIAL PROTECTION . 242.4.STATUS OF ILO CONVENTION RATIFICATIONS . 29THE ILO IN NORTH AFRICA . 33STRATEGIC FRAMEWORKS: NORTH AFRICA STRATEGY, ROADMAPS, ETC. . 33COUNTRY-LEVEL PLANS/FRAMEWORK/POLICIES/LEGISLATION OF CONCERN TO THEILO . 393.3.ORGANIZATIONAL STRUCTURE . 433.1.3.2.iii
4.KEY FINDINGS ON EVALUATION CRITERIA WITH REFERENCE TO THE QUESTIONS IN THEEVALUATION . 494.1.STRATEGIC ALIGNMENT . 494.2.RELEVANCE . 494.3.COHERENCE . 584.4.EFFICIENCY . 694.5.EFFECTIVENESS . 734.6.RESULTS/IMPACT . 794.7.SUSTAINABILITY. 834.8.OVERALL PERFORMANCE . 855.SUMMARY OF FINDINGS, LESSONS LEARNED AND RECOMMENDATIONS . 875.1.SUMMARY . 875.2.LESSONS LEARNED AND RECOMMENDATIONS . 895.3.RECOMMENDATIONS . 93OFFICE’s RESPONSE . 96ANNEX I. TERMS OF REFERENCE . 99PURPOSE OF THE EVALUATION: . 99OBJECTIVE OF THE EVALUATION: . 99BACKGROUND:. 99SCOPE OF THE EVALUATION: . 100EVALUATION APPROACH: . 101EVALUATION CLIENTS: . 103EVALUATION MANAGEMENT: . 103ANNEX II. PROJECTS CURRENTLY UNDER IMPLEMENTATION. 104ANNEX III. LIST OF INTERVIEWS. 106REFERENCES . 113iv
LIST OF TABLESTABLE 1: OVERVIEW OF NATIONAL SOCIAL SECURITY SYSTEMS . 25TABLE 2: SOCIAL PROTECTION SCHEMES . 26TABLE 3: NUMBER OF ILO CONVENTIONS RATIFIED . 30TABLE 4: NORTH AFRICA TC PORTFOLIO DISTRIBUTION BY COUNTRY . 44TABLE 5: POLICIES AND LAWS SUPPORTED BY ILO TECHNICAL ASSISTANCE IN NORTH AFRICA . 76TABLE 6: ILO TECHNICAL MANUALS PRODUCED, ADAPTED AND TRANSLATED IN NORTH AFRICA, 2010–13 . 77LIST OF FIGURESFIGURE 1: OVERALL PERFORMANCE SCORES . XIVFIGURE 2: FOUR-PRONGED APPROACH. 4FIGURE 3. NORTH AFRICA EVALUATION CASE STUDIES . 5FIGURE 4: VALIDATION OF FINDINGS . 8FIGURE 5. SHARE OF UNEMPLOYMENT AMONG WOMEN AND YOUTH 1991–2012 (PERCENTAGE) . 20FIGURE 6. STRATEGIC ALIGNMENT OF THE ILO COUNTRY PROGRAMMES . 49FIGURE 7: RELEVANCE RATINGS . 58FIGURE 8: COHERENCE RATING . 69FIGURE 9: EFFICIENCY RATINGS . 72FIGURE 10: EFFECTIVENESS SCORE . 78FIGURE 11: DWT/CO-CAIRO OUTPUTS 2013 . 79FIGURE 12: IMPACT AND SUSTAINABILITY SCORE . 85FIGURE 13: OVERALL PERFORMANCE . 85Volume IICase studies and supporting data available online -eng/index.htmv
ABBREVIATIONSACIAECIDAfDBAreas of critical importanceAgencia Española para la Cooperación Internacional para el Desarrollo[Spanish Agency for Cooperation and International Development]African Development BankANGEMAgence Nationale pour l’Emploi et le Travail Indépendant[National Agency for Employment and Independent Work] (Tunisia)Agence nationale de gestion du microcréditANSEJl’Agence nationale de soutien à l'emploi des jeunesATFPAgence Tunisienne de Formation Profesionnelle[Tunisian Professional Training Agency]Confédération Démocratique du Travail[Democratic Confederation of Labour] (Morocco)Committee of Experts on the Application of Conventions and e National de Formation de Formateurs et de l’Ingénierie de Formation[The National Centre for Training of Trainers and Training Engineering](Tunisia)UN Committee on Economic, Social and Cultural RightsCIDAConfédération Générale des Entreprises Algériennes[General Confederation of Algerian Enterprises]Confédération Générale des Entreprises du Maroc[General Confederation of Moroccan Enterprises]Canadian International Development AgencyCNAMChambre Nationale de l’Artisanat et des MétiersCOCountry OfficeComprehensive Peace AgreementCGEMCPACPOCSOCountry programme outcomeCivil society organizationsCTAChief technical advisorsDACDANIDADevelopment Assistance CommitteeDanish International Development AgencyDDPDDoha Document for Peace in Darfur (2011)DEPARTDéveloppement Économique et Plan d’Action Régionale en créant d’emploisdécents pour les jeunes en TunisieDecent Jobs for Egyptian Youth ProgrammeDJEPDWADWCPDecent Work AgendaDecent Work Country ProgrammeDWTDecent Work TeamECESREgyptian Center for Economic and Social RightsEDLCEgyptian Democratic Labour CongressEFEEritrean Federation of EmployersEFITUEgyptian Federation of Independent Trade UnionsEGPEgyptian poundvi
ESSSÉcole supérieure de la sécurité socialeETUFEgyptian Trade Union FederationEVALEvaluation Office (ILO)FAOFood and Agriculture OrganizationFEIFederation of Egyptian IndustriesFNTTFPRWFédération Nationale des Travailleurs des Transports (Algeria)Fundamental principles and right at workGBGoverning Body (ILO)GDPGross domestic productGIZHQDeutsche Gesellschaft fur Internationale Zusammenarbeit (German Society forInternational Cooperation)High-level evaluationHeadquartersIECInternational evaluation consultantILCInternational Labour ConferenceILOInternational Labour Organization/International Labour OfficeEVALILSExternal Evaluation Unit (ILO)International labour standardsIMFInternational Monetary FundIOMInternational Organization for MigrationIPRSInterim Poverty Reduction StrategyInterim Poverty Reduction Strategy PaperHLEIPRSPIRAMJPImproving the governance of labour migration and the protection of migrantworkers’ rights in Tunisia, Morocco, Libya and EgyptJoint programmeLEDLocal economic developmentM&EMonitoring and evaluationMDG-FMillennium Development Goals FundMFPEMinistère de la Formation Professionnelle et de l’Emploi (Tunisia)MoEMinistry of EducationMoLMoMMMinistry of LabourMinistry of Manpower and MigrationMoPMinistry of PlanningMoUMemorandum of understandingMSMEMico, small and medium enterprisesNational Confederation of Eritrean WorkersNCEWNECNEPNORMESNPCNational evaluation consultantNational employment policiesInternational Labour Standards DepartmentNational project coordinatorvii
