SUPPORT TO THE LABOR MARKET INTEGRATION OF REFUGEES IN GREECE Output 1.a: Recommendation report to inform the Pilot design and implementation DECEMBER 2021 Funded by the European Union via the Structural Reform Support Programme and implemented by the World Bank, in cooperation with the European Commission’s Directorate-General for Structural Reform Support Support to the Labor Market Integration of Refugees in Greece Output 1.a: Recommendation report to inform the Pilot design and implementation World Bank Group’s Social Protection & Jobs Global Practice December 8, 2021 Funded by the European Union via the Structural Reform Support Programme and implemented by the World Bank, in cooperation with the European Commission’s Directorate-General for Structural Reform Support Abbreviations and Acronyms ADDMA Athens Development and Destination Management Agency ALMP Active Labor Market Program AMIF Asylum, Migration and Integration Fund AMKA Greek social security number ATP Applied Training Program AVG Active Vocational Guidance CC Community Center CEDEFOP European Centre for the Development of Vocational Training CEFR Common European Framework CRS Catholic Relief Services CSR Corporate Social Responsibility CRM Customer Relationship Management CV Curriculum Vitae DRTP Demand-Responsive Training Programs DG REFORM European Commission’s Directorate-General for Structural Reform Support DRC Danish Refugee Council EFKA Greek Unified Social Security Fund EIEAD National Institute of Labour and Human Resources (NILHR) ERGANI Information System of the Greek Ministry of Labour and Social Affairs ESTIA Emergency Support to Integration and Accommodation Program EU European Union GCR Greek Council for Refugees GDPR General Data Protection Regulation GG Government Gazette Guaranteed Minimum Income (previously called Social Solidarity Income - GMI SSI) General Secretariat of Information Systems for Public Administration of the GSISPA Greek Ministry of Digital Governance HR Human Resources I.Ref.Job Integrated Action for Facilitating Labor Market Integration of Refugees I.Ref.Sos Innovative Response for the Facilitation of Young Refugees’ Social Support IAP Individual Action Plan IATAP Technology and Human Resources Institute IBRD International Bank for Reconstruction and Development ICT Information and Communications Technology ILO International Labour Organization IMF International Monetary Fund IOM International Organization of Migration IRC International Rescue Committee ISF Internal Security Fund ISO International Standards Organization IYF International Youth Foundation [3] IT Information Technology JMD Joint Ministerial Decision KEK Vocational Training Center KEM Migrant Integration Center KPA2 OAED’s Local Employment Promotion Center KYADA Centre for Reception and Solidarity of the City of Athens LMS Learning Management System M&E Monitoring and Evaluation MDAT Municipality Development Agency Thessaloniki S.A. MIC Migration Integration Councils MIS Management Information System MoLSA Greek Ministry of Labor and Social Affairs MoMA Greek Ministry of Migration and Asylum MSF Médecins Sans Frontières (Doctors Without Borders) NMW National Minimum Wage NSRF National Strategic Reference Framework NGO Non-Governmental Organization OAED Hellenic Manpower Employment Organization OECD Organisation for Economic Co-operation and Development OPS OAED’s Integrated Information System PAAYPA Temporary Social Security Number for Asylum Seekers PES Public Employment Service RIC Reception and Identification Center SEPE Greek Labor Inspectorate SuTP Syrians Under Temporary Protection Local Actions for Integrating Socially Vulnerable Groups (no longer TOPEKO operational) TOPSA Local Integrated Programmes Boosting Employment (no longer operational) UNHCR United Nations High Commissioner for Refugees UK United Kingdom WBG World Bank Group YEI Youth Employment Initiative [4] Acknowledgments This report has been prepared by a World Bank team led by Mauro Testaverde and Stefanie Brodmann and including Julia Barrera, Gordon Betcherman, Konstantinos Galazios, Polly Jones, Janis Kreuder, Christian Meyer, Moira Mckerracher, Gael de Moraes, Ioanna Pantelaiou, and Giannis Tzimas under Trust Fund (No TF084547) of February 7, 2020; EC Contract No SRSS/S2019/037; World Bank Project Number P170979. Special thanks to Ioanna Pantelaiou for acting as a de-facto Co-TTL. It is part of the World Bank Group’s Technical Assistance for Supporting the labor market integration of refugees in Greece, funded by the European Union via the Structural Reform Support Program and in cooperation with the European Commission's European Commission’s Directorate- General for Structural Reform Support (DG REFORM). The work was conducted under the general guidance of Goran Tinjic (Program Manager for Southern Europe) and Cem Mete (Practice Manager for Social Protection and Jobs, Europe and Central Asia Region). The team is grateful for the inputs provided by Nikolaos Schmidt (Senior Operation Officer) and Julie Biau (Operations Officer) throughout the life of this task, and for useful discussions with Mirey Ovadiya (Senior Social Protection Specialist) and Sirma Demir Seker (Senior Economist). The team is grateful to the teams at the Greek Ministry of Labor and Social Affairs (MoLSA) and the Greek Manpower Employment Organization (MoLSA) for the close cooperation throughout the technical assistance project. The team also appreciates the support of Dorina Giouroukou, coordinator of the technical assistance for DG REFORM and managerial support from Cem Mete, Goran Tinjic and Nikolaos Schmidt at the World Bank. This report is a product of the International Bank for Reconstruction and Development / The World Bank. The findings, interpretation, and conclusions expressed in this paper do not necessarily reflect the views of the Executive Directors of the World Bank, the European Commission, or the Government. [5] Table of Contents Abbreviations and Acronyms ............................................................................................................................................. 3 Acknowledgments ................................................................................................................................................................... 5 Table of Contents ..................................................................................................................................................................... 6 List of Figures ....................................................................................................................................................................... 7 List of Tables ......................................................................................................................................................................... 8 List of Boxes .......................................................................................................................................................................... 8 Executive Summary ................................................................................................................................................................ 9 Επιτελική Σύνοψη ................................................................................................................................................................. 17 1. Background and motivation .................................................................................................................................... 29 1.1. Asylum-seeker influx and applications in Greece ................................................................................. 29 1.2. First-response humanitarian interventions............................................................................................ 30 1.3. Support to refugees’ longer-term integration: international experience ................................... 31 1.4. Towards systematic labor market integration for refugees in Greece ........................................ 33 2. The proposed pilot ...................................................................................................................................................... 36 2.1. Engagement with OAED .................................................................................................................................. 36 2.2. General facts about the Pilot proposed by OAED .................................................................................. 37 2.3. Suggested principles for the Pilot................................................................................................................ 37 2.4. Suggested design and sequence of activities for I.Ref.Job ................................................................. 39 3. Detailed description of activities ........................................................................................................................... 43 3.1. Population Outreach ......................................................................................................................................... 43 3.2. Employer Outreach............................................................................................................................................ 47 3.3. Eligibility, Selection and Enrollment .......................................................................................................... 50 3.4. Counseling, Profiling, and Referrals ........................................................................................................... 57 3.5. Language training .............................................................................................................................................. 64 3.6. Group Counseling: Job Search and Active Vocational Guidance ..................................................... 68 3.7. Job placement ...................................................................................................................................................... 72 3.8. Wage subsidies .................................................................................................................................................... 74 3.9. Applied training program ............................................................................................................................... 79 3.10. Technical skills training .............................................................................................................................. 85 4. Pilot Management and Implementation ............................................................................................................. 92 4.1. Project Management Arrangements .......................................................................................................... 92 4.2. HR Considerations ............................................................................................................................................. 97 4.3. COVID-19 Considerations ............................................................................................................................... 98 [6] 4.4. Pre-requisites ...................................................................................................................................................... 99 4.5. Business processes and IT support considerations .......................................................................... 103 5. Monitoring and Evaluation Arrangements..................................................................................................... 143 5.1. Rationale for monitoring .............................................................................................................................. 143 5.2. Program Results Chain and Selected Monitoring Indicators ........................................................ 143 5.3. Targets for indicators .................................................................................................................................... 146 5.4. Feedback Loop.................................................................................................................................................. 146 5.5. Evaluation........................................................................................................................................................... 147 6. References.................................................................................................................................................................... 149 Annex ....................................................................................................................................................................................... 154 I. List of documents shared with OAED throughout this TA .................................................................. 154 II. Characteristics of training courses provided by NGOs to refugees in 2020-2021 in Athens 156 III. Comparison between training packages for the Language Training component ................. 158 List of Figures Figure 1 - Asylum Applications in Greece.................................................................................................................... 30 Figure 2 - Greece’s Strategy towards Refugees’ Longer-term Integration and Self-sufficiency ........... 35 Figure 3 - The proposed flowchart for the OAED refugee pilot ......................................................................... 42 Figure 4 - Outreach modalities ........................................................................................................................................ 45 Figure 5 – The Pilot enrollment procedure ................................................................................................................ 51 Figure 6 - Checking eligibility criteria in the I.Ref.Job ............................................................................................ 53 Figure 7 - An overview of the counseling process ................................................................................................... 60 Figure 8 - Training courses under the World Bank’s employment support project in Turkey............. 87 Figure 9 – Referral process................................................................................................................................................ 90 Figure 10- Groups to support the design and implementation of the Pilot .................................................. 93 Figure 11 - Indicative list of duties of the project management group member ........................................ 94 Figure 12 - Project management arrangements for the I.Ref.Job pilot program ........................................ 96 Figure 13 - Timeline with key milestones ................................................................................................................ 102 Figure 14 – Summary of Business process for Population and Employer Outreach .............................. 106 Figure 15 – Summary of Business process for Eligibility, selection and enrollment ............................. 110 Figure 16 – Summary of Business process for Counseling, profiling and referrals ................................ 115 Figure 17 – Summary of Business process for Language training ................................................................. 119 Figure 18 – Summary of Business process for Group counseling .................................................................. 122 Figure 19 – Summary of Business process for Job placement ......................................................................... 125 Figure 20 – Summary of Business process for Wage subsidies....................................................................... 129 Figure 21 – Summary of Business process for Applied training program .................................................. 136 Figure 22 – Summary of Business process for Technical skills training ..................................................... 139 Figure 23 - Results Chain – Overall Refugee Pilot ................................................................................................. 144 Figure 24 - Results Chain – Training Activities of the Refugee Pilot ............................................................. 145 Figure 25 - Results Chain – Wage Subsidy Activities of the Refugee Pilot .................................................. 145 Figure 26 - Results Chain – Applied Training Program (ATP) of the Refugee Pilot ................................ 146 [7] List of Tables Table 1 – Report Reading Guide ...................................................................................................................................... 16 Table 2 – Reading Guide for Section 3 .......................................................................................................................... 43 Table 3 - Pending Decisions and Recommendations for Population Outreach ........................................... 46 Table 4 - Different approaches according to business category ........................................................................ 49 Table 5 - Pending Decisions and Recommendations for Employer Outreach .............................................. 50 Table 6 - Pending Decisions and Recommendations for Eligibility, Selection and Enrollment ............ 56 Table 7 - Pending Decisions and Recommendations for Couns., Skills Recognition and Referrals ..... 63 Table 8 - Pending Decisions and Recommendations for Language Training ............................................... 68 Table 9 - Operational parameters for Group counseling and active vocational guidance ...................... 71 Table 10 - Pending Decisions and Recommendations for AVG and Job Search Group Sessions .......... 72 Table 11 - Pending Decisions and Recommendations for Job Placement ...................................................... 74 Table 12 - Pending Decisions and Recommendations for Wage Subsidies ................................................... 78 Table 13 - Pending Decisions and Recommendations for ATP........................................................................... 84 Table 14 - Pending Decisions and Recommendations for Technical Training............................................. 91 Table 15 – Section 4 Reading Guide of .......................................................................................................................... 92 Table 16 - Involvement of the information manag. infrastructure of OAED in the bus. processes .. 104 Table 17 - Business processes for Population and Employer Outreach ...................................................... 106 Table 18 - Business processes for Eligibility, selection and enrollment...................................................... 111 Table 19 - Business processes for Counseling, profiling and referrals ........................................................ 115 Table 20 - Business processes for Language training ......................................................................................... 119 Table 21 - Business processes for Group counseling .......................................................................................... 122 Table 22 - Business processes for Job Placement ................................................................................................. 125 Table 23 - Business processes for Wage subsidies ............................................................................................... 130 Table 24 - Business process for Applied training program .............................................................................. 136 Table 25 - Business processes for Technical skills training.............................................................................. 140 Table 26 - Characteristics of training courses provided by NGOs to refugees in 2020-2021 ........... 156 Table 27 - Comparison between training packages for the Language Training component .............. 158 List of Boxes Box 1 - Ad hoc interventions focused on labor market integration in Greece ............................................. 33 Box 2 - International evidence in support of the five core principles ............................................................. 39 Box 3 - Outreach in the Elefsina pilot ............................................................................................................................ 46 Box 4 – Employment Counseling for Refugees: Greek Experience ................................................................... 59 Box 5 – The I.Ref.Sos E-portfolio ..................................................................................................................................... 61 Box 6 – Recognition of Skills and Prior Experience ................................................................................................ 62 Box 7 – Lessons drawn from international experience in Language Training ............................................ 65 Box 8 – Examples of Job Placement services in Greek NGOs ............................................................................... 73 Box 9 - The wage subsidy program in the Elefsina pilot ....................................................................................... 75 Box 10 - Employment support for Syrians under temporary protection and Turkish citizens ............ 80 Box 11 – Combining work experience with training in the UK, Denmark and in Greece ........................ 81 Box 12 – OAED’s Acquisition of Work Experience Program................................................................................ 83 Box 13 – Duration and allowances in training programs in Greece and Turkey ........................................ 87 Box 14 – I.Ref.Sos and Elefsina pilot experiences with technical training..................................................... 91 Box 15 - Project management in the Elefsina pilot.................................................................................................. 96 [8] Executive Summary The Integrated Action for Facilitating Labor Market Integration of Refugees (I.Ref.Job Pilot) addresses a growing necessity to systematically integrate refugees into Greek society. Since 2016, Greece has changed from being a transit country for asylum seekers to being a final destination. As the number of asylum seekers settling in Greece has progressively increased over the last 5 years, the country’s response is gradually moving from a humanitarian to a development approach. Under the new approach, there is an increased focus on equipping asylum seekers and refugees with the tools needed to be self-sufficient and to integrate into Greek society. Recognizing the importance of labor market integration in this process, the Ministry of Labor and Social Affairs (MoLSA) and the Hellenic Manpower Employment Organization (OAED) are launching the I.Ref.Job Pilot in March/April 2022. The Pilot aims to provide support for refugees to ease their transition to employment and help them become self-sufficient. In its first phase, expected to last approximately 18 months, the program seeks to place 1,000 unemployed recognized refugees and beneficiaries of subsidiary protection in jobs in the regions of Attica and Central Macedonia. The planned program is expected to lay the basis for mainstreaming interventions for refugees into the active labor market program (ALMP) reform currently underway led by MoLSA and OAED. The World Bank in cooperation with the European Commission’s Directorate-General for Structural Reform Support (DG REFORM) is providing technical support to MoLSA and OAED to inform the development of I.Ref.Job. This document presents recommendations to inform the design and implementation of the Pilot by OAED, taking into consideration OAED’s current structure, legal framework, human resources, and initial plans. [For more background information, see Section 1 on page 28] The proposed operational cycle for the I.Ref.Job pilot Five key principles are proposed to guide the Pilot preparation and implementation. 1. Refugees should be placed in work settings as soon as possible. 2. When direct job matching is not possible, other services should be provided taking into account labor market conditions. 3. Adequate language and soft skills should receive sufficient attention, as employers in Greece place a high value on both types of skills. 4. Provision of services should be tailored to the needs of refugees, taking into account the specific challenges they may face, including through gender considerations. 5. Recognizing informal and non-formal skills and abilities is critical for refugees’ employment. [For more information on the Pilot’s rationale and proposed design, see Section 2 on page 36] The proposed operational cycle for I.Ref.Job builds on the five suggested core principles. The menu of activities proposed for the Pilot includes key ALMPs, as well as important steps to be taken by OAED to ensure high-quality preparation, implementation and monitoring of activities. The pilot activities are listed below and presented in sequence in the flowchart that follows: • Population Outreach • Employer Outreach • Eligibility, Selection and Enrollment • Counseling, Profiling, and Referrals [9] • Language training • Group Counseling: Job Search and Active Vocational Guidance • • Job placement • • Wage subsidies • • Applied training program • Technical skills training [For more information on the Pilot’s specific activities’ description, see Section 3 on page 42] Outreach: OAED should conduct specific communication and outreach activities, both to potential beneficiaries and to employers, to increase awareness of the Pilot. The information to be shared can be disseminated directly (either one-to-one or in groups), indirectly through intermediaries (such as schools, health clinics, shelters, housing offices, etc.) or via information campaigns and technology. • Population Outreach: The main goals are to inform the target population about the Pilot and motivate participation. Information to be conveyed includes program objectives, eligibility conditions, and underlying interventions, as well as the associated delivery processes such as OAED registration, application submission, information sessions, and counseling. The target population for these outreach efforts can be both internal (refugees already registered with OAED) and external (individuals not registered with OAED and who will often come from programs run by other organizations). Special outreach techniques should be considered to ensure that women are reached and encouraged to participate in the pilot. [10] • Employer Outreach: The main goals are to build awareness of the program among global and local employers, and to generate job vacancies for refugees. The first step would be to identify those employers who might be willing to hire refugees in the Attica and Central Macedonia regions. Information to be conveyed includes the business case for hiring refugees and material that addresses employers’ common concerns and questions about hiring refugees. [For more information on population and employer outreach, see Section 3.1 on page 42 and Section 3.2 on page 46] Eligibility, selection and enrollment: These steps involve determining which registrants qualify for Pilot services and which of them are finally enrolled. a) Eligibility: OAED staff should perform the necessary checks to determine whether registered applicants of the target group meet the eligibility requirements. Two eligibility conditions will be verified: applicants should (i) be over 18 years of age and (ii) have a sufficient level of proficiency in Greek (equivalent or superior to A1). Should a refugee not have a certificate, language proficiency will be verified through language screening. b) Selection: The aim of this process is to identify potential participants for the pilot from the pool of all applicants who meet both eligibility conditions. In the case of oversubscription, three selection modalities are proposed: 1) first-come, first-served; 2) first-come, first- served with a waiting list; or 3) random assignment. The third option is recommended by the World Bank team. Irrespective of the selection modality, both selected and non-selected applicants should be notified of the results. c) Enrollment: OAED will first (re)confirm the interest, willingness, and availability of the selected applicants. Once confirmed, OAED will proceed with the onboarding and enrollment of participants. In particular, pilot participants will be invited to attend group information sessions at the end of which they will receive their first pre-defined appointment with an OAED job counselor. After onboarding and upon receival of their first appointment, individuals are considered to be enrolled. [For more information on eligibility, selection and enrollment, see Section 3.3 on page 49] Counseling, profiling and referrals: Once processes related to eligibility, selection and enrollment are completed, all pilot participants will receive a set of individual counseling sessions. Counselors will assess refugees’ needs, facilitate the access of refugees to different services and monitor their participation. a) Counseling: A set of 3 sessions of 45-60 minutes would be standard for nearly all participants. Ideally, sessions will take place with the same counselor and no more than 2 weeks would lapse between appointments. The first session with the counselor should take place as soon as possible after the general information session. The first session will focus on understanding the refugee’s main characteristics and background and will in most cases result in a referral to language training if there are no job vacancies available with language requirements that do not exceed the refugee’s ability. The 2nd and 3rd sessions will focus on profiling participants to provide further information for referrals and for potential employers. Subsequent to the 3 initial counseling sessions, there would be between 1 and 3 “check-ins” with the counselor, depending on referrals and the individual action plan of the beneficiary. b) Profiling: The aim of this activity is to is to recognize skills and prior learning, given its importance for labor market integration of refugees. For this, it is recommended that [11] counselors apply the Skills Recognition Tool, developed by the World Bank team and incorporating feedback from OAED. The rationale for recommending 3 counseling sessions is derived in part from the estimated time it would take to complete this tool. c) Referrals to jobs/ALMPs: The general principle to be followed for referrals is that refugees should be placed in a work setting (subsidized or not) as soon as possible. If the participant is not yet job-ready, he or she will be referred to one of the following Pilot activities or a combination of them (when possible): 1) Language training; 2) Group counseling sessions (Job search, Active vocational guidance,); 3) Applied training program (e.g. internship); and 4) Technical skills training (incorporating digital skills). Pilot participants can benefit from a maximum of two ALMPs (not including language training); on completion of an intervention, beneficiaries would be referred to a job, if one is available. [For more information on counseling profiling and referrals, see Section 3.4 on page 56] Language training: A complete assessment to determine class placement will be undertaken by OAED’s language experts before language training begins. Subject to OAED’s regulations, throughout language training, employment counselors should be proactive in trying to place jobseekers first in jobs (subsidized or not), second in ATPs/internships, and third in vocational training. Training will take place at OAED’s own training centers (KEKs). Consideration should be given to access barriers that prevent women from undertaking training, e.g. family obligations or cultural considerations. Providing daycare and offering women-only classes can help to overcome these. The planned duration of language training is 120 hours over 1 to 1.5 months but should be flexible according to the participants’ different needs and abilities. OAED is considering offering an allowance of 2 euro/hour (240 euro per month) to those enrolled in training. Given its importance to the labor market integration of refugees, OAED should consider offering vouchers for formal testing and certification of language trainees. [For more information on language training, see Section 3.5 on page 63] Group counseling - job search and active vocational guidance: For beneficiaries ready to be referred to jobs, group sessions will equip them with important knowledge on topics such as job search, CV and interview preparation, etc. Should the job counselor confirm the need for technical training, those beneficiaries would undertake a seminar on active vocational guidance (AVG) to help them select training specialties. Ideally, Job Search Group Counseling would precede interviews for job placement or ATPs, and AVG would take place prior to technical training. OAED is planning to offer 3 sessions of 6 hours each for both activities and accommodate groups of 10 people in OAED KEKs or KPA2. Groups should include individuals with a similar proficiency level of Greek. Depending on the composition and needs of attendees, interpretation would be considered for some sessions. [For more information on group counseling, see Section 3.6 on page 67] Job placement: The posted vacancies for the Pilot should meet the same requirements as any other formal job. Once a vacancy is notified, it is important that OAED responds as soon as possible by pre-selecting candidates for interviews. As such, effective screening and assessment of project participants will be key. Good job matching practices will lend more credibility to OAED and likely strengthen their relationship with employers. The timing of job placement will differ according to the characteristics of the refugee. If a refugee is job-ready, an employment counselor can consider referring participants to jobs immediately after the Individual Action Plan is completed. Otherwise, this could be done at any point: while they are on language training, on ATP/internship or on vocational training as and when suitable vacancies arise, and depending on individual progress. [12] [For more information on job placement, see Section 3.7 on page 71] Wage subsidies: Due to the prevailing labor market conditions in Greece and the particular challenges faced by refugees, wage subsidies have an important role in the context of the I.Ref.job. Subsidies will be available for a posted job vacancy if both the employer and the proposed job meet certain eligibility requirements, which could be relaxed in the pandemic context. Likewise, while wage subsidies have traditionally only been available for full-time jobs, for this Pilot, OAED could consider extending subsidies to part-time jobs too. Similar to a normal job placement, once a vacancy is notified and firm eligibility for subsidy is confirmed, it is important that OAED job counselors pre-select candidates for interviews as soon as possible. Once the employer makes the final selection, the beneficiary will be hired. The subsidy level should be equal to 80-90 percent of total labor costs and employers can be given three options in terms of duration: 9, 12 or 15 months. Employers should commit to retaining workers for a few months (e.g. 3 months) after the end of the subsidized period unless well-defined exceptions hold. [For more information on wage subsidies, see Section 3.8 on page 73] Applied Training Program: Although not currently a referral option for the project, it is recommended that ATP, or some form of work experience be adopted in this or future pilots. OAED has agreed in principle that the ATP is a promising stand-alone option and already plans to offer applied training as a follow-on option for theory training, i.e. an internship. An (almost) stand-alone ATP option could be introduced using a very short theoretical element (i.e. a couple of days) followed by a practical placement. ATPs are generally relatively short, usually lasting between 3 to 6 months. The aim is to mimic workplace conditions as closely as possible and prepare beneficiaries for jobs. To this purpose, OAED could consider paying participants a sum similar to the national minimum wage (NMW) while attending the program. Referral could take place after session 3 with the counselor, or at any stage of the project if combining interventions is allowed, in order to avoid the lock-in effects of lengthy training. Ideally, the ATP should be underpinned by a tri-partite agreement (OAED, firm, participant) and recognized by a reference from the employer on completion. [For more information on ATP, see Section 3.9 on page 78] Technical Skills training: Technical training is designed for those project participants who are not yet ready for the workplace. Training in the Pilot should be modular, offered in technical specialties in high demand in the labor market and include soft skills as an integral component. It is envisaged that theoretical vocational training will last for a maximum of 200 hours. This could be followed by a practical component in the form of an internship or ATP if there are no jobs immediately available. Referrals to technical training would most likely happen after the 3rd counseling session. Once the choice of specialty has been confirmed, beneficiaries will be referred to a training program at one of OAED’s KEKs. Ideally, upon completion of theoretical training, a formal certificate would be issued. [For more information on technical skills training, see Section 3.10 on page 83] Implementation arrangements In addition to defining the Pilot design, implementation arrangements need to be put in place. Successful roll-out of the Pilot will require: agreed management arrangements; follow-up on human resource needs; consideration of COVID-19 related restrictions; the prior definition of [13] business processes and the establishment of the IT infrastructure and software to support operational processes and M&E. For the I.Ref.Job pilot, it is proposed that three groups support implementation. The three groups are the project management group, the project steering group and a project advisory group. 1. The project management group for I.Ref.Job includes several OAED staff who will work together on the project to achieve its objectives. The group will deal with day-to-day activities and monitor progress. It consists of the project manager, project management core staff, and other members who would carry out activities related to project implementation. 2. The project steering group will provide inputs and advice on the project from start to completion as well as keep key stakeholders informed about its design and implementation. The steering group will be composed of key entities who are either partners with OAED or have experience and expertise relevant to the project or whose clients or residents are the intended users of Pilot services. 3. The advisory group consists of several stakeholders who serve the intended target group on a regular basis and can assist OAED to design and implement a successful pilot by providing inputs and recommendations. [For more information on the Pilot’s implementation arrangements and COVID considerations, see Section 4.1 on page 91 and Section 4.3 on page 97] Human Resources are critical for the implementation of the refugee pilot, especially since some adaptations are needed to serve this new target group. A sufficient number of staff needs to be mobilized to handle the projected workload in a reasonable amount of time and to minimize delays in gaining access to the program and its benefits. Job counselors should be a priority since counseling is the key initial activity and serves as a gateway for subsequent referrals. The staff selected should have an interest or competence in inter-cultural communication and/or working with this target group. English language skills would be a plus. Equally important, staff will need guidance, particularly on new or revised activities, to carry out their roles. Ideally, inter-cultural and operational training will be provided prior to Pilot launch. Special purpose teams from different parts of OAED are needed for outreach activities and to define the ATP intervention (if included in the Pilot). Finally, a few activities require mechanisms for coordination and partnerships. [For more information on the Pilot’s HR consideration, see Section 4.2 on page 96] Certain tasks need to be carried out prior to launch of the Pilot in order for it to start from a solid foundation. These actions fall into 3 areas: final design phase; preparatory activities; and outreach. The specific actions for each area are summarized in the first three sections in the timeline below. While recognizing that some adjustments may be needed during the early stages of implementation, lessons from other programs suggest that delays in finalizing key aspects of design can cause reputational risks for OAED and delayed deployment of critical IT support. The outline of business processes and corresponding IT considerations included in Section 4 should be reviewed in light of the decisions taken during the final design phase and adjusted as needed. [For more information on the Pilot’s pre-requisites, see Section 4.4 on page 98] [14] Timeline with key milestones In terms of information technology, OAED already has a very mature information management infrastructure. OAED has in place several IT tools and mechanisms capable of supporting all the business processes throughout the project. Further, all these information systems and IT tools from OAED could be customized, further extended, and adjusted to the needs of the project. [For more information on the Pilot’s business processes and IT considerations, see Section 4.5 on page 102] Strong monitoring and evaluation arrangements are critical not only to track implementation and post-program outcomes for beneficiaries but also to ensure learning for the design and implementation of similar programs in the future. The proposed monitoring framework for I.Ref.Job includes results chains for the overall pilot (see below) and specific pilot activities and selected indicators. For each area, a results chain summarizes the understanding of the objectives of the Pilot, its related activities and selected indicators. The framework covers inputs, progress on implementation (activities and outputs) and outcomes, as well as possible evaluation activities. [15] Results Chain – Overall Refugee Pilot [For more information on the Pilot’s M&E considerations, see Section 5 on page 143] Table 1 – Report Reading Guide Where to find - page Main topics number Background and motivation 29 Overview of the I.Ref.Job Pilot 36, 144 Pre-requisites 99 Population Outreach 39, 43, 106, 144 Employer Outreach 39, 47, 106, 144 Eligibility, Selection and Enrollment 39, 50, 109, 144 Counseling, Profiling, and Referrals 39, 57, 114, 144 Language training 39, 64, 118, 145 Group Counseling: Job Search and Active Vocational Guidance 39, 68, 122, 144 39, 72, 125, 144 Job placement 39, 74, 129, 144 Wage subsidies 39, 79, 136, 144, 146 Applied training program Technical skills training 39, 85, 139, 144 Project Management Arrangements 92 97 HR Considerations COVID-19 Considerations 98 Business processes and IT support considerations 103 Monitoring and Evaluation Arrangements 143 [16] Επιτελική Σύνοψη H Ολοκληρωμένη Πιλοτική Δράση για την Διευκόλυνση της Εργασιακής Ένταξης των Προσφύγων (I.Ref.Job Pilot) στοχεύει στην αντιμετώπιση της αυξανόμενης ανάγκης για συστηματική ένταξη του προσφυγικού πληθυσμού στην ελληνική κοινωνία. Από το 2016, η Ελλάδα έχει μετατραπεί από χώρα διέλευσης για αιτούντες άσυλο σε τελικό προορισμό. Προκειμένου να ανταποκριθεί στον μεγάλο αριθμό αιτούντων άσυλο, ο οποίος αυξήθηκε προοδευτικά τα τελευταία 5 χρόνια, η προσέγγιση που ακολουθεί η χώρα εξελίσσεται σταδιακά από ανθρωπιστική σε αναπτυξιακή. Σύμφωνα με τη νέα προσέγγιση, ιδιαίτερη έμφαση δίνεται στον εξοπλισμό των αιτούντων άσυλο και των προσφύγων με εκείνα τα εργαλεία που απαιτούνται προκειμένου να καταστούν αυτάρκεις και να ενσωματωθούν στην ελληνική κοινωνία. Αναγνωρίζοντας τη σημασία της εργασιακής ένταξης σε αυτή τη διαδικασία, το Υπουργείο Εργασίας και Κοινωνικών Υποθέσεων (ΥΠΕΚΥ) και ο Οργανισμός Απασχόλησης Εργατικού Δυναμικού (ΟΑΕΔ) θα εφαρμόσουν το πιλοτικό πρόγραμμα I.Ref.Job, του οποίου η υλοποίηση θα ξεκινήσει κατά τον Μάρτιο/Απρίλιο 2022. Το πιλοτικό πρόγραμμα έχει ως στόχο την παροχή στήριξης σε πρόσφυγες προκειμένου να διευκολυνθεί η μετάβασή τους στην απασχόληση και να καταστούν αυτάρκεις. Στην πρώτη του φάση, η οποία αναμένεται να διαρκέσει περίπου 18 μήνες, το πρόγραμμα επιδιώκει να τοποθετήσει 1.000 άνεργους αναγνωρισμένους πρόσφυγες και δικαιούχους επικουρικής προστασίας, σε θέσεις εργασίας στις περιφέρειες Αττικής και Κεντρικής Μακεδονίας. Το εν λόγω πιλοτικό πρόγραμμα αναμένεται να θέσει τα θεμέλια για την ενσωμάτωση των παρεμβάσεων που αφορύν σε πρόσφυγες, στη μεταρρύθμιση των ενεργητικών πολιτικών απασχόλησης (ΕΠΑ) που ήδη βρίσκεται σε εξέλιξη και υλοποιείται από το ΥΠΕΚΥ και τον ΟΑΕΔ. Η Παγκόσμια Τράπεζα σε συνεργασία με τη Γενική Διεύθυνση Στήριξης Διαρθρωτικών Μεταρρυθμίσεων (DG REFORM) της Ευρωπαϊκής Επιτροπής παρέχει υποστήριξη ως προς τον σχεδιασμό του πιλοτικού προγράμματος I.Ref.Job. Η παρούσα έκθεση αποτελεί την πρόταση της Παγκόσμιας Τράπεζας για τον σχεδιασμό και την υλοποίηση του πιλοτικού προγράμματος, λαμβάνοντας υπόψη την τρέχουσα δομή του ΟΑΕΔ, το νομικό πλαίσιο, παραμέτρους που αφορούν στο ανθρώπινους πόρους καθώς και τα αρχικά σχέδια του Οργανισμού. [Για περισσότερες πληροφορίες, ανατρέξτε στην Ενότητα 1, σελίδα 28] Προτεινόμενος επιχειρησιακός κύκλος για το πιλοτικό πρόγραμμα I.Ref.Job Τόσο η προετοιμασία όσο και η εφαρμογή του πιλοτικού προγράμματος, προτείνεται να βασιστούν σε πέντε κύριες αρχές: 1. Οι πρόσφυγες θα πρέπει να τοποθετούνται σε θέσεις απασχόλησης το συντομότερο δυνατό. 2. Όταν η άμεση αντιστοίχιση σε θέσεις εργασίας δεν είναι δυνατή, θα πρέπει να παρέχονται άλλες υπηρεσίες, λαμβάνοντας υπόψη τις συνθήκες στην αγορά εργασίας. 3. Η ανάπτυξη επαρκών γλωσσικών και ήπιων (soft) δεξιοτήτων θεωρείται ιδιαίτερα σημαντική, εξαιτίας της μεγάλης έμφασης που δίνεται σε αυτές από τους εργοδότες. [17] 4. Η παροχή υπηρεσιών θα πρέπει να προσαρμόζεται στις ανάγκες των προσφύγων, λαμβάνοντας υπόψη τις ειδικές προκλήσεις που ενδέχεται να αντιμετωπίζουν, καθώς και των θεμάτων που σχετίζονται με το φύλο. 5. Η αναγνώριση των άτυπων και μη τυπικών δεξιοτήτων και ικανοτήτων είναι κρίσιμης σημασίας για την απασχόληση των προσφύγων. [Για περισσότερες πληροφορίες σχετικά με τη λογική του πιλοτικού προγράμματος και τον προτεινόμενο σχεδιασμό, ανατρέξτε στην Ενότητα 2, σελίδα 36] Ο προτεινόμενος επιχειρησιακός κύκλος για το πιλοτικό πρόγραμμα I.Ref.Job βασίζεται στις παραπάνω πέντε αρχές. Το μενού δραστηριοτήτων που προτείνεται για το πιλοτικό πρόγραμμα περιλαμβάνει βασικές ΕΠΑ, καθώς και σημαντικά βήματα που πρέπει να ακολουθηθούν από τον ΟΑΕΔ για να διασφαλίσει υψηλής ποιότητας προετοιμασία, υλοποίηση και παρακολούθηση των δραστηριοτήτων. Οι πιλοτικές δράσεις παρατίθενται παρακάτω και παρουσιάζονται με τη σειρά στο διάγραμμα ροής (flowchart) που ακολουθεί: • Επικοινωνία και Ενημέρωση Ομάδας Στόχου (Population Outreach) • Επικοινωνία και Ενημέρωση Εργοδοτών (Employer Outreach) • Επιλεξιμότητα, Επιλογή και Ένταξη στο Πρόγραμμα (Eligibility, Selection and Enrollment) • Συμβουλευτική, Ανάλυση Προφίλ και Παραπομπή σε Δράσεις (Counseling, Profiling, and Referrals) • Γλωσσική Κατάρτιση (Language training) • Ομαδική Συμβουλευτική: Αναζήτηση Εργασίας και Ενεργός Επαγγελματικός Προσανατολισμός (Group Counseling: Job Search and Active Vocational Guidance) • Τοποθέτηση σε Θέση Απασχόλησης ( • Job placement) • Πρόγραμμα Νέων Θέσεων Εργασίας ( • Wage subsidies) • Εφαρμοσμένο Πρόγραμμα Κατάρτισης/Πρακτικής Άσκησης ( • Applied training program/Internship) • Κατάρτιση σε Τεχνικές Δεξιότητες (Technical skills training) [18] [Για περισσότερες πληροφορίες σχετικά με την περιγραφή των δραστηριοτήτων του πιλοτικού, ανατρέξτε στην Ενότητα 3, σελίδα 42] Δράσεις Επικοινωνίας και Ενημέρωσης (Outreach): Ο ΟΑΕΔ θα πρέπει να διεξάγει συγκεκριμένες δραστηριότητες επικοινωνίας και ενημέρωσης, τόσο προς τους δυνητικούς δικαιούχους όσο και προς τους εργοδότες, για να ενισχυθεί η ευαισθητοποίηση τους σχετικά με το πιλοτικό πρόγραμμα. Οι πληροφορίες που θα κοινοποιηθούν μπορούν να διαδοθούν είτε με άμεσο τρόπο (είτε ένας προς έναν είτε σε ομάδες), είτε έμμεσα μέσω μεσαζόντων (όπως σχολεία, κλινικές υγείας, ξενώνες, γραφεία στέγασης κ.