NPFNSCNWCNational Pension FundNational Steering Committee (tripartite)OECDNational Wage CouncilOrganization for Economic Cooperation and DevelopmentOSHOccupational safety and healthP&BPAREProgramme and budgetPlan d’Actions Régional pour l’EmploiPHCPost-harvest centrePNESCPSIPacte National Économique et Social de CroissanceProgramme support incomePWDPerson with disabilityRBRegular BudgetResults-based managementRBMRBSARBTCRegular Budget Supplementary AccountRegular Budget Technical CooperationROAFRegional Office for AfricaSBEFSudanese Business and Employers FederationSDCSwiss Development CorporationSDGSEOSudanese poundSenior Evaluation Officer (ILO EVAL)SEPSalvation Economic ProgrammeSMTSenior Management TeamSPCFUnited Nations Strategic Partnership Cooperation FrameworkSPFStrategic Policy FrameworkSWTUFToRSudan Workers’ Trade Union FederationTerms of referenceUCLGUnited Cities and Local AuthoritiesUGTTUnion générale tunisienne de travailUnited Nations Country TeamUNCTUNDAFUNDPUnited Nations Development Assistance FrameworkUnited Nations Development ProgrammeUNICUnited Nations Information CentreUNIDOUnited Nations Industrial Development OrganizationUNRCUnited Nations Resident CoordinatorUSUnited StatesUnion Tunisienne de l'Industrie, du Commerce et de l'ArtisanatUTICAVNGWFCLXBTCviiiVereniging van Nederlandse Gemeenten (Association of NetherlandsMunicipalities)Worst forms of child labourExtra-budget technical cooperation
ACKNOWLEDGEMENTSThis report was prepared by an evaluation team consisting of Francisco L. Guzman, Senior EvaluationOfficer; Joseph Schechla, international consultant; Doha Abdelhamid, national evaluation consultant(Egypt); Samia Satti, national evaluation consultant (Sudan); Feriel Laalai, national consultant(Tunisia); Mini Thakur and Brajesh Pandey, international evaluators; and a team of research assistantscomposed of Arunima Wanchoo, Natasha Hazarika and Dustin Robertson, who provided valuableresearch and data-analysis support.Guy Thijs, Director of the ILO Evaluation Office provided inputs and guidance throughout theprocess. The ILO Decent Work Country Team and Country Office in Cairo and the Country Office inAlgiers provided strong support to the evaluation exercise. Cooperation and support from officials ofthe ILO’s Regional Office for Africa and ILO headquarters is highly appreciated.The Evaluation Office would like to thank the ILO stakeholders in Algeria, Egypt, Eritrea, Libya,Morocco, South Sudan, Sudan and Tunisia, especially key members of the respective governmentsand social partners who participated in the evaluation.The draft report of the evaluation benefited from helpful and constructive suggestions from numerousstakeholders.Any errors or omissions are the responsibility of the Evaluation Office.ix
EXECUTIVE SUMMARYPurpose of the evaluationThis high-level evaluation (HLE) is the first cluster evaluation of the ILO’s decent work strategies andactivities in the North African subregion. The evaluation assesses the Office’s support to thegovernments and social partners in Algeria, Egypt, Eritrea, Libya, Morocco, South Sudan, Sudan andTunisia in their efforts to address decent work deficits. This has involved the evaluation ofsubregional strategic priorities, country strategies and “roadmaps,” technical cooperation (TC)projects and technical assistance (TA) activities carried out during 2010–13. The overarching questionof the evaluation is whether ILO strategies and actions have effectively supported nationalconstituents’ priorities and efforts to fill decent work gaps.Operational approachWithin the Arab Spring context, ILO was strategically positioned with a mandate and services thatwere expected to be in high demand. This, in turn, required the Decent Work Team/Country Officeand Country Office (DWT/CO-Cairo) and the Country Office in Algeria (CO-Algiers) to beadequately resourced and flexible, and the Regional Office-Africa and HQ to be sufficientlyresponsive to resource gaps emerging during the exponential growth of opportunities and operations.These could not be met effectively with the same level of resources available to these offices beforethe uprisings. It also demanded agility and flexibility at both COs and other operational levels.ILO’s interventions have responded to decent work deficits by facilitating entrepreneurshipprogrammes, policy