λπ.) είτε μέσω εκστρατειών ενημέρωσης και τεχνολογίας. • Επικοινωνία και Ενημέρωση Ομάδας Στόχου (Population Outreach): Οι κύριοι στόχοι της δράσης αυτής είναι η ενημέρωση της πληθυσμιακής ομάδας στόχου για το Πιλοτικό και η παρακίνηση της συμμετοχής. Οι πληροφορίες που πρέπει να διαβιβαστούν, περιλαμβάνουν τους στόχους του προγράμματος, τις προϋποθέσεις επιλεξιμότητας και τις υποκείμενες παρεμβάσεις, καθώς και τις σχετικές διαδικασίες όπως η εγγραφή στον ΟΑΕΔ, η υποβολή αιτήσεων για ένταξη στο πρόγραμμα, οι ενημερωτικές συνεδρίες και η παροχή συμβουλευτικής. Η πληθυσμιακή ομάδα στόχου μπορεί να περιλαμβάνει τόσο τον «εσωτερικό» πληθυσμό (δηλαδή πρόσφυγες που είναι ήδη εγγεγραμμένοι στα μητρώα του ΟΑΕΔ), όσο και τον «εξωτερικό» πληθυσμό (δηλαδή άτομα μη εγγεγραμμένα στον ΟΑΕΔ, συχνά προερχόμενα από προγράμματα άλλων οργανισμών). Ειδικές τεχνικές επικοινωνίας και ενημέρωσης θα πρέπει να εφαρμοστούν, προκειμένου να διασφαλιστεί η προσέγγιση και η ενθάρρυνση της συμμετοχής του γυναικείου πληθυσμού της ομάδας στόχου. • Επικοινωνία και Ενημέρωση Εργοδοτών (Employer Outreach): Οι κύριοι στόχοι της δράσης αυτής είναι η ευαισθητοποίηση επιχειρήσεων για το πρόγραμμα και η δημιουργία κενών θέσεων εργασίας για τους πρόσφυγες. Το πρώτο βήμα θα ήταν να εντοπιστούν οι [19] εργοδότες που ενδέχεται να είναι διατεθειμένοι να προσλάβουν πρόσφυγες στις περιφέρειες Αττικής και Κεντρικής Μακεδονίας. Οι πληροφορίες που πρέπει να διαβιβαστούν περιλαμβάνουν επιχειρήματα υπέρ της πρόσληψης προσφύγων καθώς και υλικό που µπορεί να απαντήσει στις όποιες ανησυχίες και ερωτήσεις εργοδοτών σχετικά με την πρόσληψη προσφύγων. [Για περισσότερες πληροφορίες σχετικά με τις δράσεις προσέγγισης και ενημέρωσης της πληθυσμιακής ομάδας στόχου και των εργοδοτών, ανατρέξτε στην Ενότητα 3.1, σελίδα 42 και Ενότητα 3.2, σελίδα 46 αντίστοιχα] Επιλεξιμότητα, Επιλογή και Ένταξη στο Πρόγραμμα (Eligibility, Selection and Enrollment): Tα βήματα αυτά περιλαμβάνουν τον προσδιορισμό του ποιοι υποψήφιοι πληρούν τις προϋποθέσεις επιλεξιμότητας και ποιοι από αυτούς θα ενταχθούν τελικά στο πρόγραμμα. a) Επιλεξιμότητα (Eligibility): Το προσωπικό του ΟΑΕΔ θα πρέπει να πραγματοποιήσει τους απαραίτητους ελέγχους για να διαπιστώσει εάν οι εγγεγραμμένοι υποψήφιοι της ομάδας στόχου πληρούν τις προϋποθέσεις επιλεξιμότητας. Δύο κριτήρια επιλεξιμότητας θα πρέπει να επαληθευτούν: οι υποψήφιοι θα πρέπει (i) να είναι άνω των 18 ετών και (ii) να διαθέτουν επάρκεια στην ελληνική γλώσσα επιπέδου ισοδύναμου ή ανώτερου του Α1. Σε περίπτωση που ένας πρόσφυγας δεν έχει πιστοποιητικό, η γλωσσική επάρκεια θα επαληθεύεται μέσω γλωσσικού ελέγχου (language screening). b) Επιλογή (Selection): Ο στόχος αυτής της διαδικασίας είναι να εντοπίσει πιθανούς συμμετέχοντες για το πιλοτικό πρόγραμμα από την ομάδα όλων των αιτούντων που πληρούν και τις δύο προϋποθέσεις επιλεξιμότητας. Σε περίπτωση μεγάλης εκδήλωσης ενδιαφέροντος (oversubscription), προτείνονται τρεις τρόποι επιλογής υποψηφίων: 1) με βάση την αρχή της προτεραιότητας (first-come, first-served) 2) με βάση την αρχή της προτεραιότητας και τη δημιουργία λίστας αναμονής (first-come, first-served with a waiting list) ή 3) με τυχαία επιλογή (random assignment). Η ομάδα της Παγκόσμιας Τράπεζας προτείνει τον τρίτο τρόπο επιλογής. Ανεξάρτητα από τον τρόπο επιλογής των υποψηφίων, τόσο οι επιλέχθέντες όσο και οι μη επιλεχθέντες αιτούντες, θα πρέπει να ενημερώνονται για τα αποτελέσματα. c) Ένταξη στο Πρόγραμμα (Enrollment): Ο ΟΑΕΔ θα πρέπει σε αυτό το στάδιο να (επανα)επιβεβαιώσει το ενδιαφέρον, την προθυμία και τη διαθεσιμότητα των επιλεγμένων υποψηφίων. Μόλις γίνει αυτό, ο ΟΑΕΔ θα προχωρήσει στην γνωριμία των επιλεγμένων υποψηφίων με το πρόγραμμα (onboarding). Ειδικότερα, οι συμμετέχοντες στο Πιλοτικό θα κληθούν να παρακολουθήσουν ομαδικές ενημερωτικές συναντήσεις στο τέλος των οποίων θα λάβουν το πρώτο προκαθορισμένο ραντεβού τους με κάποιον εργασιακό σύμβουλο αναζητούντων εργασία του ΟΑΕΔ. Μετά την ολοκλήρωση της διαδικασίας γνωριμίας και την παραλαβή του πρώτου τους ραντεβού, οι επιλεγμένοι υποψήφιοι θεωρούνται πλέον και ενταγμένοι στο πρόγραμμα. [Για περισσότερες πληροφορίες σχετικά με την επιλεξιμότητα, την επιλογή και την ένταξη στο πρόγραμμα, ανατρέξτε στην Ενότητα 3.3, σελίδα 49] Συμβουλευτική, Ανάλυση Προφίλ και Παραπομπή σε Δράσεις (Counseling, Profiling, and Referrals): Μόλις οι διαδικασίες που σχετίζονται με την επιλεξιμότητα, την επιλογή και την ένταξη στο πρόγραμμα ολοκληρωθούν, όλοι οι συμμετέχοντες θα λάβουν μια σειρά από εξατομικευμένες συνεδρίες συμβουλευτικής. Οι εργασιακοί σύμβουλοι του ΟΑΕΔ θα αξιολογήσουν τις ανάγκες των προσφύγων, θα διευκολύνουν την πρόσβαση τους σε διάφορες υπηρεσίες και θα παρακολουθούν τη συμμετοχή τους στο πρόγραμμα. [20] a) Συμβουλευτική (Counseling): Σχεδόν όλοι οι συμμετέχοντες θα λάβουν ένα σύνολο 3 ατομικών συνεδριών, με διάρκεια 45-60 λεπτά έκαστη. Ιδανικά, οι συνεδρίες θα πραγματοποιούνται με τον ίδιο εργασιακό σύμβουλο ενώ δεν θα πρέπει να μεσολαβούν περισσότερες από 2 εβδομάδες μεταξύ των ραντεβού. Η πρώτη συνεδρία με τον σύμβουλο θα πρέπει να πραγματοποιηθεί το συντομότερο δυνατό μετά τη ομαδική ενημερωτική συνάντηση. Η πρώτη συνεδρία θα επικεντρωθεί στην κατανόηση των κύριων χαρακτηριστικών και του ιστορικού του πρόσφυγα και στις περισσότερες περιπτώσεις θα οδηγήσει στην παραπομπή του/της σε γλωσσική εκπαίδευση εφόσον δεν υπάρχουν διαθέσιμες θέσεις εργασίας με γλωσσικές απαιτήσεις που δεν υπερβαίνουν τις ικανότητες του πρόσφυγα. Η 2η και η 3η συνεδρία θα επικεντρωθούν στην ανάλυση του προφίλ των συμμετεχόντων προκειμένου να εξαχθούν περαιτέρω πληροφορίες χρήσιμες για παραπομπές αλλά και για πιθανούς εργοδότες. Μετά τις 3 αρχικές συνεδρίες συμβουλευτικής, θα πραγματοποιούνται μεταξύ 1 και 3 επακόλουθες συνεδρίες με τον σύμβουλο, ανάλογα με τις παραπομπές και το ατομικό σχέδιο δράσης του δικαιούχου. b) Σκιαγράφηση προσωπικών χαρακτηριστικών (Profiling): Στόχος της δράσης αυτής είναι η αναγνώριση των δεξιοτήτων και της προηγούμενης γνώσης, δεδομένης της σημασίας της για την ένταξη των προσφύγων στην αγορά εργασίας. Για τον λόγο αυτόν, συνιστάται στους εργασιακούς συμβούλους να εφαρμόζουν το Εργαλείο Αναγνώρισης Δεξιοτήτων, που αναπτύχθηκε από την ομάδα της Παγκόσμιας Τράπεζας και έλαβε υπόψιν παρατηρήσεις από τον ΟΑΕΔ. Η πρόταση παροχής 3 συμβουλευτικών συνεδριών βασίζεται εν μέρει στον εκτιμώμενο χρόνο που χρειάζεται η πλήρης συμπλήρωση του εν λόγω εργαλείου. c) Παραπομπή σε Θέσεις Εργασίας/ΕΠΑ (Referrals to Jobs/ALMPs): Η γενική αρχή που πρέπει να διέπει τις παραπομπές είναι ότι οι πρόσφυγες θα πρέπει να τοποθετούνται σε θέσεις εργασιακής απασχόλησης (επιδοτούμενες ή μη) το συντομότερο δυνατό. Εάν ο συμμετέχων δεν είναι ακόμη έτοιμος για εργασία, θα παραπέμπεται σε μία από τις ακόλουθες δράσεις ή σε συνδυασμό αυτών (όταν αυτό είναι εφικτό): 1) Γλωσσική κατάρτιση 2) Ομαδικές συνεδρίες συμβουλευτικής (Αναζήτηση εργασίας, Ενεργός επαγγελματικός προσανατολισμός) 3) Εφαρμοσμένο πρόγραμμα κατάρτισης (π.χ. πρακτική άσκηση) και 4) Κατάρτιση σε τεχνικές δεξιότητες (με ενσωματωμένη την κατάρτιση σε ψηφιακές δεξιότητες). Οι συμμετέχοντες στο πιλοτικό πρόγραμμα μπορούν να επωφεληθούν από το πολύ δύο ΕΠΑ (μη συμπεριλαμβανομένης της γλωσσικήςς κατάρτισης). Έπειτα από την ολοκλήρωση μιας παρέμβασης, οι ωφελούμενοι θα παραπέμπονται σε θέση εργασίας, κατόπιν διαθεσιμότητας. [Για περισσότερες πληροφορίες σχετικά με την συμβουλευτική, την ανάλυση προφίλ και την παραπομπή σε δράσεις, ανατρέξτε στην Ενότητα 3.4, σελίδα 56] Γλωσσική Κατάρτιση (Language training): Μια πλήρης αξιολόγηση για τον προσδιορισμό της τοποθέτησης στην τάξη θα πραγματοποιηθεί από τους καθηγητές του ΟΑΕΔ πριν από την έναρξη της γλωσσικής κατάρτισης. Δεδομένων των ισχύοντων κανονισμών του ΟΑΕΔ, καθ' όλη τη διάρκεια της γλωσσικής κατάρτισης, οι εργασιακοί σύμβουλοι απασχόλησης θα πρέπει να λειτουργούν προορατικά προκειμένου να τοποθετούν τα άτομα που αναζητούν εργασία πρώτα σε θέσεις εργασίας (επιδοτούμενες ή μη), δεύτερον σε εφαρμοσμένο πρόγραμμα κατάρτισης (ATP)/πρακτικής άσκησης και τρίτον σε πρόγραμμα επαγγελματικής κατάρτισης. Η κατάρτιση θα πραγματοποιηθεί στα Κέντρα Επαγγελματικής Κατάρτισης του ίδιου του Οργανισμού (ΚΕΚ- ΟΑΕΔ). Θα πρέπει ακόμη να ληφθούν υπόψη τα εμπόδια πρόσβασης σε εκπαιδευτικές δραστηριότητες που ενδεχομένως να αντιμετωπίζουν οι γυναίκες πρόσφυγες, π.χ. οικογενειακές υποχρεώσεις ή ζητήματα πολιτισμικής φύσεως. Η παροχή υπηρεσιών ηµερήσιας φροντίδας για [21] παιδιά (παιδικός σταθμός) και η προσφορά μαθημάτων μόνο για γυναίκες θα βοηθούσαν να ξεπεραστούν τα εμπόδια αυτά. Η προγραμματισμένη διάρκεια της γλωσσικής κατάρτισης είναι 120 ώρες για 1 έως 1,5 μήνες, αλλά θα πρέπει να είναι ευέλικτη ανάλογα με τις διαφορετικές ανάγκες και ικανότητες των συμμετεχόντων. Ο ΟΑΕΔ εξετάζει το ενδεχόμενο να προσφέρει επίδομα 2 ευρώ/ώρα (240 ευρώ το μήνα) σε όσους παρακολουθήσουν το πρόγραμμα γλωσσικής κατάρτισης. Δεδομένης της σημασίας της γλωσσικής επάρκειας για την ένταξη των προσφύγων στην αγορά εργασίας, ο ΟΑΕΔ θα πρέπει να εξετάσει το ενδεχόμενο να προσφέρει κουπόνια για επίσημες εξετάσεις και πιστοποίηση των καταρτιζόμενων. [Για περισσότερες πληροφορίες σχετικά με τη γλωσσική κατάρτιση, ανατρέξτε στην Ενότητα 3.5, σελίδα 63] Ομαδική Συμβουλευτική: Αναζήτηση Εργασίας και Ενεργός Επαγγελματικός Προσανατολισμός (Group Counseling: Job Search and Active Vocational Guidance: Για τους δικαιούχους που είναι έτοιμοι να παραπεμφθούν σε θέσεις εργασίας, οι ομαδικές συνεδρίες θα τους εξοπλίσουν με σημαντικές γνώσεις σε θέματα όπως η αναζήτηση εργασίας, η προετοιμασία βιογραφικού και συνέντευξης κ.λπ. Σε περίπτωση όπου ο εργασιακός σύμβουλος του ΟΑΕΔ επιβεβαιώσει την ανάγκη για κατάρτιση σε τεχνικές δεξιότητες, οι εν λόγω δικαιούχοι θα παρακολουθήσουν ένα σεμινάριο ενεργού επαγγελματικού προσανατολισμού, το οποίο θα τους βοηθήσει να επιλέξουν την ειδικότητα στην οποία θα καταρτιστούν. Ιδανικά, οι ομαδικές συμβουλευτικής αναζήτησης εργασίας, θα πρέπει να προηγούνται των συνεντεύξεων για τοποθέτηση σε θέση εργασίας ήεφαρμοσμένου προγράμματος κατάρτισης (ATP) ενώ τα σεμινάρια ενεργού επαγγελματικού προσανατολισμού θα λαμβάνουν χώρα πριν από την κατάρτιση σε τεχνικές δεξιότητες. Ο ΟΑΕΔ σχεδιάζει να προσφέρει 3 συνεδρίες των 6 ωρών η καθεμία και για τις δύο αυτές δράσεις σε ομάδες των 10 ατόμων. Οι ομαδικές συμβουλευτικές θα πραγματοποιηθούν σε δομές του Οργανισμού (ΚΕΚ ή ΚΠΑ2). Συνίσταται, η σύνθεση των ομάδων να γίνεται με βάση το επίπεδο ελληνομάθειας των συμμετεχόντων. Επιπλέον, σε ορισμένες συνεδρίες θα παρέχονται υπηρεσίες διερμηνείας ανάλογα με τη σύνθεση των ομάδων και τις ανάγκες των συμμετεχόντων. [Για περισσότερες πληροφορίες σχετικά με τις δράσεις ομαδικής συμβουλευτικής, ανατρέξτε στην Ενότητα 3.6, σελίδα 67] Τοποθέτηση σε Θέση Απασχόλησης (Job Placement): Οι αναρτημένες κενές θέσεις που αφορούν στο πιλοτικό, θα πρέπει να πληρούν τις ίδιες προϋποθέσεις με οποιαδήποτε άλλη θέση εργασίας. Μόλις γνωστοποιηθεί μια κενή θέση, είναι σημαντικό ο ΟΑΕΔ να ανταποκριθεί το συντομότερο δυνατό προεπιλέγοντας υποψηφίους για συνέντευξη. Ως εκ τούτου, ο αποτελεσματικός έλεγχος και η αξιολόγηση των συμμετεχόντων θα είναι καίριας σημασίας. Οι καλές πρακτικές αντιστοίχισης θέσεων εργασίας θα προσδώσουν μεγαλύτερη αξιοπιστία στον ΟΑΕΔ και πιθανότατα θα ενισχύσουν τη σχέση του με τους εργοδότες. Ο χρόνος τοποθέτησης σε θέση εργασίας θα διαφέρει ανάλογα με τα χαρακτηριστικά του πρόσφυγα. Εάν ένας πρόσφυγας είναι έτοιμος για εργασία, ένας εργασιακός σύμβουλος μπορεί να εξετάσει το ενδεχόμενο παραπομπής του/της σε θέση εργασίας αμέσως μετά την ολοκλήρωση του Ατομικού Σχεδίου Δράσης. Διαφορετικά, αυτό θα μπορούσε να γίνει ανά πάσα στιγμή: ενόσω παρακολουθεί πρόγραμμα γλωσσικής κατάρτισης, εφαρμοσμένο πρόγραμμα κατάρτισης (ATP)/πρακτική άσκηση ή πρόγραμμα επαγγελματικής κατάρτισης, αν και εφόσον προκύψει κατάλληλη κενή θέση εργασίας και ανάλογα με την πρόοδο που έχει σημειώσει. [Για περισσότερες πληροφορίες σχετικά με την τοποθέτηση σε θέση απασχόλησης, ανατρέξτε στην Ενότητα 3.7, σελίδα 71] [22] Πρόγραμμα Νέων Θέσεων Εργασίας (Wage Subsidies): Λόγω των συνθηκών που επικρατούν στην ελληνική αγορά εργασίας καθώς και των ιδιαίτερων προκλήσεων που αντιμετωπίζουν οι πρόσφυγες, το πρόγραμμα Νέων Θέσεων Εργασίας (ΝΘΕ) αναμένεται να διαδραματίσει σημαντικό ρόλο στο πλαίσιο του I.Ref.job. Οι επιδοτήσεις μισθού θα είναι διαθέσιμες για μια αναγγελθείσα κενή θέση εργασίας, εάν τόσο ο εργοδότης όσο και η προτεινόμενη θέση εργασίας πληρούν ορισμένα κριτήρια επιλοξημότητας, τα οποία - στο πλαίσιο της πανδημίας - θα μπορούσαν να χαλαρώσουν. Ενώ τα προγράμματα ΝΘΕ ήταν παραδοσιακά διαθέσιμα μόνο για θέσεις πλήρους απασχόλησης, για αυτό το πιλοτικό πρόγραμμα, ο ΟΑΕΔ θα μπορούσε να εξετάσει το ενδεχόμενο επέκτασης αυτών και σε θέσεις μερικής απασχόλησης. Μόλις γνωστοποιηθεί μια κενή θέση και επιβεβαιωθεί η επιλεξιμότητα της εταιρείας για επιδότηση, είναι σημαντικό οι εργασιακοί σύμβουλοι του ΟΑΕΔ να προεπιλέξουν τους υποψηφίους για συνεντεύξεις το συντομότερο δυνατό. Μόλις ο εργοδότης κάνει την τελική επιλογή, ο δικαιούχος θα προσληφθεί. Το επίπεδο επιδότησης θα μπορούσε να είναι ίσο με το 80-90 τοις εκατό του συνολικού κόστους εργασίας ενώ στους εργοδότες θα μπορούσαν να παρέχονται τρεις επιλογές ως προς τη διάρκεια επιδότησης: 9, 12 ή 15 μήνες. Σημαντική θεωρείται και η δέσμευση των εργοδοτών για διατήρηση των εργαζομένων για μερικούς ακόμη μήνες (π.χ. 3 μήνες) μετά τη λήξη της επιδοτούμενης περιόδου εκτός εάν ισχύουν σαφώς καθορισμένες εξαιρέσεις.. [Για περισσότερες πληροφορίες σχετικά με το πρόγραμμα Νέων Θέσεων Εργασίας, ανατρέξτε στην Ενότητα 3.8, σελίδα 73] Εφαρμοσμένο Πρόγραμμα Κατάρτισης (Applied Training Program - ATP): Αν και επί του παρόντος δεν αποτελεί αυτούσια δράση του πιλοτικού, εν τούτοις η εφαρμογή ενός εφαρμοσμένου προγράμματος κατάρτισης (ATP) ή κάποιο πρόγραμμα απόκτησης εργασιακής εμπειρίας συνίσταται για μελλοντικά πιλοτικά προγράμματα. Ο ΟΑΕΔ έχει συμφωνήσει επί της αρχής ότι αυτού του είδους τα προγράμματα αποτελούν πολλά υποσχόμενες αυτόνομες επιλογές και ήδη σχεδιάζει να προσφέρει εφαρμοσμένη εκπαίδευση σε μορφή πρακτικής άσκησης μετά την θεωρητική κατάρτιση. Ένα (σχεδόν) αυτόνομο εφαρμοσμένο πρόγραμμα κατάρτισης (ATP), θα μπορούσε να συμπεριληφθεί στο πιλοτικό πρόγραμμα έχοντας ένα πολύ σύντομο θεωρητικό σκέλος (δηλαδή μερικές ημέρες) ακολουθούμενο από πρακτική άσκηση. Τα εφαρμοσμένα προγράμματα κατάρτισης (ATPs), είναι γενικά σχετικά σύντομα ενώ η διάρκεια τους κυμαίνεται συνήθως από 3 έως 6 μήνες. Στόχος είναι να μιμηθούν όσο το δυνατόν περισσότερο τις πραγματικές συνθήκες εργασίας, προετοιμάζοντας τους ωφελούμενους για θέσεις απασχόλησης. Για το σκοπό αυτό, ο ΟΑΕΔ θα μπορούσε να εξετάσει το ενδεχόμενο να καταβάλει στους συμμετέχοντες κατά την συμμετοχή τους στο πρόγραμμα, ποσό αντίστοιχο με τον εθνικό κατώτατο μισθό. Η παραπομπή θα μπορούσε να πραγματοποιηθεί είτε μετά την 3η συνεδρία με τον εργασιακό σύμβουλο είτε σε οποιοδήποτε στάδιο του έργου, αν και εφόσον επιτρέπεται ο συνδυασμός παρεμβάσεων, προκειμένου να αποφευχθούν οι επιπτώσεις της μακροχρόνιας παραμονής σε προγράμματα κατάρτισης. Ιδανικά, η δράση αυτή θα πρέπει να υποστηρίζεται από μια τριμερή συμφωνία (μεταξύ ΟΑΕΔ, επιχείρησης και συμμετέχοντα) και με την σύνταξη αναφοράς από τον εργοδότη κατά την ολοκλήρωσή της. [Για περισσότερες πληροφορίες σχετικά με το Εφαρμοσμένο Πρόγραμμα Κατάρτισης (ATP), ανατρέξτε στην Ενότητα 3.9, σελίδα 78] Κατάρτιση σε Τεχνικές Δεξιότητες (Technical Skills Training): Η κατάρτιση σε τεχνικές δεξιότητες έχει σχεδιαστεί για εκείνους τους συμμετέχοντες οι οποίοι δεν είναι ακόμη έτοιμοι για την αγορά εργασίας. Στο πλαίσιο του πιλοτικού, η κατάρτιση σε τεχνικές δεξιότητες θα πρέπει να είναι αρθρωτή,να προσφέρεται σε τεχνικές ειδικότητες με υψηλή ζήτηση στην αγορά εργασίας και [23] να περιλαμβάνει ως αναπόσπαστο στοιχείο την κατάριση σε ήπιες δεξιότητες (soft skills). Προβλέπεται ότι η θεωρητική επαγγελματική κατάρτιση θα έχει μέγιστη διάρκεια 200 ωρών. Αυτό θα μπορούσε να ακολουθηθεί από ένα πρακτικό σκέλος με τη μορφή πρακτικής άσκησης ή εφαρμοσμένου προγράμματος κατάρτισης (ATP) σε περίπτωση όπου δεν υπάρχουν άμεσα διαθέσιμες θέσεις εργασίας. Οι παραπομπές σε τεχνική εκπαίδευση πιθανότατα θα πραγματοποιηθούν μετά την 3η συνεδρία συμβουλευτικής. Αφού επιβεβαιωθεί η επιλογή της ειδικότητας, οι δικαιούχοι θα παραπεμφθούν σε πρόγραμμα κατάρτισης σε ένα από τα ΚΕΚ του ΟΑΕΔ. Ιδανικά, με την ολοκλήρωση της θεωρητικής εκπαίδευσης, θα εκδίδεται επίσημο πιστοποιητικό. [Για περισσότερες πληροφορίες σχετικά με την κατάρτιση σε τεχνικές δεξιότητες, ανατρέξτε στην Ενότητα 3.10, σελίδα 83] Παράμετροι υλοποίησης Πέραν της έγκαιρης σχεδίασης όλων των παραμέτρων που σχετίζονται με το πιλοτικό, υπάρχουν και επιπλέον παράμετροι υλοποίησης οι οποίες θα πρέπει να αποφασιστούν εγκαίρως. Η επιτυχής υλοποίηση του πιλοτικού απαιτεί: αποτελεσματική σχεδίαση όλων των παραμέτρων διαχείρισής του, συνεχή παρακολούθηση των αναγκών σε ανθρώπινο δυναμικό, προσεκτική αξιολόγηση των περιορισμών που σχετίζονται με την πανδημία του COVID-19, τον εκ των προτέρων καθορισμό των επιχειρηματικών διαδικασιών του πιλοτικού και παράλληλα την ανάπτυξη και διαθεσιμότητα της απαραίτητης υποδομής πληροφορικής σε επίπεδο υλικού, λογισμικού και υπηρεσιών για την υποστήριξη των επιχειρησιακών διαδικασιών του πιλοτικού και τη συνεχή παρακολούθηση και αξιολόγησή του. Συνίσταται η υλοποίηση του πιλοτικού προγράμματος I.Ref.Job να υποστηρίζεται από τρεις ομάδες. Οι τρεις ομάδες αυτές είναι: η ομάδα διαχείρισης έργου, η ομάδα καθοδήγησης του έργου και μια συμβουλευτική ομάδα έργου. 1. Η ομάδα διαχείρισης έργου (project management group) για το I.Ref.Job περιλαμβάνει υπαλλήλους του ΟΑΕΔ που θα συνεργαστούν στο πλαίσιο του έργου για την επίτευξη των στόχων του. Η ομάδα θα ασχολείται με τις καθημερινές δραστηριότητες και θα παρακολουθεί την πρόοδο του έργου. Αποτελείται από τον διαχειριστή του έργου, το βασικό προσωπικό διαχείρισης του έργου καθώς και άλλα μέλη που θα επιφορτιστούν με δραστηριότητες που σχετίζονται με την υλοποίηση του έργου. 2. Η ομάδα καθοδήγησης του έργου (project steering group) θα παρέχει στοιχεία και συμβουλές σχετικά με το έργο από την αρχή μέχρι την ολοκλήρωση του, και θα ενημερώνει τους βασικούς ενδιαφερόμενους σχετικά με τον σχεδιασμό και την υλοποίησή του. Η ομάδα καθοδήγησης θα αποτελείται από βασικούς φορείς που είτε συνεργάζονται με τον ΟΑΕΔ, είτε έχουν - σχετική με το έργο - εμπειρία και τεχνογνωσία είτε των οποίων οι πελάτες ή οι κάτοικοι είναι οι τελικοί χρήστες των υπηρεσιών του πιλοτικού. 3. Η συμβουλευτική ομάδα (advisory group) αποτελείται από πολλούς ενδιαφερόμενους φορείς που εξυπηρετούν την επιδιωκόμενη ομάδα στόχο σε τακτική βάση και μπορούν να βοηθήσουν τον ΟΑΕΔ να σχεδιάσει και να εφαρμόσει ένα επιτυχημένο πιλοτικό πρόγραμμα παρέχοντας στοιχεία και προτάσεις. [24] [Για περισσότερες πληροφορίες σχετικά με τις ρυθμίσεις υλοποίησης του πιλοτικού και τις σχετικές με τον COVID παραμέτρους, ανατρέξτε στην Ενότητα 4.1, σελίδα 91 και στην Ενότητα 4.3, σελίδα 97 αντίστοιχα] Οι ανθρώπινοι πόροι είναι κριτικής σημασίας για την εφαρμογή του πιλοτικού προγράμματος για τους πρόσφυγες, κυρίως επειδή απαιτούνται ορισμένες προσαρμογές για την εξυπηρέτηση αυτής της νέας ομάδας στόχου. Ένας επαρκής αριθμός προσωπικού, θα χρειαστεί να κινητοποιηθεί για να χειριστεί τον προβλεπόμενο φόρτο εργασίας σε εύλογο χρονικό διάστημα ώστε να ελαχιστοποιηθουν οι όποιες καθυστερήσεις στην πρόσβαση στο πρόγραμμα και τα οφέλη του. Οι εργασιακοί σύμβουλοι θα πρέπει να αποτελέσουν προτεραιότητα, καθώς η συμβουλευτική είναι η βασική αρχική δραστηριότητα και χρησιμεύει ως πύλη για τις επακόλουθες παραπομπές. Το επιλεγμένο προσωπικό θα πρέπει να έχει ενδιαφέρον ή ικανότητα στη διαπολιτισμική επικοινωνία ή/και να έχει εργαστεί με την συγεκριμένη ομάδα-στόχο. Η γνώση της αγγλικής γλώσσας θα ήταν επίσης ένα πλεονέκτημα. Εξίσου σημαντική είναι η καθοδήγηση του προσωπικού, ιδιαίτερα όσον αφορά σε νέες ή αναθεωρημένες δράσεις, προκειμένου να ανταποκριθούν στους ρόλους τους. Ιδανικά, θα παρέχεται διαπολιτισμική και επιχειρησιακή εκπαίδευση πριν από την εκκίνηση του πιλοτικού. Απαιτείται ακόμη η σύσταση ομάδων ειδικού σκοπού από διάφορα τμήματα του ΟΑΕΔ προκειμένου να αναλάβουν δραστηριότητες επικοινωνίας και ενημέρωσης καθώς και για τον καθορισμό του εφαρμοσμένου προγράμμτος κατάρτισης (ATP), εφόσον αυτό συμπεριληφθεί στο πιλοτικό. Τέλος, ορισμένες δράσεις απαιτούν μηχανισμούς συντονισμού και συνεργασίας. [Για περισσότερες πληροφορίες σχετικά με τις παραμέτρους που αφορούν στο Ανθρώπινο Δυναμικό, ανατρέξτε στην Ενότητα 4.2, σελίδα 96] Ορισμένες εργασίες θα πρέπει να υλοποιηθούν πριν από την εκκίνηση του πιλοτικού, προκειμένου αυτό να χτιστεί πάνω σε γερές βάσεις. Οι δράσεις αυτές εμπίπτουν σε 3 τομείς: φάση τελικού σχεδιασμού. προπαρασκευαστικές δραστηριότητες, και δράσεις επικοινωνίας και ενημέρωσης. Οι συγκεκριμένες ενέργειες για κάθε τομέα συνοψίζονται στις τρεις πρώτες ενότητες του παρακάτω χρονοδιαγράμματος. Ενώ αναγνωρίζεται ότι ενδέχεται να χρειαστούν ορισμένες προσαρμογές κατά τα πρώτα στάδια της υλοποίησης, διδάγματα από άλλα προγράμματα συνιστούν ότι οι καθυστερήσεις στην οριστικοποίηση βασικών πτυχών του σχεδιασμού μπορεί να επιφέρουν κινδύνους για το κύρος του ΟΑΕΔ και να καθυστερήσουν την ανάπτυξη συστημάτων πληροφορικής, τα οποία έχουν ιδιάζουσα σημασία. Οι επιχειρηματικές διαδικασίες και οι αντίστοιχες παράμετροι σε όρους πληροφορικής που περιλαμβάνονται στην Ενότητα 4 του παρόντος, θα πρέπει να επανεξεταστούν υπό το φως των αποφάσεων που θα ληφθούν κατά την τελική φάση του σχεδιασμού του πιλοτικού και να προσαρμοστούν αναλόγως. [Για περισσότερες πληροφορίες σχετικά με τις προϋποθέσεις του πιλοτικού, ανατρέξτε στην Ενότητα 4.4, σελίδα 98] [25] Χρονοδιάγραμμα σημαντικών οροσήμων Σε επίπεδο τεχνολογίας της πληροφορίας, Ο ΟΑΕΔ διαθέτει ήδη μια πολύ ώριμη υποδομή (υλικό, λογισμικό και υπηρεσίες). Ο ΟΑΕΔ έχει στη διάθεσή του αρκετά εργαλεία και μηχανισμούς πληροφορικής ικανούς να υποστηρίξουν όλες τις επιχειρηματικές διαδικασίες που εμπλέκονται στο σύνολο του έργου. Επιπλέον, όλα τα υπάρχοντα πληροφοριακά συστήματα του ΟΑΕΔ θα μπορούσαν να προσαρμοστούν, να επεκταθούν περαιτέρω και να παραμετροποιηθούν ώστε να ικανοποιήσουν αποτελεσματικά τις ανάγκες του έργου. [Για περισσότερες πληροφορίες σχετικά με τις επιχειρηματικές διαδικασίες του πιλοτικού και τις παραμέτρους πληροφορικής, ανατρέξτε στην Ενότητα 4.5, σελίδα 102] Οι ισχυρές ρυθμίσεις παρακολούθησης και αξιολόγησης είναι κριτικής σημασίας όχι μόνο για την παρακολούθηση της εφαρμογής του προγράμματος και των αποτελεσμάτων που είχε αυτό για τους δικαιούχους, αλλά και για την χρήση των διδαγμάτων που αντλήθηκαν στο σχεδιασμό και την εφαρμογή παρόμοιων προγραμμάτων στο μέλλον. Το προτεινόμενο πλαίσιο παρακολούθησης για το I.Ref.Job περιλαμβάνει αλυσίδες αποτελεσμάτων για το συνολικό πιλοτικό (βλ. παρακάτω), συγκεκριμένες πιλοτικές δράσεις αλλά και επιλεγμένους δείκτες. Για κάθε τομέα, μια αλυσίδα αποτελεσμάτων συνοψίζει την κατανόηση των στόχων του πιλοτικού προγράμματος, τις σχετικές δράσεις του και επιλεγμένους δείκτες. Το πλαίσιο καλύπτει τις εισροές, την πρόοδο υλοποίησης (δραστηριότητες και εκροές) και τα αποτελέσματα, καθώς και πιθανές δραστηριότητες αξιολόγησης. [26] Αλυσίδα αποτελεσμάτων για το σύνολο του πιλοτικού προγράμματος [Για περισσότερες πληροφορίες σχετικά με τις παραμέτρους που σχετίζονται με την παρακολούθηση και την αξιολόγηση του πιλοτικού, ανατρέξτε στην Ενότητα 5, σελίδα 143] Πίνακας 1 – Οδηγός Ανάγνωσης της Έκθεσης Κύρια θέματα Αριθμοί σελίδων Γενικές πληροφορίες και κίνητρο (Background and motivation) 29 Επισκόπηση του πιλοτικού προγράμματος (Overview of the 36, 144 I.Ref.Job Pilot) Προϋποθέσεις εφαρμογής (Pre-requisites) 99 Επικοινωνία και Ενημέρωση Ομάδας Στόχου (Population Outreach) 39, 43, 106, 144 Επικοινωνία και Ενημέρωση Εργοδοτών (Employer Outreach) 39, 47, 106, 144 Επιλεξιμότητα, Επιλογή και Ένταξη στο Πρόγραμμα (Eligibility, 39, 50, 109, 144 Selection and Enrollment) Συμβουλευτική, Ανάλυση Προφίλ και Παραπομπή σε Δράσεις 39, 57, 114, 144 (Counseling, Profiling, and Referrals) Γλωσσική Κατάρτιση (Language training) 39, 64, 118, 145 Ομαδική Συμβουλευτική: Αναζήτηση Εργασίας και Ενεργός Επαγγελματικός Προσανατολισμός (Group Counseling: Job Search 39, 68, 122, 144 and Active Vocational Guidance) Τοποθέτηση σε Θέση Απασχόλησης ( 39, 72, 125, 144 Job placement) Πρόγραμμα Νέων Θέσεων Εργασίας ( 39, 74, 129, 144 Wage subsidies) Εφαρμοσμένο Πρόγραμμα Κατάρτισης/Πρακτικής Άσκησης ( 39, 79, 136, 144, 146 Applied training program/Internship) [27] Κατάρτιση σε Τεχνικές Δεξιότητες (Technical skills training) 39, 85, 139, 144 Ρυθμίσεις διαχείρησης του έργου (Project Management 92 Arrangements) Παράμετροι σχετικές με τους Ανθρώπινους Πόρους ( 97 HR Considerations) Παράμετροι σχετικές με την πανδημία COVID-19 98 Considerations(COVID-19 Considerations) Επιχειρηματικές διαδικασίες και παράμετροι σχετικές με την 103 πληροφορική (Business processes and IT support considerations) Παρακολούθηση και Αξιολόγηση (Monitoring and Evaluation 143 Arrangements) [28] 1. Background and motivation To promote the long-term integration of refugees through more systematic and sustainable means, the Ministry of Labor and Social Affairs (MoLSA) and the Hellenic Manpower Employment Organization (OAED) are launching a pilot. The Integrated Action for Facilitating Labor Market Integration of Refugees (I.Ref.Job pilot) to be launched in the first semester of 2022 aims to support the integration of refugees into Greek society, mainly through labor market integration, thus providing them with the necessary tools in their path towards self-sufficiency. OAED’s initiative seeks to place approximately 1,000 recognized refugees and beneficiaries of subsidiary protection in jobs in the Attica and Central Macedonia regions. The planned program is expected to lay the basis for mainstreaming interventions for refugees into the active labor market program (ALMP) reform that is currently underway led by MoLSA and OAED. The World Bank in cooperation with the European Commission’s Directorate-General for Structural Reform Support (DG REFORM) is assisting OAED to develop and implement such a strategy. The main purpose of this document is to provide guidance and recommendations on the design and implementation of the I.Ref.Job Pilot. This report was prepared after a series of exchanges between the World Bank, OAED and the DG REFORM. The recommendations presented in this document take into consideration OAED’s current structure, legal framework, human resources and initial plans. The document builds on the World Bank’s experience with a previous project focused on ALMPs in Greece (Elefsina pilot), as well as international and Greek experience in refugees’ integration. Ultimately, this document aims to be a “how to” manual that OAED can use to finalize the design and implement the I.Ref.Job Pilot. This document is structured as follows: Chapter 1 gives background for context, focusing on the evolution of the refugee crisis in Greece and the rationale behind the I.Ref.Job pilot. Chapter 2 describes the engagement between the World Bank and OAED, as well as the overall plan for the Pilot. This chapter also lays out the main principles that will guide the Pilot and its proposed design. Chapter 3 is the core of this document and has two objectives: 1) to describe in detail the activities proposed for the I.Ref.Job pilot, and 2) to provide recommendations on how these activities could be conducted. A summary of pending decisions and recommendations appears at the end of each subsection. Chapter 4 presents key factors for the Pilot’s implementation: project management arrangements, HR considerations, potential adaptations induced by COVID-19, and necessary preparatory activities. Chapter 4 ends with a “nuts and bolts” preliminary definition of business processes for each pilot activity and the IT requirements related to them. Chapter 5 outlines the monitoring and evaluation arrangements for the refugee pilot, including key performance indicators. 1.1. Asylum-seeker influx and applications in Greece Until 2016 Greece was primarily a major transit country for asylum seekers. Due to its geographic location near the EU border with Turkey, Greece was commonly the primary entry point for asylum seekers trying to reach central and northern European countries through the Western Balkan route. Irregular arrivals of refugees and asylum seekers in Europe increased substantially in 2015, reaching a peak of 1,046.599 in the whole continent and 857,363 in Greece.1 However, despite the large number of entrants to Greece before 2016, only a small share intended to stay in the country. According to the Greek Asylum Service, in 2015 approximately 13,000 asylum applications were filed, only 1.5% of total arrivals in the country during that year. 1 IOM, 2015. [29] The closure of the Western Balkan route and the EU-Turkey Statement gradually transformed Greece from a transit gateway to a refugee destination country. Although arrivals decreased significantly from 2016 onwards, they remained substantial. Between 2017 and 2019, around 156,000 people in total arrived in the country. 2 In the aftermath of the March 2016 EU-Turkey Statement and the closure of the Greek border with North Macedonia, 60,000 migrants and asylum seekers were stranded in Greece without legal pathways to their original intended destination. The lack of alternatives led to an increase in the number of asylum applications in Greece. During the period 2017-2019, around 200,000 people3 applied for asylum in the country, reaching a peak in 2019 with 74,000 applications4. Applications were mainly from individuals fleeing Syria (25%), Afghanistan (19%) and Pakistan (11%).5 During the same period, the Greek government granted international protection status (refugee and subsidiary protection status) to approximately 43,000 applicants (Figure 1). Figure 1 - Asylum Applications in Greece 18000 80000 No of Asylum Applications (green) 16000 70000 14000 No of Asylum decisions 60000 12000 50000 10000 40000 8000 30000 6000 20000 4000 2000 10000 0 0 2013 2014 2015 2016 2017 2018 2019 Axis Title Refugee status Subsidiary protection status Negative decisions Asylum applications (Unaccompanied Minors not included) Source: Asylum Service, Greek Ministry of Migration and Asylum, January 2020 1.2. First-response humanitarian interventions At the outset of the 2015 Syrian refugee crisis, emphasis was given to humanitarian aid and emergency support. As more asylum seekers remained in Greece for extended periods, the Greek 2 International Organization for Migration (IOM), Flow monitoring, available at: https://migration.iom.int/europe?type=arrivals. 3 Asylum applications from unaccompanied minors not included. 4 Asylum applications from unaccompanied minors not included. 5 Greek Ministry of Migration and Asylum, Asylum Service, January 2020. [30] government together with international partners initially focused their efforts on addressing basic humanitarian needs such as accommodation, food and healthcare. To support the Greek authorities, the European Commission has awarded over 816 million euros in emergency assistance since the beginning of 2015.6 The funding covers the delivery of primary healthcare, psycho-social care, improved hygiene conditions and shelter for those in need, care for unaccompanied minors, as well as informal education and a cash voucher scheme for refugees stranded in Greece. In an effort to address the humanitarian needs of asylum-seekers in a more systematic way, in July 2017, the flagship initiative “Emergency Support to Integration & Accommodation” (ESTIA) was launched. The United Nations Refugee Agency (UNHCR) runs the ESTIA program in cooperation with the Greek Government, local authorities and partner organizations. The program helps get vulnerable asylum seekers and their families into urban accommodation and provides monthly cash assistance that allows them to meet basic needs, while also supporting the local economy. By the end of December 2019, UNHCR had approximately 26,000 accommodation places located in 14 cities and 7 islands nationwide. In addition to ESTIA, Reception and Identification Centers (RICs) and temporary facilities have been created in order to respond to the increased accommodation needs since 2016. The International Organization of Migration (IOM) also provided shelter in hotels for the most vulnerable migrants through their project called FILOXENIA (Temporary Shelter and Protection for the Most Vulnerable Migrants in Greece). However, the recently enacted Law 4674/2020 stipulates that once refugee or subsidiary protection status is granted, beneficiaries are no longer eligible for humanitarian assistance. Those already hosted in apartments as part of the ESTIA program or other facilities, have to leave their premises within 30 days after the asylum decision is made.7 Beyond accommodation, various organizations in Greece provide services covering many spheres of humanitarian help. Organizations such as Solidarity Now, Caritas Hellas, PRAKSIS, ZAATAR and the Centre for Reception and Solidarity of the City of Athens (KYADA) are charged not only with the provision of food, financial help and development assistance but also with the provision of social services, including psychological support, and legal advice. Other organizations such as the Doctors of the World and Médecins Sans Frontières (MSF) Greece focus on the provision of medical care. 1.3. Support to refugees’ longer-term integration: international experience Refugees’ integration into host countries’ societies has increasingly gained attention. Since the 1990s, countries in Europe have taken an active role in supporting early integration interventions for refugees.8 Such integration programs usually include language training, the teaching of relevant skills, other active labor market programs and financial incentives. Quick and effective labor market integration is beneficial to both refugees and host countries. Integration into the labor market allows refugees to become self-sufficient and less 6 The emergency funding comes in addition to the 613 million euros already allocated to Greece for migrants under the national programs for 2014-2020; 328 million from the Asylum, Migration and Integration Fund (AMIF) and 285 million euros from the Internal Security Fund (ISF) (European Commission, 2019). 7 Should the asylum application get a negative decision, the applicant has the right to appeal before the Appeals Authority (2nd instance) and a new International Protection Applicant’s Card is issued. In case the appeal is also rejected, the applicant may submit an application of annulment to the competent local Administrative First Instance Court within thirty days. In the meantime, the applicant is detained in a Pre- Departure Detention Center until a decision for return is issued. 8 Arendt, 2018. [31] reliant on welfare, thereby increasing motivation. It is an equally important step in social integration: refugees are given the opportunity to extend their network and improve language proficiency, through increased interactions with national residents. International evidence also indicates that the return to a ‘normal life’ could mitigate the psychological distress caused by the experiences of having to flee.9 Host countries also benefit financially, through lower welfare expenses and increased tax income.10 Further, surveys11 show that countries’ willingness to accept refugees are linked to their potential contribution to the host economy. As such, positive labor market integration experiences could also lessen anti-immigration political sentiment.12 Barriers to integration for refugees are unique and differ from economic migrants. Those fleeing conflict, persecution or similar problems, face different migration decisions compared to labor migrants. Economic factors related to employment opportunities in destination countries are not the primary migration drivers for refugees.13 This leads to a higher level of mismatch in terms of economic adaptability (such as skills and qualifications transferability) with the labor demand in the destination country and lower levels of preparedness (cultural knowledge and language proficiency).14 Equally, long and precarious refugee journeys lead to extended periods without access to education, formal jobs and other activities, resulting in the deterioration of refugees’ human capital.15 Finally, conditions upon arrival such as long-periods of uncertainty during the application process 16, employment bans 17 or spatial dispersal policies 18 can have negative impacts on the labor market integration of refugees. International evidence suggests which policies may be more or less effective in fostering the labor market integration of refugees. Vocational skills training can be effective in the longer term if skills prove relevant, despite potential lock-in effects in the short-term.19 Shifting training to primarily on-the-job can mitigate the lock-in effects, yet can also lower the potential for long-term human capital accumulation.20 Language training has been shown to be significantly effective over the long-term.21 Evidence also indicates that counseling by employment services is beneficial to refugees as more personalized integration efforts can take into account refugees' skills and areas needing improvement.22 The recognition and validation of skills and prior informal experiences can also be a powerful tool in increasing refugees’ employability and better informing existing skill gaps.23 Job search assistance primarily improves short-term employment outcomes, as long-term 9 Porter and Haslam, 2005. 10 For example, the Danish government estimates 50.000 USD of additional income and savings per year from moving an individual refugee into regular employment (Ibfelt and Heltborg, 2019). 11 Bansak et al., 2016. 12 Dustmann, Vasiljeva, and Damm, 2016. 13 Hatton, 2016. 14 Brell et al., 2020; Fasani et al., 2018. 15 Dustmann et al., 2020. 16 Hainmueller et al., 2016. 17 Marbach et al., 2018. 18 Edin et al., 2004. For Sweden, Damm, 2009. and Damm and Rosholm, 2009 for Denmark. 19 Card et al., 2018; Butschek and Walter, 2013; and Clausen et al., 2009. 20 Arendt, 2020; Butschek and Walter, 2013; Card et al., 2018; and Gehrke and Hartwig, 2018. 21 Foged et al., 2020. 22 Sarvimäki & Hämäläinen, 2016; and, Andersson Joona & Nekby, 2012. 23 Bertelsmann Foundation, 2016; OECD, 2017; and EU Commission, 2017 [32] human capital accumulation is limited.24 Other international evidence suggests that wage subsidies in the private sector are an effective, yet underused, labor market integration policy for refugees.25 1.4. Towards systematic labor market integration for refugees in Greece As in other countries, the Greek government’s effort has gradually moved to providing services to promote refugees’ longer-term integration, although with challenges. Despite the Greek government introducing measures to facilitate the gradual participation of refugees in the economic and social life of the country, refugees in Greece still face a number of specific obstacles, including language barriers, skills recognition and administrative hurdles. The current unfavorable economic situation characterized by high rates of unemployment adds to these challenges, exacerbated by the recent COVID-19 crisis. Although core responsibilities related to integration, such as education and employment, are competences of the national government and the relevant ministries, local authorities in Greece still have a prominent role in refugees’ integration. In the 1990s, municipalities in Greece acquired de facto a greater role in integration either by implementing national laws on migration, and/or by providing services to local residents, including migrants. These actions vary significantly depending on the local administration’s disposition towards migrants. In 2006, municipalities were granted by law26 the possibility to implement additional projects to complement national actions aiming at the integration of populations such as Roma, returning Greeks, migrants and refugees, into the social, economic and political life of the local community. The creation of the Migration Integration Councils (MIC) in 2010 became the first local government body intended to promote the political and civic participation of migrants at the local level. Such councils have been set up so far in the municipalities of Athens, Thessaloniki, Heraklion, and others, where large migrant populations are concentrated. Over the past years, integration services for refugees in Greece have been limited to ad hoc initiatives and programs primarily provided by civil society organizations and NGOs. Upon their recognition, beneficiaries of international protection gain rights and benefits that align to those of Greek citizens, such as access to employment and social benefits.27 Initiatives that aim to promote independent living of refugees as well as to facilitate their initial integration into the Greek society such as employability and vocational training programs were mainly project-based, dependent on funding and lacking sustainability (See Box 1). Box 1 - Ad hoc interventions focused on labor market integration in Greece Several initiatives aiming at refugees’ labor market integration take place at the local level. An example is “Cities Network for Integration”, a network of Greek municipalities working together 24 Card et al., 2018; Butschek and Walter, 201.; Clausen, 2009; and Battisti et al., 2019. 25 Card et al., 2019; Butschek & Walter, 2013; and Clausen et al., 2009. 26 Code on Municipalities and Communities - Law 3463/2006, Article 75. 27 Successful asylum applicants get a residence permit that is valid for three years. Upon granting a residence permit, a person has the right to stay legally in Greece until the card expires; apply for renewal when the card expires, move freely throughout Greece; get health care; send their children to Greek public schools; attend a public evening school; work; as well as get a Greek social security number (AMKA). Refugees also have the right to legally open up a business or work as freelancers. [33] to organize and implement coordinated activities and interventions at the local and national level, aimed at promoting social integration of migrants and refugees and strengthening social cohesion. Another example is “Curing the Limbo”, a program launched by the Municipality of Athens that allows refugees to become socially active, get job readiness training, interconnect with active citizen groups, and gain access to affordable housing. As part of the program, refugees also provide support to the neighborhoods of Athens depending on the needs. In an effort to reduce unemployment and offer opportunities for enhancing the employability of all groups, the Municipality of Athens implemented two actions through its development agency, the Athens Development and Destination Management Agency (ADDMA). ADDMA implemented a project funded by the Region of Attica called TOPSA (Local Integrated Programs for the Support of Employment). The project offered employability training and counseling to 37,000 job seekers from 2012 until 2015. The program was designed for all citizens of Athens without specific reference to migrants, refugees or other vulnerable groups. Secondly, ADDMA, in collaboration with the Ministry of Labor, implemented TOPEKO in six projects from 2012-2015, an acronym for Local Actions for Integrating Socially Vulnerable Groups. All six projects aimed at the development of an integrated support plan to prepare socially vulnerable groups to enter the labor market. Its goals were that participants secured employment upon completion of the project. The first five projects supported 400 beneficiaries, of which 30% were migrants. The last one exclusively addressed migrants. The HELIOS program under the Ministry of Migration and Asylum (MoMA), is the largest integration program for refugees and focuses on their integration at the local level.28 HELIOS is implemented by the IOM and several partners.29 The program aims to gradually reintroduce beneficiaries to independent living and ensure a smooth integration into Greek society. The program provides: 1) independent accommodation and rental subsidies for up to 12 months; 2) integration courses including modules on Greek language, cultural orientation, job readiness and life skills; 3) integration monitoring, i.e., regular assessment of the beneficiaries’ inclusion within the host community throughout the program and after they exit from the program and start living independently in Greece. In addition, the program aims to sensitize host communities on refugee issues through workshops, activities, events and the creation of a nationwide media campaign.30 Over the past few years, the Ministry of Migration and Asylum has been working on a holistic integration strategy covering all the steps towards self-sufficiency and long-term integration of refugees. The MoMA’s mandate spans a wide range of refugee issues – from first reception and 28 In order to benefit from the HELIOS program, the following eligibility criteria need to be met: a) be beneficiaries of International Protection (refugees or beneficiaries of subsidiary protection) and recognized after 01/01/2018; b) be officially registered and reside in an Open Accommodation Center, Reception and Identification Center (RIC), a hotel of the IOM FILOXENIA project or in the ESTIA program at the moment of enrollment in the project or have complied with the instructions received by UNHCR, RIS and/or the Site Management Support actors concerning the requested exit from the accommodation places in Open Accommodation Centers, RICs, hotels of the IOM FILOXENIA project or in the ESTIA program. 29 Catholic Relief Services (CRS), Danish Refugee Council Greece (DRC Greece), Greek Council for Refugees (GCR), Solidarity Now, INTERSOS, Municipality Development Agency Thessaloniki S.A (MDAT), Metadrasi, PLOIGOS, KEDHL, Technology and Human Resources Institute (IATAP). 30 As of August 2021, 32,780 beneficiaries have been enrolled since the program started. Accommodation support has been the largest service, as 15,353 individuals have benefited from HELIOS rental subsidies. 