formulation to realize international labour standards (ILS) and FundamentalPrinciples and Rights at Work (FPRW), and strengthening social dialogue. Unfortunately, thesubregion’s demands exceeded most efforts, but the relevance of ILO strategies and activities in thesubregion is beyond question.The aftermath of the uprisings in North Africa required urgent assistance from the ILO, and presentednew opportunities for work both at national and local levels. These new opportunities focused onactivities to provide informal work in both urban and rural areas. Such action is still the norm formany economies in the subregion. Thus, ILO’s strategies and programmes are in line with the futurecountry programme outcomes (CPOs) concentrating on rural and informal employment envisagedduring the Programme and Budger (P&B) for 2016–17, including also the areas of critical importance(ACIs) for 2014–15.x
SUMMARY OF FINDINGSRelevanceIn the absence of fully-fledged Decent Work Country Programmes (DWCPs)—which, in some cases,were stalled at the draft stage just before the dramatic political unrest—the ILO developed nonbindingroadmaps. These provided strategic direction and ensured the relevance and coherence of programmeand project activities, and corresponding CPOs that had emerged since 2011. The evaluation teamfound these activities eminently relevant to national priorities, despite the subregion’s high politicaland institutional instability.Moreover, the evaluation found that these roadmaps and related CPOs are relevant to ILO’s mandate,P&B outcomes and Strategy for North Africa, 2011–2015. They have resonated with the priorities andconcerns articulated in governments’ national schemes and programmes for development, as well aswith the social partners’ priorities. That is to say, the priorities of decent work and the need foremployment, social protection and social dialogue have either been constant or in higher demandthroughout the period and that complete DWCP frameworks are still a priority. However, to beeffective, the technical capacity of the International Labour Office (ILO) and its partners across thesubregion needs to be addressed, in particular, in the areas of migration, human trafficking and socialprotection.Despite ILO’s efforts to develop timely strategies/roadmaps for North African countries undergoingtransition, some of the key national constituents interviewed, e.g. UN country team (UNCT)members, important donors, United Nations (UN) partners and a few ILO staff, had not heard ofthem. This highlights the fact that these strategies served an immediate and interim need intransitional countries without full DWCPs, and that partner institutions experienced high turnoverduring the period. However, two issues need immediate attention: (i) unevenness of tripartiteparticipation in the development of existing strategies/roadmaps; and (ii) the importance of internaland external communication in effectively achieving the strategic objectives in thestrategies/roadmaps. The strategies/roadmaps still have relevance, particularly as they are aligned withcurrent P&B outcomes, CPOs and national priorities.Coherence and value addedILO’s two greatest comparative advantages are its tripartite approach and normative ILS framework.Applying these advantages more vigorously and conveying them more publicly is advisable,especially in light of increased synergies with other UN agencies and joint programmes (JPs), andwith partners that lack these quintessential assets. Nonetheless, it is evident from the surveysconducted that, in North Africa, ILO projects and TA activities have contributed to a betterunderstanding of the ILO’s standards, paving the way for more work needed to apply and realizeFPRW.The evaluation found a need for more systematic design and implementation approaches based oncountry situation analysis, risk assessments and proper baselines to ensure greater coherence andeffectiveness of donor support. Some external observers have perceived weak coherence in ILOoperations, in part, because of insufficient information about ILO’s work, as well as insufficient—orinsufficiently clear—representation. The decision by the Regional Office for Africa (ROAF) to assignthe managerial responsibility of projects in North Africa (except Algeria) to the CO-Cairo and retain“political” representation for the Maghreb with the CO-Algiers, although well-intended may havefurther exacerbated this perception.xi