5,913 individuals have been enrolled in integration courses, with approx. half still being active students. Data on enrollment in integration monitoring (13,434 sessions) and employability counseling (5,930) is only available for total sessions performed and not on a participant level (HELIOS, 2021). [34] detention to asylum decisions and social integration.31 The National Integration Strategy which was issued in July 2019 and is currently under revision by MoMA, proposes a new model of integration with the aim to create and maintain an open society that respects diversity. The national strategy consists of 3 main pillars (Figure 2): • Promote integration at the local level and access to necessary services and goods such as accommodation and healthcare; • Support independent living while focusing on the social dimensions of integration (enrollment of children in schools and participation of adults in integration activities and courses); • Facilitate labor market integration, which involves actions and measures such as: identifying and recognizing the skills and qualifications of third-country nationals, enabling their access to the job market, and promoting entrepreneurship. Due to the fact that the envisioned pillars range across various policy areas, the National Strategy foresees that the successful implementation of the integration strategy for third-country nationals requires the collaboration of MoMA with other Ministries, local government administrations as well as entities of civil society. Figure 2 - Greece’s Strategy towards Refugees’ Longer-term Integration and Self-sufficiency The first two pillars of refugees’ integration are covered by ESTIA and HELIOS, managed by UNHCR and IOM with increasing ownership by the Greek Government. As of January 2021, the Greek state has taken responsibility of the ESTIA scheme, which will operate under the competence of the Reception and Identification Service (RIS), as per the new organization of MoMA. Additionally, as a reflection of the National Integration Strategy, the Greek Government designed the 2nd phase of HELIOS, implemented since July 2019. Given its mandate, OAED is best placed to cover the labor market integration step of the integration strategy. As the public authority in charge of implementing policies to promote 31 Presidential Decree 4/2020, GG 4/Α/15-1-2020. [35] employment and reduce unemployment, OAED is the natural government agency to be in charge of interventions that aim to support the integration of the country’s human resources into the labor market, including beneficiaries of international protection and other vulnerable groups. In an initial effort to facilitate refugees’ integration, a few years ago OAED implemented a small-scale pilot, I.Ref.Sos, to support young refugees. Targeted at refugees and asylum seekers aged 16-24, the objectives of I.Ref.Sos were to (i) develop innovative practices that enable the target group to quickly enter the host labor market, (ii) equip the target group with the necessary social and horizontal skills for their labor market inclusion, (iii) promote sustainable partnerships between public authorities and social partners to support refugees’ integration and (iv) promote knowledge and exchange of experiences between refugee receiving countries. The experience acquired with the implementation of the I.Ref.Sos pilot will be useful for OAED as the organization starts provision of services in support of unemployed refugees. 2. The proposed pilot After briefly describing the engagement behind the report, this chapter outlines the principles guiding the proposed design and implementation of the Pilot and provides an overview of the delivery processes. The technical assistance has included a set of structured discussions with OAED counterparts and complementary written outputs. This work builds on prior experience in support of broader ALMP reform in Greece. Guiding principles for the design and implementation of the Pilot are informed by international and local experience. The delivery of the Pilot is organized according to a series of defined and interrelated stages. 2.1. Engagement with OAED Over nearly two years, the World Bank has worked closely with OAED to introduce initiatives in support of the labor market integration of refugees. To modernize ALMPs with the objective of serving the needs of refugees, in February 2020 the World Bank started a technical assistance project in support of the Ministry of Labor and Social Affairs (MoLSA) and OAED, funded by the EC’s DG REFORM. The objective of this project is to support OAED with the design of a pilot program aimed at promoting the labor market integration of refugees. To achieve this objective, the technical assistance includes a range of activities focused on informing the design and implementation of the Pilot, drawing on international and Greek experience. This report builds on many exchanges with OAED, DG REFORM and other national and international stakeholders. These exchanges have focused on both delivery and design aspects of the Pilot. In advance of meetings, the World Bank team prepared and shared topic-specific notes and presentations. In addition, separate outputs on skills recognition, outreach to employers and outreach to the target population were produced and shared with OAED and DG REFORM. Additional outputs prepared in response to OAED’s requests include specific material to guide the engagement with employers and an evidence-based methodology to identify training specialties. A complete list of documents produced by the World Bank to inform the I.Ref.Job pilot can be found in Annex I. This work benefits from complementarities and synergies with other ALMP-related activities undertaken by the World Bank in support of OAED in the last few years. From 2017, the World Bank has engaged with the MoLSA and OAED to improve the effectiveness of Greece’s Active Labor Market Programs (ALMPs). The focus of the Technical Assistance was to strengthen the design, delivery and implementation of ALMPs in Greece. Initially, these reforms were tested through a small-scale pilot in three municipalities in the region of West Attica, covered by the employment office (KPA2) of Elefsina. The second phase of the reform is expected to begin in early [36] 2022. Following the second-round pilots and their evaluation, the ALMP reform is expected to be rolled-out nationwide. 2.2. General facts about the Pilot proposed by OAED According to current plans, the I.Ref.Job pilot is expected to be launched in the first semester of 2022 and to serve 1,000 refugees. The explicit objective of the Pilot is to facilitate refugee integration into the Greek labor market. In its first phase, expected to last approximately 18 months, the program seeks to place 1,000 unemployed recognized refugees and beneficiaries of subsidiary protection in jobs in the regions of Attica and Central Macedonia. More specifically, the Pilot aims to serve 600 beneficiaries in the 18-29 age group in Attica and 400 beneficiaries in the 30+ age group in Central Macedonia.32 The Pilot is expected to lay the basis to mainstream interventions for the refugee population into the ongoing ALMP reform mentioned above. The budget to implement the program amounts to around 15.3 million euros. The program will be funded by the European Social Fund (ESF) and the Youth Employment Initiative (YEI) through the Operational Programme Human Resources Development, Education and Life Lifelong Learning 2014-2020. 2.3. Suggested principles for the Pilot Five key principles are proposed by the World Bank team to guide Pilot preparation and implementation. International experience (see Box 2 below) and consultations with local partners who serve the refugee population in Greece provide valuable lessons that OAED can apply as the organization moves forward with the next steps of pilot design and implementation. These good practices can be summarized in the following five core principles: 1. Refugees should be placed in work settings as soon as possible. Refugees who either have a long wait before being enrolled in an intervention or spend too much time in theoretical training or other “off-job” interventions may lose motivation and get discouraged. This often translates into high dropouts from integration programs. A prerequisite for refugees to move into jobs quickly is early engagement with the private sector. Particular attention should be given to firms that have a strong focus on Corporate Social Responsibility or have demonstrated their commitment to working with refugees. 2. When direct job matching is not possible, other services should be provided taking into account labor market conditions. Some beneficiaries might not be immediately ready for the workplace because they lack relevant skills or work experience. There might also be temporary periods when the number of job vacancies is not sufficient. In such cases, OAED should be able to provide complementary services to improve refugees’ employability. The provision of such services should be in line with local labor market demand, informed by analyses and consultations with employers and other stakeholders. 3. Adequate language skills and soft skills should be given sufficient attention. Language proficiency is perceived by Greek employers as the main barrier to employing a refugee, with employers noting that many jobs require staff not only to communicate sufficiently in Greek but also to read technical and safety information. According to employers, refugees should also be equipped with a set of basic soft skills including communication skills, teamwork, positive attitude, punctuality, good work ethics and familiarity with the country’s work culture. 32 The reason for the distinction in ages between the two pilot regions is based on OAED’s funding restrictions. [37] 4. Provision of services should be tailored to the needs of refugees and take into account the specific challenges they may face. Examples of challenges faced by refugees include administrative barriers and lack of familiarity with administrative procedures, language barriers, uncertainty about the future, and psychological distress. Women may face particular challenges related to social and cultural norms and care responsibilities. For this reason, refugees would often need more and lengthier counseling sessions than the average OAED client. In addition, not much time should elapse between counseling appointments to avoid discouragement. Interpretation services should be available to facilitate communication. 5. Recognizing qualifications and validating informal and non-formal skills and abilities is critical for refugees’ employment. One of the greatest challenges that refugees face when it comes to employment is the lack or limited evidence of their skills and abilities. This is particularly true for harder-to-observe skills and abilities including socio-emotional and interpersonal skills. A good understanding of the skills and prior experience of refugees through the use of a special purpose tool is important for both employment counselors and prospective employers. [38] Box 2 - International evidence in support of the five core principles 1) Evidence suggests that fast and successful integration of refugees is associated with early contact with the labor market. Work experience and familiarity with the host’s country labor market is positively valued by employers. In addition, early employment experiences are much more conducive for later employment than other interventions such as vocational education.33 2) For less educated or for the non-work ready refugees, access to work may require longer- term support starting with basic skills including language and soft skills followed by vocational training with the aim to gradually improve their employability. Technical training should meet current labor market demands and, as far as possible, anticipate demand in the medium term. It should also focus on sectors that are experiencing growth. Positive results of training programs are associated with the involvement of potential employers in both the design and the implementation phases.34 3) The growing literature on the relationship between refugees’ language skills and their achievement in the labor market indicates that knowledge of the host country’s language leads to higher attainments in the labor market.35 On top of that, both language and soft skills are crucial for refugees’ integration as they open up more job opportunities. For example, whereas refugees in the EU who speak the local language at beginner level or less have an employment rate of only 27%, this more than doubles to 59% for those with intermediate language skills.36 4) Employers are usually uncertain about refugees’ skills and prior experience. As a result, the failure to recognize qualifications leaves much of refugees’ potential unused. A growing number of EU Member States are developing systems and tools to make the value of people’s skills and experience more visible to employers. Based on the outcomes of the assessments, individuals are then referred to the appropriate interventions.37 Some countries have recently started to offer skills assessment even in reception facilities.38 5) One common finding emerging from various programs is that refugees have specific needs and profiles. Their labor market integration requires, therefore, tailor-made support measures. The “mainstreaming” of refugees, i.e., their referral to the general active labor market policies and support measures offered by public institutions to national workers is not enough, even if this is the most widespread policy implemented so far in this field.39 2.4. Suggested design and sequence of activities for I.Ref.Job The proposed operational cycle for I.Ref.Job builds upon the five suggested core principles. The menu of sequenced activities proposed for the Pilot includes key ALMPs, as well as important steps to be taken by OAED to ensure a high-quality preparation, implementation and monitoring. The Pilot will largely build on the existing employment services offered by OAED to its regular 33 Lemaître, 2007. 34 international Youth Foundation, 2015. 35 Chiswick and Miller, 2009. 36 Legrain, 2017. 37 World Bank (2020): Assessing Skills and Work Readiness: Best Practices and Recommendations (under Output 2.B), under Trust Fund (No TF084547) of February 7, 2020 - EC Contract No SRSS/S2019/037. 38 Desiderio and Vincenza 2016. 39 Martín, et al., 2016. [39] clients, adapting and/or enriching them as necessary, depending on the needs of this target group, a clientele relatively new to OAED. The complete sequence of Pilot activities is shown graphically in Figure 3. All activities need to be supported by adequate information management infrastructure, prepared ahead of time. • Outreach: OAED should conduct specific communication and outreach activities to increase awareness of the Pilot. These activities will be extended to two groups of refugees (those already registered with OAED and those not registered with the agency) and to potential employers. Before expressing interest in participating, the non-registered refugees should first register with OAED, while those already registered should first update their refugee status. The list of vacancies, wage subsidy positions and on-the-job training places for the Pilot would be supplied from OAED’s consultations with employers, employer associations, chambers etc. Outreach to employers should take place in parallel with population outreach and carry on throughout the project. • Eligibility, selection and enrollment: o Following outreach, individuals from the target group who want to participate in the pilot need to express their interest. This can be done either in person by visiting a KPA or online by completing a short form on OAED’s website. For those not registered with the agency, the registration process should be the first step. OAED staff should then perform the necessary checks to determine whether applicants meet the eligibility requirements. Two eligibility conditions will be verified: applicants should (i) be over 18 years of age and (ii) have a sufficient level of proficiency in Greek (equivalent or superior to A1). o Following eligibility verification, OAED will proceed with the selection process. The aim of this process is to identify the potential participants of the Pilot from the pool of all those who meet both eligibility conditions. For this step, the number of remaining available vacancies should be checked. In the case of oversubscription, a selection model should be chosen from 3 options: first come, first-served; first come, first-served with a waiting list; or random assignment. o Selected applicants will then be enrolled in the Pilot. OAED will first (re)confirm their interest, willingness, and availability. OAED will then need to onboard pilot beneficiaries by inviting them to attend group information sessions. At the end of the sessions, beneficiaries will be given their first pre-defined appointment with an OAED job counselor. After onboarding and upon receival of their first appointment, individuals are considered to be enrolled. • Individual counseling: once processes related to eligibility, selection and enrollment are completed, all pilot participants would receive a set of individual counseling sessions. During these sessions and together with a job counselor, beneficiaries will undergo a detailed profiling exercise and complete a skills assessment especially designed for the Pilot. As part of this activity, counselors would characterize the Greek communication skills of the participant as an input into decisions related to language training. • Language training: all pilot participants who are in need of language training will be directed to the appropriate class. Referrals will be informed by information from the first counseling session, as well as by the results of the initial language screening during the eligibility process. A complete assessment will be conducted by OAED’s language experts before language training begins. [40] • Referrals to jobs/ALMPs: depending on the outcome of the individual counseling sessions, pilot participants would be directed to a job placement or the appropriate ALMP. The foreseen referral criteria are as follows: (i) an immediate employment opportunity (subsidized or not) for those who are job-ready and provided that the beneficiary meets the vacancy’s requirements, (ii) an applied training program (ATP)40 e.g., an internship, for those in need of work experience and (iii) a vocational training program comprised of both a theoretical part and an internship for those requiring and/or desiring a stronger and pertinent skills base. Consultations with employers would validate the selection and the design of training specialties primarily identified through labor market demand analysis. Pilot participants can benefit from a maximum of two ALMPs (not including language training). In other words, upon the completion of an intervention (wage subsidy or training), beneficiaries would be referred to a job, if one is available. • Group counseling and active vocational guidance sessions: these sessions complement the package of services that will be offered as part of the Pilot. For those referred to jobs or wage subsidies, group sessions will equip them with important knowledge on topics such as job search, CV and interview preparation, etc. Should the job counselor confirm the need for technical training, those beneficiaries would undertake a seminar on active vocational guidance to get help to select a training specialty. • The Pilot incorporates specific monitoring and evaluation arrangements: Pilot implementation will be tracked using pre-defined indicators. Monitoring the participation of beneficiaries is crucial not only throughout the project but also post-program. Strong monitoring and evaluation arrangements are critical not only to track implementation and outcomes for beneficiaries but also to ensure learning for the design and implementation of similar programs in the future. 40The use of ATP as a stand-alone activity has not been confirmed and might not proceed as part of the current pilot due to funding restrictions. Nevertheless, this intervention is discussed in detail in this document in case OAED is interested in implementing such a program for refugees in the future. The ATP section is relevant to the practical element (internship) to follow the theoretical training. It also suggests how an (almost) stand-alone option can be introduced using a very short theoretical element followed by a practical placement. [41] Figure 3 - The proposed flowchart for the OAED I.Ref.Job pilot [42] 3. Detailed description of activities Following the brief description of the proposed activities above, this chapter describes each of them in detail. The sub-sections below cover all activities envisaged by the World Bank and recommended for inclusion in the Pilot. These include outreach (to the target group and employers) and participant services related to eligibility, selection and enrollment and counseling and profiling (skills recognition). Profiling lays the groundwork for the identification of the appropriate referrals: group counseling sessions, job placement (subsidized or not); and various types of training. The activity descriptions cover their objectives and main features, reflecting OAED’s thinking thus far, and the five principles mentioned in the previous section. It is important to note that OAED’s legal framework currently limits the possibility of participation in more than one activity at a time in most cases. However, it is worth highlighting that undertaking part-time training while also benefitting from other services could help prevent discouragement and delays and is considered best practice among other OECD members’ Public Employment Services (PES).41 In order to support OAED in finalizing the Pilot’s design, each sub-section lists pending decisions/confirmations and the World Bank’s associated recommendations based on international and Greek experiences. Table 2 – Reading Guide for Section 3 Number Topic Page 3.1 Population Outreach 43 3.2 Employer Outreach 47 3.3 Eligibility, Selection and Enrollment 50 3.4 Counseling, Profiling, and Referrals 57 3.5 Language training 64 3.6 Group Counseling: Job Search and Active Vocational Guidance 68 0 72 Job placement 0 74 Wage subsidies 0 79 Applied training program 3.10 Technical skills training 85 3.1. Population Outreach Outreach is the first step of the Pilot and is the way through which the intended population will learn about the Pilot and its features. Outreach is key to communicate the program objectives, eligibility conditions, underlying interventions, as well as the associated delivery processes such as OAED registration, application submission, information sessions, and counseling. Population outreach requires a systematic approach involving a number of steps which are covered in a separate deliverable (C.f. outreach strategy and information material to support campaigns aiming to promote registration in the Pilot with OAED under output 1.B.). Outreach aims to build interest in participation and motivate refugees to register. The population outreach efforts should be able to attract at the very minimum the target numbers set by OAED for the Pilot, i.e., 600 participants between 18-29 in the Attica region and 400 participants 41 Konle-Seidl and Bolits, 2016. and OECD/UNHCR, 2018. [43] over 30 years of age in the Central Macedonia region. This is key for the Pilot’s success. Strong evidence from OECD countries suggests that information gaps are a significant barrier to participation in social programs and that removing them results in higher take-up rates.42 In the case of refugees, special outreach techniques should be considered to ensure that women are reached and encouraged to participate in the pilot. Population outreach should take place on a regular basis, as it is essential from the planning phase and throughout the project. The time before the project starts is valuable for activities such as: the design of a plan, the identification of the target audience, the development of messages, the production of communication materials and for the beginning of a systematic outreach effort. Outreach efforts both to refugees and employers (see next sub-section) are integral to the success of the project and therefore they should proceed in parallel. OAED’s Unit for Special Social Groups, in cooperation with the Communication Department, will be responsible for population outreach within I.Ref.Job. The Heads of the KPAs in the Pilot regions as well as administrative staff could reinforce these outreach efforts. OAED is already in regular discussions with MoMA, IOM and other partners to explore potential synergies with the Pilot including for the promotion of the Pilot among the target group. Identifying target audience For OAED, the first step in the process is to identify the target audience. Population outreach for the refugee pilot will be extended to both: • internal population: individuals already registered with OAED and • external population: individuals not registered with OAED. Some refugees might have already registered with OAED. However, their information in the registry could be outdated. OAED will need to identify them, inform them about the Pilot and ask them to update their information including their refugee status.43 Special focus should be placed on refugees currently not registered with OAED. The external population will likely not come from a single program. It will include beneficiaries of several programs, including HELIOS, and individuals who do not participate in any programs or are not in contact with NGOs. As a result, outreach efforts should be directed to all possible sources of potential applicants. As part of its discussions with IOM, OAED is already trying to better understand the characteristics of HELIOS beneficiaries and it was agreed to hold dedicated information sessions with them to increase awareness of the Pilot. Communication modalities OAED should consider three possible modalities to approach the target audience and to raise awareness about the Pilot: i. Direct modalities: direct outreach seeks to approach the intended target group, by communicating directly with people – either one-to-one or in groups, to raise awareness about programs and initiatives and/or to disseminate information. In social protection programs, outreach and communication efforts are often carried out by program or delivery systems administrators and directly reach intended populations. 42World Bank, 2008. 43Some individuals might have initially registered with OAED as asylum seekers, but at the time the Pilot outreach activities start, they could have received refugee status. [44] ii. Indirect modalities (mainly outreach via intermediaries): information on social protection programs can be promoted or posted through other services, such as schools, health clinics, shelters, housing offices, etc. Other intermediaries can include foundations, faith-based organizations, charities, and employee or trade associations. Indirect outreach can also be conducted via local actors and stakeholders, who can reach out to intended populations and disseminate information. Some channels may be particularly appropriate for women if they are accessing these services already and have trust in them. iii. Outreach via information campaigns and technology. Such tools and materials can include traditional approaches, such as physical distribution of printed material and information i.e., brochures, bulletins, and posters. Mass media, such as TV, radio, and newspapers, may also be used to disseminate information. Online technologies are increasingly being used for outreach for social protection programs and delivery systems, including websites, social media, online self-service windows and mobile apps. Hotlines are also used and can be critical channels especially for people facing social risks.44 The various modalities that OAED can use for outreach are summarized in the following figure. Figure 4 - Outreach modalities Main messages Main messages should communicate what the agency can offer to the intended population and how they can participate. Main messages could include: a) information about the Pilot activities, b) practical information about registration with OAED and expression of interest for participating in the Pilot, and c) the potential benefits that refugees can gain from participation, 44 Lindert, et al., 2020. [45] including acquiring a formal job and the development of new skills. Specific messages should be tailored to the needs and possible concerns of female refugees. OAED should use short phrases to convey direct, understandable and easily absorbed messages to the intended target group. Ideally, these messages should be translated into refugees' most common languages such as Arabic, Urdu, Farsi but also English or/and French. Some messages might be better communicated through visuals, for instance, via videos or/and infographics. (C.f. outreach strategy and information material to support campaigns aiming to promote registration in the Pilot with OAED under output 1.B.). The proposed outreach strategy for I.Ref.Job could also be informed by the experience of OAED in the Elefsina pilot (See Box 3). Box 3 - Outreach in the Elefsina pilot The target group of the Pilot was those age 45 and older and registered unemployed for at least six months. The main communication and outreach strategies used initially were telephone calls to the unemployed inviting them to group sessions to learn about the Pilot and information on the OAED website. Attendees of the group sessions received a note with the date and time of their first appointment with the counselor. A process evaluation of the Elefsina pilot indicated that initial outreach efforts were effective enough. It took persistent efforts to promote attendance at group sessions: many of those contacted failed to attend. Feedback received from participants was encouraging i.e., the group sessions contributed to a positive reaction towards OAED and the services to be offered. However, there also were several shortfalls: ▪ Organized outreach was a one-time effort, leaving room for others (e.g., private training providers) to fill the void, not always providing accurate information. ▪ Municipal channels for outreach and communication were scarcely used, even though it would have been effective especially for social assistance recipients who are in regular contact with municipal authorities and community centers. ▪ Lack of timely monitoring data to track progress and identify gaps, impeded recognition of the need to reinforce outreach and communication. Source: World Bank (2020): Process Evaluation Technical Report, Administrative Agreement of February 11, 2019 - EC Contract No SRSS/S2019/012. Table 3 - Pending Decisions and Recommendations for Population Outreach Pending Decision Recommendation • As soon as the design of the Pilot is ready and in parallel with employer outreach. Timing of outreach • Maintain and update/adjust outreach as needed at regular intervals throughout the Pilot. • Use a mix of modalities i.e., direct, indirect and information campaigns Decide outreach and technology. modalities • Identify a few organizations that could help OAED raise awareness of the Pilot and establish structured partnerships. [46] 3.2. Employer Outreach The main objective of employer outreach within I.Ref.Job is to build awareness of the program among global and local employers and to generate job vacancies for refugees. In addition to sourcing job vacancies, (subsidized and unsubsidized) outreach is needed to motivate employers to generate work-based training opportunities, such as Applied Training Programs (ATPs) or internships. Engaging with employers will also be important to achieve complementary objectives: • Making the business case for hiring refuges as well as explaining the wider societal benefits of early economic integration; • Increasing employers’ understanding of the legal and social status of refugees in Greece and other relevant considerations for hiring/training; • Obtaining early feedback from employers on the demand for refugee employment (skills, sectors, job profiles, etc.). Some employers may be cautious about participating in the Pilot. Businesses cite several reasons that dissuade them from hiring refugees45, including lack of knowledge about refugee and asylum regulations, uncertainty about their skills, or concern about lower productivity due to language and cultural barriers. In addition, COVID-19 has brought economic uncertainty to firms, displacement of workers in certain sectors and job losses in some areas. In the short-term at least, this could mean that job hunting has become even more challenging, especially for refugees. In a difficult labor market, political sensitivity around migration along with the real or perceived costs of training refugees into new jobs may also come into play. As such, OAED counselors and Key Account Unit staff will need to be aware of the aforementioned concerns in their interactions with employers and take steps to address them to bring employers aboard. Some examples from Europe show how technology solutions plus employers working closely with PES, can help to address these issues.46 Employer engagement will be essential not only in the beginning, but throughout the project. The period before the project starts is valuable for analysis, consultation, the production of communications materials and to begin more systematic outreach. Employer outreach requires a systematic approach involving a number of steps. Due to the importance of the activity, a standalone Employer Engagement Strategy has been produced for the project.47 The strategy and associated materials should be adapted as necessary as the program progresses. 45 According to a European Policy Center, in 2014, employment rate for refugees was 27% in the first five years after arrival – and possibly lower for recent years. Recent data from Germany is however more positive, noting 49% of refugees who arrived to Germany since 2013 were able to find steady employment within five years of arriving (IAB, 2020). 46 The Swedish PES introduced a digital interview tool for employers. Employers who post their job vacancies with the PES subsequently get access to the tool, through which they can have remote interviews with jobseekers. Besides the video and audio functions, the tool integrates a series of HR features. The tool is free for employers. Estonia has in place a “workforce sharing platform” (Share Force One), that connects business to business, allowing them to negotiate temporary workforce exchanges. The tool is aimed at filling part-time vacancies quicker and with less PES support. EU Commission, 2020. 47 Output 1B Employer Engagement Strategy. [47] Building on European evidence and OAED’s own guidance48, several steps are necessary to generate job vacancies and ATPs. These steps include: • Identifying target audience: labor market demand analysis to identify hiring firms • Communication modalities: prioritizing and segmenting the audience to identify direct and indirect communication channels • Messages to be conveyed: developing targeted messages and producing appropriate materials. Identifying target audience Labor market analysis is the first step in employer outreach with the objective of identifying those firms that are hiring. In particular, the aim is to identify those who might be willing to hire refugees in the Attica and Central Macedonia regions. Analysis should draw from several sources: • Labor market Diagnostic tool of EIEAD (including the ERGANI database) • Employers already known to the WBG, OAED, development partners and/or NGOs that have an interest in employing refugees • Employers participating or supporting UNHCR/ILO programs • Employers participating in refugee placement events • Companies that are signatories of the Greek Diversity Charter • Employers active in sectors or areas of work with greatest needs for the skills provided by refugees, based on the skill assessment of registered refugees • Employers with strong Corporate Social Responsibility programs and/or social inclusion programs. The demand analysis should result in a long-list of firms with potential to participate in I.Ref.Job. It is equally important to maintain and update the list of potential firms as the project develops noting the outcomes of every contact with employers.49,50 Within OAED, the Key Account Unit, Heads of selected KPAS and employer counselors will be responsible for employer outreach within the project. Some demand analysis and outreach work started in February 2020. The World Bank and OAED visited large employers identified as having an interest in hiring refugees. From this exercise, an initial list has been compiled of companies potentially interested in participating in I.Ref.Job. The list is a living document that should be developed throughout project implementation. Since then, the Key Account Unit has done two other rounds of engagement with employers. OAED also organized a couple of Career Fairs and participated in events organized by other organizations. Such events present ideal opportunities to generate interest in I.Ref.Job among employers and push the messages about it. OAED is also in regular contact with stakeholders such as the IOM and the Greek Council for Refugees (GCR) in order to promote the pilot among their existing employer networks. 48 OAED’s Guide to Approaching Employers, 2016; European Union, 2018; and European Union, 2017. 49 A questionnaire was devised by the WB team for OAED to validate the initial labor market demand analysis done for Attica and Central Macedonia regions. 50 Apart from the identification of hiring firms, it would be important for OAED to also validate the critical occupations as these were resulted from the labor demand analyses in the pilot regions (C.f. Technical skills training). [48] Communication modalities Once OAED has identified a list of hiring companies to approach, the next step is to match them with firms in their registry. The segmentation of firms according to the business categories in OAED’s own Employer Guide will enable OAED to select the correct channel to communicate with each type of company and help to promote good coordination. Full coordination among all the units involved in the effort will be essential: employer counselors reaching out to local firms in their network; and OAED’s Key Account Unit reaching out to big employers, businesses and/or industry associations, social partners, etc. As with population outreach, there are three channels that OAED can consider to approach employers in the context of the Pilot: • direct, where OAED contacts companies through their own efforts; • indirect, where OAED provides intermediaries with messages and materials about the project and asks them to communicate to their employer networks using their own channels, and • mass media and communications campaigns delivered broadly and through participation in ad-hoc events and activities. Both direct and indirect channels should be used to maximize reach to employers. Direct channels that OAED staff can use include: OAED’s social media accounts; phone calls; emails; and visits to employers. Indirect channels include using the networks and communication channels of: Chambers of Commerce, industry associations; sector groups, NGOs, development partners, as well as specific ad-hoc events. Communication channels should be adapted to the business category of employers. Building on the categories of employers in OAED’s Employer Guide, examples of tailored communication channels are suggested in the figure below: Table 4 - Different approaches according to business category Business Category* Approach method Intro call, visit, invitation to events. Possible Category 5: representative enterprises use of OAED Intro email + leaflet; follow-up visit/calls for Category 4: selective employers those that respond Intro email + leaflet; follow-up visit/calls for Category 3: hidden treasures those that respond, invitation to job fairs Intro call or email + leaflet follow-up Category 2: good friends calls/visits if interested, invitation to job fairs Intro email + employer leaflet; follow-up calls Category 1: other types of business for those that respond Intro email, invitation to disseminate among Employer representative groups members/attend events/arrange a mentor, etc. Note: *Business category based on OAED Employer Guide [49] Main messages In engaging with potential employers, OAED should use targeted communications that are short, accessible and related to employers’ interests. An employer leaflet explaining OEAD’s general services was created for the Elefsina pilot and translated into Greek – this could be used as a model and adapted for the Pilot. The messages for I.Ref.Job can cover information on the Pilot, a rationale for hiring refugees, and practical information on how to join the scheme. It will also be important to bear in mind cultural sensitivities, including potential prejudices against refugees. The aforementioned Employer Engagement Strategy offers specific examples. Using tailored messages is common practice among international and Greek programs to encourage employers’ interest in refugee employment. Three common types of messages can be highlighted: a) Messages related to CSR, which place the emphasis on the benefits for the company in terms of brand value and consumer respect, as well as on the social benefits of integrating refugees in the labor market b) Messages emphasizing the business case for hiring refugees, which refer to the potential for employers to fill skill gaps, to increase the diversity in the workplace, etc. c) Messages addressing typical concerns from employers about hiring refugees, such as lack of clarity about their legal status and work permits; uncertainty about skills; concern about their productivity due to language and cultural barriers; and perceived extra cost of hiring refugees.51 Table 5 - Pending Decisions and Recommendations for Employer Outreach Pending Decision Recommendation How employers • Determine business process for employers to express interest in the Pilot express interest in before start of the Pilot. the Pilot Communicating • Decide how ATPs and internships will be used in the Pilot. This will impact ATPs and upon the employer outreach effort. Evidence to date suggests these would be internships popular options for employers. Communicating • Decide on how the wage subsidy program will be communicated to Wage subsidies employers including what kind of information should be transmitted. 3.3. Eligibility, Selection and Enrollment The “eligibility, selection and enrollment” step involves determining which registrants qualify for the services offered as part of the Pilot and which of them are finally enrolled. Following outreach, refugees who are not already registered with OAED enter the OAED system as registrants. Only once registered with OAED, can refugees express interest to participate in the Pilot (thus becoming applicants). The objective of this sub-section is to set out the criteria and approach to: • Determine the eligibility of applicants for the Pilot; 51Annex I of the Employer Engagement Strategy (under Output 1.B) offers specific examples of employers’ reservations about hiring refugees and OAED’s potential responses. [50] • Select participants for the project if there is oversubscription; • Enroll beneficiaries, including confirmation of interest, onboarding, and collection and recording of additional information. Applicants only become beneficiaries if they are eligible, selected and finally enrolled in the Pilot. Following outreach, those who want to be part of the pilot need to express their interest. This can be done either in person by visiting a KPA or online by completing a short form on OAED’s website. For those not registered with the agency, registration process should precede.52 The first step after expression of interest, is the effective determination of eligibility according to specific criteria. The second step includes the selection decision, as well as the notification actions to be taken by OAED. Selection decisions can diverge from eligibility decisions when more individuals express interest in the Pilot than places are available in the program (i.e. oversubscription). The third and final step is enrollment: confirmation of interest, onboarding, and collection and recording of additional information. The figure below provides a visual overview of these steps. Figure 5 – The Pilot enrollment procedure Eligibility The eligibility process relates to criteria as well as procedures to check them. To be eligible to participate in the program, refugees must meet two criteria: • be over 18 years of age; and 52C.f. Annex I of the Outreach Strategy and Information Material to Support Campaigns Aiming to Promote Registration in the Pilot with OAED, under Output 1.B. [51] • have a basic level of Greek language equivalent to A1 level.53 Eligibility checks are performed after expressions of interest are received from potential beneficiaries for participation in the Pilot.54,55 Based on the expressions of interest received, OAED will create a list of applicants and perform eligibility checks. The list will include individuals who: • are registered with OAED (old and new registrants); • belong to the target group (recognized refugees and beneficiaries of subsidiary protection); and • express interest in participation. Eligibility checks could be performed in three ways: 1) Physically by the administrative staff at the reception desk of the KPA, where the refugees will go to register and express their interest in participating in the Pilot (or update their refugee status if already registered); 2) Digitally, during a virtual appointment with OAED staff, should restrictions imposed by COVID-19 continue to hold. OAED is currently scheduling appointments via the online platform “myOAEDlive”, with the provision of interpretation services in various languages, including those of refugees; and 3) Digitally, by allowing potential beneficiaries to upload all the necessary documents on OAED’s website under their user profiles, provided they are registered with the agency. Verification of age can be done via birth date – which can be checked either via the social security number (AMKA or PAAYPA) or by any valid official documentation such as the Residence Permit. Basic language proficiency can be validated in two ways: • a formal A1 certification (or higher)56, if the refugee has one; 57 or • language screening. 53 The Pilot is expected to take place in 2 regions with a different target group in each. In particular, the Pilot will cover 600 participants between 18-29 in the Attica region and 400 participants over 30 years of age in the Central Macedonia region. Eligible pilot participants should reside in one of the selected pilot locations and belong to the age group that will be served in each location. 54 According to a recent decision (February 2018), OAED can issue unemployment cards to fully registered asylum-seekers, recognized refugees and beneficiaries of subsidiary protection between 15-74 years of age. Necessary documentation includes the full Registration Card or the Residence Permit, a copy of tax number (AFM), a copy of social security number (AMKA or PAAYPA) and a proof of address (including for those who live in camps or shelters or those who are homeless). 55 The Pilot’s target group (recognized refugees and beneficiaries of subsidiary protection), have access to salaried employment, provision of services or work, and the possibility to exercise an independent economic activity under the same conditions as Greek nationals, provided they hold a valid residence permit. The “work permit”, previously a prerequisite for refugees’ participation in the Greek labor market, has been abolished by Law 4375/2016 (article 69). 