ILO is aware of the capacity and organizational gaps that hinder the chances of greater coherence,synergies and value added among its activities in the subregion. Greater coherence was the subject ofconsiderable deliberation within ILO in North Africa, and decisions taken at its February 2014 retreatindicate a commitment to addressing this issue.EffectivenessThe ILO interventions were not as effective as envisaged at their inception, largely because of; weaktripartite involvement; low capacity in labour administration entities; cumbersome administrativeprocedures; internal resource limitations; inefficiencies in financial and administrative support atheadquarters (HQ); the tenuous political atmosphere within the countries; and ILO’s security concernsto work in crisis situations. This was aggravated by the fact that some of the TC and TA activities areoverly ambitious and of very short duration, limiting the possibility of achieving all of the intendedresults.Moreover, the effectiveness of the Office’s interventions has been hindered by inadequatecommunication and cooperation between concerned ILO Offices in the region, which createdconfusion among constituents of their roles and responsibilities, and diminished representation at theUNCT level. Limited country presence has caused ILO to miss out on important opportunities,commensurate with its mandate (i.e. employment projects being carried out by UNDP and othermulti-agency development programmes).That is not to suggest that Office personnel and project staff in North Africa have not been diligent.All staff members working in technical, programming, project management, administration orsupport-related positions have shown tremendous energy, competence and selfless dedication to theirjobs. They have earned a reputation as being extremely effective, and committed employees andpublic servants. Nonetheless, some staff and their expertise have been underutilized, notably wheretechnical specialists could be more involved in programming to ensure ILS, FPRW and gender issuesare integrated across all projects.EfficiencyIn general, ILO DWT/CO-Cairo has demonstrated tremendous efficiency, especially in light of theunderstaffing of administrative and operational functions, which have seen programme and projectpersonnel assuming multiple tasks. The sudden growth in programmes and many political and socioeconomic shifts, called for agile and resourceful management, which has engendered mutualappreciation and organizational solidarity among ILO colleagues across the region. Despite theshortage of capacity, ILO was able to make significant contributions in policy and legislative reformthough the impact of these achievements will depend on future support and the required capacity. Thesigning of the Social Contract in Tunisia and the design of comprehensive national employmentpolicies (NEPs) in Morocco, Sudan and Tunisia, are good examples of the effectivess of ILO’stechnical advisory services. Noteworthy are studies commissioned by the CO-Algiers on Job andgrowth – Challenges, perspectives and policies, and L’économie informelle en Algérie - estimations,tendances, politiques. The evaluation team finds that ILO North Africa has largely achieved itsdefined outcomes, within the exceptional constraints of the period and the unstable environment.One consistent factor that impeded project efficiency was the frequent political changes andreappointment of ministers. The country case studies point out how political and institutionalinstability affected the efficient implementation of programmes and projects, and challenged theachievement of expected results. The HLE notes how tripartite coordination platforms, such assteering committees that have been instituted in some projects, is a good practice worth replicating inxii
all projects to facilitate greater programme implementation efficiency, effectiveness and impact, aswell as relevance and coherence.Anticipated management changes in DWT/CO-Cairo and CO-Algiers during this evaluation could bethe occasion to rededicate ILO resources to meeting strategic priorities. Additional technicalcapacities in areas such as social protection, social dialogue, migration and human trafficking areneeded to manage the expanding DWT/CO-Cairo, and tackle the subregion’s decent work deficits.ImpactThe corresponding commitments and efforts of governments and the social partners will ultimatelydetermine the results and impact of ILO’s strategies and actions. For most projects un
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May 02, 2018 · D. Program Evaluation ͟The organization has provided a description of the framework for how each program will be evaluated. The framework should include all the elements below: ͟The evaluation methods are cost-effective for the organization ͟Quantitative and qualitative data is being collected (at Basics tier, data collection must have begun)
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Sekilas ILO di Indonesia Indonesia dan ILO telah menjalin kerja sama sejak Indonesia menjadi anggota ILO pada 12 Juni 1950. Menerapkan struktur tripartit yang unik, ILO membangun kerja . pelatih tentang isu migrasi kerja di kantong-kantong tenaga kerja di Indonesia, serta (v) riset, dokumentasi dan publikasi. 8 Yang kami lakukan: 9