56 The Certificate of Attainment in Greek is the only officially recognized certificate that confirms the knowledge of Greek as a second language. It offers a professional opinion of one’s knowledge of Greek and serves as proof of the successful candidate's level of attainment in Greek in the labor market. There are six levels of attainment, in line with the corresponding levels of the Common European Framework (CEFR). 57 Certifications of attendance provide a signal that the person might have some knowledge of Greek; however, they cannot be accepted as proof of language proficiency. [52] It will be important to arrange for language screening for applicants without formal certification so that no-one who could benefit is excluded. The purpose of language screening would be to identify members of the target group without a formal language certificate, but with language skills equivalent to at least an A1 level. In this way, no-one will be excluded from the potential benefits of participation in the Pilot even though they might not possess a language certificate. For the language screening, a questionnaire/guide to check for basic Greek functionality (equivalent to A1) should be developed or adapted from existing tools.58 OAED has various initial options on who should administer this questionnaire, including receptionists in the KPAs, counselors, or language experts. However, ideally, language screening would be done by OAED’s language experts (OAED KEK staff) and would include an initial language assessment to determine the respondent’s level of proficiency.59 It is suggested that the questionnaire is administered verbally; either in person, by telephone or in a dedicated online session.60 Language experts who perform the language screening and assessment should record the results which would be made available to OAED staff. The figure below provides a visual overview of the steps outlined above. Figure 6 - Checking eligibility criteria in the I.Ref.Job 58 OAED already has access to such a questionnaire developed by IOM. In the interest of time, OAED could think of using that questionnaire. 59 The results of this initial language assessment will be used as an input for the first individual counseling session. During this session, the counselor will work together with the refugee to determine whether the latter should be referred to language training, or straight to a job, ATP or vocational training program. This is discussed in detail under the “language training” and the “counseling” sections. 60 It is recommended not to use an online questionnaire that should be completed by the refugee him/herself for language screening for two reasons. Firstly, because it might not be clear by whom it is completed and secondly because it might be tricky at this level of language competency. [53] OAED could develop specific procedures for refugees from other programs. In case refugees who come from other programs do not have a language certificate, OAED could consider receiving references from these programs and establishing partnerships with them. Examples are IOM for HELIOS beneficiaries, and NGOs such as METADRASI, GCR, GENERATION 2.0, and Caritas Hellas . This could help OAED gathering useful inputs for the language screening and assessment. OAED could consider providing some information to non-eligible individuals. Once eligibility checks are complete, OAED staff should mark as eligible all those individuals who meet the eligibility requirements using the list of applicants. For those found not eligible for the Pilot, i.e., with insufficient Greek, OAED could consider providing some guidance and provision of information for services offered outside the agency (for example free language courses held elsewhere) and invite them to use OAED’s services once they develop sufficient basic language skills. OAED could also consider directing non eligible applicants to KEMs/community centers who have access to useful information for refugees. Selection Following the determination of eligibility, the next step is for OAED to select pilot participants. The selection process should be applied to all those who meet the eligibility criteria discussed under the eligibility sub-section. Three alternative scenarios can be considered for selection, taking into account that OAED plans to accommodate 1000 beneficiaries - 600 in Attica and 400 in Central Macedonia: i. A first come, first-served basis: the first 200 individuals who meet the eligibility requirements, will be enrolled in each phase of the Pilot; ii. A first come, first-served basis with a waiting list: the first 200 individuals who meet the eligibility requirements, will be enrolled in the first phase of the Pilot. The rest will be called to participate in the next phases of the Pilot; iii. Random assignment: OAED staff could randomly assign eligible refugees, to either a “treatment group” (the group that will receive the services of the Pilot) or to a “control group” (the group that won’t receive any of the Pilot services). This option would be a pr e- requisite for carrying out an impact evaluation.61 For discussion of a potential impact evaluation design and additional details, see Output 3. Monitoring Framework.62 The scenarios presented above are based on two assumptions: a) Oversubscription: there will be more refugees who express interest in participating in the Pilot than the Pilot can accommodate.63 61 Random assignment is considered a fairer option than the other two alternatives. This is because, under the other two alternatives, participants who come later for reasons beyond their control (e.g. because of information asymmetries for example) are unfairly “punished”. 62 Some European Public Employment Services (PES) implement random assignments in their programs. An example of a PES that uses this method is the Danish Agency for Labor Market and Recruitment (STAR). The Agency applies randomized controlled trials (RCTs) to examine the effects of activation measures and other labor market interventions. Unemployed persons are randomly allocated to either an intervention or a control group. Allocation to the two groups is carried out by a computer to ensure randomness. More information can be found at: https://star.dk/en/evidence-based-policy-making/randomised-controlled- trials/. 63 Three facts support this assumption: i) This is the first program for refugees offered by OAED with broader eligibility compared to previous ones (e.g. I.Ref.Sos); ii) The COVID-19 pandemic has had severe impacts on [54] b) No cut-off date for expression of interest: the call for the Pilot will remain open until a desired number of positions (1,000 or more if an impact evaluation is carried out) is covered. Following selection, OAED staff should proceed with the notification process for all: both those selected and those not selected. The basic principle is that everyone should be notified of selection decisions, regardless of whether they are beneficiaries, wait-listed, or deemed ineligible. It will be important for the message to selected individuals to be standardized. Various communication channels can be used for notification including in person, formal letter, email, phone, and text message. Notifications to selected individuals should indicate at least: • The decision; • What the beneficiary will receive; • When, where, and how they will receive it; • Rights and responsibilities; • Contact points and information; and • The details on next steps. Those not selected should be informed about the result as well as about the options that are available to them. Refugees who meet the eligibility criteria but are not selected to participate in the Pilot, should be entitled to receive OAED’s regular services as are all registered jobseekers or to participate at a subsequent phase of the Pilot. Enrollment After the selection process is completed and notification is provided, OAED should proceed with the enrollment of the selected individuals. This enrollment action contains three steps: 1) Confirmation of willingness, interest and availability of selected individuals to participate; 2) Onboarding; and 3) Collection and recording of additional information. First, participation should be confirmed. Given that time might have elapsed since the original expression of interest., in the meantime conditions for refugees might have changed, so some selected individuals might no longer be interested in participating in the Pilot. For this reason, confirming the willingness to participate in the Pilot is an important step. The next step following confirmation of participation is onboarding. The objectives of onboarding are to orient and prepare new beneficiaries for their participation in the program. At the end of the onboarding stage, beneficiaries need to have a detailed understanding of the program. Onboarding information should include information on: how the program works and what it aims to achieve; the beneficiary’s rights and responsibilities; the contact points and how beneficiaries can communicate with them; what benefits and services the program offers; payments and service provision modalities and schedules; timing and location of appointments and how the scheduling works. Additional information that could be conveyed include where and how to submit employment, especially for vulnerable groups, and iii) OAED has decided to offer the Pilot services on a rolling basis, i.e., 200 individuals per phase. [55] grievances and complaints64 and clarifications on possible issues that may concern women (for example, how classes are organized, where counseling sessions take place, etc. Beneficiaries could either schedule their first counseling appointment themselves though OAED’s online platform or could be given a predefined appointment. The second option seems preferable as it will simplify the process for both OAED and the refugees. After onboarding and upon receipt of their first appointment, individuals are considered enrolled. Onboarding can be conducted via various modalities that in some cases can be implemented jointly. Onboarding can be carried out in several ways, including: • Printed communications, such as onboarding kits and materials, in addition to the notification itself; • In-person one-to-one meetings; • Group information sessions (following the Elefsina example – see Box 3). For the group information sessions, OAED could consider forming groups of participants based on the language they speak and provide simultaneous interpretation accordingly. Even though there is no upper limit for participants in online meetings, it is suggested that no more than 15 beneficiaries are hosted in each session to facilitate communication and any questions. OAED might also take into consideration potential no-show rates in these sessions since not every registered person might ultimately participate. The final sub-step of enrollment is the collection and recording of additional information. Some supplementary information may be required for program operations.65 This additional information includes the beneficiary’s bank account and a photo, among other personal details. Recording of additional information should complement the information recorded during registration with OAED. Table 6 - Pending Decisions and Recommendations for Eligibility, Selection and Enrollment Pending Decision Recommendation Eligibility Language screening should take place as soon as someone expresses interest in Timing of language participation (provided they are registered with OAED, belong to target group and screening don’t have a formal language certificate). • Deploy a questionnaire/guide that checks for basic Greek functionality (equivalent to A1). Language • In the interest of time use/adjust the questionnaire/guide shared by IOM. screening • OAED’s language teachers are best suited to perform language screening. arrangements • Suggested modalities include screening in person or during a dedicated online session. “Services” to • Collect information on language courses provided by NGOs or other agencies. 64 The competent authority for the submission of complaints and grievances about public services in Greece is the Greek Ombudsman. Its services can be accessed free of charge and are available to all citizens including refugees legally residing in the country. 65 On top of the information already collected as part of the registration process, from the eligibility and the selection processes. [56] ineligible • Provide this information to ineligible applicants and encourage them to access applicants OAED’s services once they reach the A1 level. Selection and notification • Use the “random assignment” method to allocate scarce spaces when Selection method oversubscription exists, taking into account potential legal or other restrictions as well as other considerations (e.g. implementation of an impact evaluation). • Everyone should be notified of selection results and next steps, regardless of whether they are beneficiaries, wait-listed, or ineligible. Notification • Suggested notification channels include in person, email, phone, and text message. Enrollment Onboarding for • Organize group information sessions for selected applicants (à la Elefsina). selected applicants • Disseminate first counseling appointments at the end of the sessions. Group information • In physical or virtual form taking into account COVID-19 restrictions. sessions • No more than 15 people in each of the sessions (if sessions are held physically). parameters • Interpreters available as needed. 3.4. Counseling, Profiling, and Referrals The activity of counseling, profiling, and referrals involves assessing the needs of beneficiaries, as well as guiding and channeling them into the most appropriate services. One-to-one counseling is fundamental to achieving good results in the Pilot and ensuring that refugees understand the program and fully participate. The most appropriate services or combination of services and trajectory of each refugee will differ depending on the individual’s needs. Profiling will take place to assess needs and a trained professional should help refugees to access services and monitor their participation. The employment counselor is best placed to support the refugee to make decisions related to the program. According to the results of counseling and profiling, refugees will then be referred to jobs or training. Skills assessments would be used in making competencies, prior learning and work experience of refugees “visible” to future employers. Sessions between the employment counselor and the refugee have several related purposes. The objectives of counseling sessions are: 1) Establish a relationship of trust and confidence between the counselor and the refugee in order to promote the engagement of the refugee with the program. In the case of female refugees it may be helpful to make some adjustments such as inviting a male relative to attend the interviews. 2) Understand and document the characteristics of the refugee (socio-demographic, language skills, education, prior experience, occupational interests, motivation, etc.) so as to be able to advise refugees on the services mostly likely to support their employment. The recognition of prior skills and learning should receive particular attention. [57] 3) Develop an Individual Action Plan (IAP) based on the outcomes per session, particularly the assessment66. The IAP will lay out the next steps to support labor market insertion, including referrals, and will be tailored to the specific nature and needs of the refugee. 4) Provide information to the refugee including the purpose of the project, details on the services available, job vacancies, the progress made by other program participants, etc. 5) Act as an intermediary: the counselor is the key intermediary between the refugee and potential jobs, as well as other program services, through the referral procedure. Counseling Based on the planned content of the sessions, as well as other considerations, several operational principles are suggested for counseling. The counseling parameters outlined below are proposed as the starting point for planning purposes. a) The first session with the counselor should take place as soon as possible after the general information session. Ideally, the refugee would arrange for this appointment before leaving the session. b) A set of 3 sessions should be standard for nearly all participants. c) No more than 2 weeks should lapse between appointments, but the aim is for these sessions to take place over about a month. This scheduling is important in order to reduce the risk that the participant becomes impatient with the process or loses interest. d) Ideally, the refugee would meet with the same counselor for each session. e) The length of the session would be 45-60 minutes, longer than OAED’s typical sessions between an employment counselor and jobseeker. f) Interpretation services would be available in order to facilitate communication between the counselor and the refugee. g) Subsequent to the initial 3 counseling sessions, there should be between 1 and 3 “check-ins” with the counselor, depending on referrals and the individual action plan. These should take place after the refugee has followed-up on the first referral, not including language training. The parameters above have been informed by Greek experience (see Box 4), but the number of sessions proposed for the I.Ref.Job pilot is smaller since it is assumed that most refugee participants would have benefited from some counseling sessions beforehand. 66In many countries assessing qualifications and needs and developing an individual employment plan are a fundamental part of the beginning and continuation of employment support for resettled refugees. Creating individualized employment plans also means active participation. The refugee develops an individual career plan consisting of an aim-normally a type of job – and various schemes deemed relevant to achieve this. (OTT, 2013.) [58] Box 4 – Employment Counseling for Refugees: Greek Experience In Greece several NGOs offer employability services in order to promote the integration of refugees into the labor market and the counselor is a key person. Cooperation with a counselor starts as soon as possible after the enrollment process in the NGO, depending on the workload and the flow of refugees at the time. The number of counseling sessions varies by NGO, but generally ranges from 5 to 10 sessions, depending on the methodology and procedures developed by the organization. Each session lasts from 45 to 60 minutes with the next session usually arranged between the counselor and refugee for the following week. Interpretation services may take place in the counseling sessions. In cases for which an interpreter is not available, a referral has been made to courses in order for the refugee to acquire a basic level of Greek language. In some cases, the counseling sessions take place in English or other language depending on the language skills of the counselor and the refugee, if it makes sense for them and helps to facilitate communication. Follow up session(s) are typical, usually after finishing the mandatory number of sessions or a job placement. Its duration can be similar to a regular session or it can be shorter, 10 or 15 minutes, with the option of doing it by phone. Session Parameters NGO GCR NGO IRC UNHCR I.Ref.Sos project Started in parallel Starts after Starts as soon Starts as soon Scheduling for start with Greek being enrolled as possible as possible language courses Time lapse between Max 2 weeks Max 2 weeks - Max 2 weeks sessions Length 10 sessions 8-10 sessions 5 sessions 3 sessions Greek, English, Language Greek, English Greek, English Greek or English French Occasional Yes (Arabic, Use of interpreters Yes No participation Farsi) Follow-up sessions Yes Yes Yes No Counselors would organize the 3 initial sessions with the refugee according to a suggested ‘check-list’ of topics to ensure that the necessary content is covered. The first 3 counseling sessions would take place in the KPA2 office most convenient for the refugee, as long as this is permitted by current national health guidelines. Alternatively, sessions could take place virtually supported by MyOAED’s online platform or perhaps in a hybrid form with a combination of virtual and in-person sessions (see 4.3 - COVID-19 Considerations). The areas of focus for each interview are summarized below and shown in detail in Figure 7. One of the main objectives of the first 3 counseling sessions is the recognition of skills and prior learning. Subsequent sessions concern mainly referrals, including follow-up. During each session the counselor would record results in the skills profiling tool or the IAP. Moreover, in order to emphasize the focus on employment, at each session the counselor would provide information on the current available vacancies as well as any recent job placements by other participants (respecting confidentiality). To facilitate [59] communication between the counselor and the participant an interpreter would be available during sessions, as necessary.67 Figure 7 - An overview of the counseling process By the end of the first session, the counselor should have a good understanding of the characteristics and starting point of the refugee. The counselor will start by registering background information and updating contact information and migration status. The counselor should also discuss which other employment-related counseling or services the refugee has received in the past and try to identify any employment constraints. These will be taken into account and inform future sessions and referral options. The counselor then will aim to understand what the participant wants to achieve through their participation. Last, the content of the Pilot should be reviewed to ensure that the participant understands the next steps, the services available and what options they have. An important product of the first counseling session is expected to be a referral to language training for most participants. In addition to documenting previous attendance in language classes, certification results, etc., the first session will provide the interviewee an opportunity to demonstrate his/her Greek conversation skills. The counselor would record any comments related to language using a simple check-list. These comments would supplement the information obtained during the process of language screening (C.f. Eligibility, selection and enrollment section). The primary purpose of the 2nd and 3rd sessions is to profile the participant in order to inform referrals and potential employers. In these sessions, the counselor would apply the Skills Recognition Tool68 and document its results. Specifically, during the 2nd session the counselor would identify any formal qualifications and skills in a specific occupation. During the 3rd session 67 Interpretation will be available during virtual sessions as well. 68 C.f. Output 2B: Assessing Skills and Work Readiness: Best Practices and Recommendations. [60] the focus would be to prepare the e-portfolio (see Box 5) and finalize the IAP. The IAP would include a referral either to a job vacancy (subsidized or not) or technical training. In addition to that, during these sessions the counselor should check-in with the participant and language instructor on progress in language training and any problems encountered. The process described above is aligned with emerging evidence that suggests that quality counseling, including the identification of employment pathways and Individual Action Plans around employment, can enhance a refugee’s likelihood of employment. 69 The process of identification of informal prior learning and competencies, guided by the Skills Recognition Tool, has equally been informed by growing international evidence on its importance and how to conduct such an assessment (see Box 6). Box 5 – The I.Ref.Sos E-portfolio E-portfolio is an online skills assessment tool, created as part of the I.Ref.Sos project in order to support the process of recognizing skills and prior learning. It is built on the Wordpress platform and accessible through a website. Initially, a refugee can create his profile and then the counselor can add information for subsequent sections, reflecting the outcomes of the counseling sessions. The following can be assessed: educational background, professional experience, professional and horizontal skills and digital skills. Recommendations can be recorded for formal and non- formal training activities and other referrals. It is divided in 20 sections with 74 questions. With authorization, refugees, counselors and employers can have access and can print a CV of a refugee in pdf format. Profiling / Recognition of skills and prior experience One of the main objectives of the initial stages of the counseling process is to recognize skills and prior learning, given its importance for labor market integration of refugees. The focus is on assessing and recognizing skills in three areas: language, horizontal (soft) skills, and prior work experience. The Skills Recognition Tool supports the counselor in the profiling process and would be covered over the first 3 counseling sessions. The tool includes a series of questions organized in 8 different sections: 1) Results of previous counseling sessions 2) Language 3) Obstacles and Barriers 4) Education and training 5) Professional experience 6) Soft (horizontal) skills 7) Digital skills, and 8) Driving licenses and other skills The Skills Recognition Tool incorporates specific questions from OAED’s standard profiling instrument, the e-portfolio of the I.Ref.Sos project (see Box 5), and the EU Skills profile tool. Each section contains a series of questions and multiple-choice responses. At the end of each section, there is a forward-looking question to assess the participants’ interest in and preferences for OAED’s available activities. This last feature is designed to provide initial inputs for referrals. 69 See Coley et al. 2019. [61] The tool is complemented by some visuals based on the “Competency Cards”70, an element that aims to facilitate counseling sessions. One of the final products of the profiling process would be the e-portfolio (see Box 5), which could be used as a CV for the refugee to use for job vacancies or for the counselor to share with employers, if needed (Further details can be found in Output 2B: Assessing Skills and Work Readiness: Best Practices and Recommendations).71 Box 6 – Recognition of Skills and Prior Experience It is important to reduce the particular uncertainties that employers face regarding hiring refugees such as issues with a different language, lack of documentation, hard to provide references, and unfamiliar business environments and education systems. If that uncertainty persists, evidence is that employers may underestimate the skills and qualification of refugees, with unfavorable results on job placement. For that reason, it is important for PES to improve processes and information on the recognition and assessments of qualifications, including informal skills. This effort has been facilitated recently by the experience of several countries in the development of online tools to help refugees and counselors identify skills as well as qualification gaps that could be addressed through up-skilling opportunities through training or internships. Examples include “MYSKILLs” used in the German public employment service and “Competence Checks” used in Austria, as well as the practices of agencies working in Greece such as GRC and UNHCR and the previous OAED I.Ref.Sos pilot which worked with young refugees. (See “Engaging with Employers in the Hiring of Refugees” UNHCR and OECD, 2018, and Output 2B: Assessing Skills and Work Readiness: Best Practices and Recommendations for more information). Referrals The aim of the referrals process is to direct refugees to support tailored to their needs, accommodating their different skills and aspirations. The availability of a holistic, timely and coordinated integration package is best practice for labor market integration of refugees. For example, in the World Bank’s employment support project for Syrians under temporary protection (SuTPs) in Turkey, in addition to job placement, referral options include the following: language training, applied training program (in a workplace), skills training courses and public works. In line with international experience, the available referral options in I.Ref.Job are: a) Language training72; 70 In Germany, the Bertelsmann Stiftung – a large private foundation – has developed three pragmatic tools to support the recognition of informally acquired competencies. The competence cards are one of them. The tool is based on 46 cards, depicting social, personal, and technical/methodological skills. They were developed to provide employment counselors with a flexible and modular tool to identify, explore, and discuss social, personal, and methodological skills of refugee job seekers. The cards contain descriptions in very simple language, a visualization and translations. 71 OAED is currently exploring the possibility of using an existing assessment platform (called NADINE) developed by the National Center of Research and Technology (CERTH) as part of a joint project of OAED with UNICEF. 72 Ideally there would be options for stand-alone or part-time language training concurrent with any other referral. Currently, the legal framework for OAED restricts this possibility for paid language training provided by OAED KEKs. The issue of double funding could be avoided as participants could benefit from part-time language training via a mobile app for language learning without drawing the language allowance, thus enabling them to take part in another activity. (C.f Language training section). [62] b) Group counseling session (content covering active vocational guidance, soft skills training, Greek culture, Job search, interview preparation, etc.); c) Interviews for job placement (subsidized or not); d) Applied training program (e.g. internships); and e) Technical skills training (incorporating digital skills). The general principle to be followed for referrals is that refugees should be placed in a work setting as soon as possible. In line with the principle to emphasize employment, no participant would receive more than 2 referrals (not including language training, job search workshops, or active vocational guidance). Moreover, referrals would not be the same for everyone. Counselors would refer participants to services tailored to their characteristics and needs related to labor market integration as agreed in the Individual Action Plan. The expected timing of referrals will differ according to the activity and the characteristics of the participant. Given the importance of language skills for labor market insertion and the expected language gaps among participants, counselors are expected to make a referral to language training by the end of the first interview. Referrals to group counseling sessions can be made during any of the interviews, based on needs related to soft skills and job search observed by the counselor or expressed by the participant. These workshops may also be useful for refugees to prepare for job interviews. Active vocational guidance may be best suited for cases where skills training is agreed in the IAP, but the refugee may not be certain on choice of specialty (see section 3.6). The Individual Action Plan would record all referrals and be updated upon completion of an intervention. Post-referral counseling The number and type of interactions with the job counselor post-referral will depend on the trajectory of the participant. Examples of post-referral “check-ins” or informal counseling sessions include: • For participants referred to vocational training or internships, there would be a follow-up appointment after the Active Vocational Guidance sessions have finished, in order to make the next referral. • Post-training or internship, there may be a need for periodic short “check-ins” with the counselor in order to refer to vacancies and monitor/support independent job search activities by the participant. • Finally, it is possible that some participants encounter difficulties in securing a job placement. In that case, it is recommended that job counselors check in with the refugee every 20-30 days by phone. After 2-3 months, another session may be required with the counselor in order to re-examine and adjust the IAP. • Informal periodic “check-ins” after job placement (subsidized or not). It will be important for the counselor to have access to information on the outcomes of referrals (language training, group workshops, technical training, and internships) in order to inform the post-referral counseling sessions. Table 7 - Pending Decisions and Recommendations for Counseling, Skills Recognition and Referrals Pending Decision Recommendation KPAs to be included in pilot • Selection conditional on work load of pilot, location and use of [63] online counseling No. of Job and Employer • Selection considers work load Counselors in Pilot • Timely selection to allow for training • 3 sessions the norm, fewer if it is possible to complete Skills Recognition Tool • No more than 2 weeks between sessions with aim 3 sessions in a Counseling Parameters month • 45-60 minutes per session • Interpreters available as needed • Revise sections on professional and other skills and decide which Skills Recognition Tools tools to be used • Once decision made integrate necessary parts into OPS • Referrals should be personalized (i.e., differ according to the Referral Principle characteristics of participant) 3.5. Language training The objective of this activity is to equip project participants with sufficient Greek language skills to function effectively in the workplace and/or to fully benefit from training. In order to qualify for the I.Ref.Job pilot, refugees require a minimum level of Greek corresponding to A1 level. They are most likely, however, to require further training to cope with work-related vocabulary and contexts. According to international evidence,73 local language skills are intrinsic to the successful labor market integration and general wellbeing of refugees. Refugees with poor language skills are most at risk of exclusion and long-term dependency74. A World Bank survey of asylum seekers and refugees in Greece75 in 2017 found that being unable to communicate in the local language was a significant obstacle for the vast majority (94%) of those who reported that finding a was job difficult. From a recent analysis by NGOs in Greece76, the largest share of refugees (over 80%) have either no knowledge, or only beginner level in Greek language. Therefore, language training will clearly be key to the success of I.Ref.Job. Selection and referral Anyone who is assessed as requiring language training or expresses an interest can be a potential beneficiary of this activity. Some refugees referred from other programs may have a higher level of proficiency than A1, which should be sufficient for entry level jobs, and thus, they may be referred directly to an intervention. The need for language training will be assessed early in the eligibility, selection and enrollment stage. To be eligible for I.Ref.Job, refugees will require basic Greek equivalent to A1 73 European Parliament, 2016 74 Coley et al., 2019. 75 C.f. World Bank, 2018. The survey included 1600 asylum seekers in Greece across main accommodation sites primarily in the Attica region. 76 IRC Hellas, 2020; IOM, Data on Helios beneficiaries, shared with OAED in 2020; and Helios Factsheet: Quarterly report presenting stocks, flows and some demographic characteristics of participants in the Helios project. [64] level, involving validation of proficiency and language screening (C.f. Section 3.3). Once eligibility has been established, and participation in the project is confirmed, beneficiaries will have their first session with a job counselor. During this session, based on the information recorded during eligibility determination as well as the extent to which communication skills are demonstrated during the interview, the counselor together with the refugee will discuss whether or not further language training is required to be job-ready. Provided beneficiaries show need and are interested, counselors will then make a referral to language training at the appropriate OAED KEK. Language teachers at the KEK will then determine individuals’ literacy and language capability and assign them to an appropriate class. Throughout language training, it is recommended that employment counselors be proactive in trying to place jobseekers first in jobs or ATPs, and second in vocational training. International evidence suggests that the program components should not simply run sequentially, and that language training is most effective when delivered in context – for example when integrated with work or vocational training using vocabulary and contexts that resonate with the trainee (See Box 7). This calls for close coordination between employment counselors and language trainers so that the former can be alerted as soon as language trainees become sufficiently competent for other referrals (i.e. jobs, ATP, or vocational training). Although the potential for refugees to have two simultaneous interventions is strongly recommended, OAED is currently bound by legal restrictions that do not allow for dual running of paid interventions. Ideally, it should be possible for participants to continue with language training on a part-time basis, or online at times that suit them. If resources permit, and if the restrictions that OAED faces are relaxed, language training, flexibly delivered should be made available to refugees while participating in another intervention.77 Box 7 – Lessons drawn from international experience in Language Training Internationally, there seems to be consensus78 on the following key factors for successful language training: 1) Start language training, along with job search training, as soon as possible; 2) Assess and assign refugees to language courses based on their competency levels; 3) Offer language courses at different competency levels adapted to refugees’ identified needs. Refugees come from different educational backgrounds, speak different languages, and have different career aims, so a ‘one-size fits all’ approach is unlikely to work; 4) Integrate language learning with other learning, such as host country culture, services available to refugees and employment rights, using professional vocabulary related to work; 5) Once basic language skills have been mastered, combine further language development with work experience, internships or vocational training. For high-skilled refugees, increase the availability of on-the-job training to improve content and delivery of skills- 77 Language training material will be available in both paper-based format and via a mobile application. The use of the mobile app will greatly facilitate remote learning at times that work for individuals with other commitments. Regarding the risk of double funding, project participants should not expect to receive the language training allowance after they have moved on to another intervention, or to a vacancy, but they could continue using the app and benefitting from its content if they are motivated to do so. 78 Bilgili et al., 2015; and International Youth Foundation, 2018. [65] based language learning; 6) Make training available at times compatible with household responsibilities and work schedules; 7) Offer trainees a recognized certificate whenever feasible; 8) Consider access barriers that prevent women from receiving language training (e.g., family obligations or cultural considerations), and provide daycare alongside language training and/or offer women-only classes at appropriate times of day; 9) For young people, consider alternative approaches like ‘gamifying’ language training to motivate them to learn. Findings also indicate that language training combined with other measures, like skills recognition, ensure a better chance of working and can translate into higher earnings. However, getting the balance right is important – if language introduction programs are too long, they can have ‘lock-in effects’, or in other words, they can delay transition to employment.79 Source: Konle-Seidl, Regina and Georg Bolits, 2016. Labour Market Integration of Refugees: Strategies and Good Practices. Brussels: European Parliament. Main features OAED plans to accommodate 30 classes in Attica and 20 classes in Central Macedonia consisting of 20 people each, in order to serve the total number of 1000 beneficiaries. Although it is useful to set planning parameters, exact class numbers cannot be set until the literacy and language level of beneficiaries is assessed and their capacity for online learning is established. The impact of COVID-19 restrictions on class sizes must also be factored in. OAED intends to use its own training centers (KEKs) to provide both language and vocational training for the Pilot. Since the material from I.Ref.Sos already exists in digital form for use on PCs and tablets, OAED is planning to make it available through a mobile application. This should make training more accessible given the restrictions imposed by the COVID-19 pandemic, and it offers an option to participate for those women who might be reluctant to join mixed classes. It should also enable more flexible learning opportunities for those who need it (those with care responsibilities, having started on a work placement or training, etc.). However, virtual delivery can be challenging for refugees who already face language barriers and may not have access to the necessary equipment or reliable internet connectivity80. OAED could, therefore, also consider seeking arrangements for part-time time language courses through alternative means. OAED plans to use the language and intercultural training package and instructor’s guide developed for the I.Ref.Sos project. This package was developed for young people so the content may have to be adapted for different levels of learners and the over 30 age group targeted for Central Macedonia. It may also have to be reviewed to ensure that it incorporates appropriate professional vocabulary and work contexts. OAED has been working closely with NGOs in the design phase of I.Ref.Job and therefore can benefit from these new relationships by learning from the experience of partner organizations in language assessment, training and certification. For more information on recommendations for the language training package to be offered by OAED, starting from existing materials, see Annex III. 79 Bilgili et al., 2015. 80 UNHCR, 2016. [66] Due to varying language skills and literacy levels of refugees, the planned duration of language training (120 hours - 1-1.5 months) should be flexible. Training content and style of training will need to be differentiated according to ability and age. It should be expected that some participants will progress faster than others or have different starting points. Some refugees might secure a job or a work placement (ATP) while they are on language training.81, 82This, combined with the fact that refugees will not all join the Pilot at the same time, makes it important to consider providing a continuous or ‘roll-on roll-off’ model of training, whereby individuals can start and finish a training program at varying times. Such a model could also reduce waiting times and increase the efficiency of language training dispensed i.e. avoiding idle capacity. The allowance offered should help to cover basic expenses but should not be high enough to be a disincentive to work. OAED is considering offering a 2 euro per hour training allowance (240 euro per month) to those on training.83 Providing the IT system is designed to do so, it should be possible to pay training participants on a weekly basis (as long as their attendance is satisfactory). The payment system will need to be flexible in any case if trainees are to be allowed to leave early to take up a job. In this scenario, they should be paid only for the weeks they attend language training.84 OAED might also consider offering a childcare allowance, as lack of support could be a barrier to participation, especially for women. Certification for language training will be very important for refugees to prove a level of competence to employers. OAED is planning at the very least to provide a certificate of attendance to those who successfully manage to complete the language training; however, this will not attest to their competence. OAED’s mandate does not include formally assessing language skills acquired in a program or providing the relevant certification. However, it should consider offering vouchers for formal testing and certification by a third-party provider. In order to facilitate formal recognition for its language training, it would be useful for OAED to collaborate closely with organizations responsible for such arrangements in Greece (e.g. The Centre for the Greek Language and The Modern Greek Language Teaching Center of the National and Kapodistrian University of Athens). 85 Formal certification at A1 level for those who do not have an A1 certificate (but were eligible for the pilot after language screening), and for those who achieve A2 level after attending 81 In that case, trainees should receive the allowance only for those weeks of attendance. 82 Some vacancies that refugees are seeking will not demand much more than A1 language level, and if employers post such vacancies with OAED it would not be good for OAED to keep them waiting until language training is completed. The implication of this is that employment counsellors should be proactive in keeping in touch with trainees in language training to inform them of vacancies and to arrange interviews. This further reinforces the benefit of running job search training in tandem with language training, and using professional vocabulary, so that participants are ready to go for interviews as soon as these arise. 83 For reference, in the Elefsina ALMP pilot, the training allowance was set at 4 Euros per hour on top of which beneficiaries retained any benefits from unemployment registration. For many, this compared favorably with taking a job at the national minimum wage (NMW) and therefore detracted from the aim of the project, which was to move people into work. As of February 2019, the monthly statutory minimum wage in Greece was €650 (Government Gazette 173/B’/30-1-2019). For comparison, a similar project to I.Ref.Job supported by the World Bank in Turkey pays refugees an allowance equivalent to 107 Euros per month – just over a quarter of its NMW (€392.60). 84 Best practices suggest that along with the allowance, childcare support for parents who attend classes should be available if lack of care proves a barrier to training. However, OAED’s institutional framework does not permit the provision of such an option, unless the agency utilizes its own Day Care Centers. 85 Certificates are issued for successful candidates at the following six levels of attainment in Greek: Α1 (A1 for children 8-12 years old, and Α1 for adolescents and adults), Α2, Β1, Β2, Γ1 and Γ2. The levels are linked to the corresponding levels of the Common European Framework (CEFR). [67] the courses, would not only be motivating for refugees and generate a positive outcome from I.Ref.Job, but would also contribute to the integration of refugees into the Greek labor market. OAED may need to be open to specific organizational arrangements for classes, to accommodate refugees. The flexibility to offer language classes in different shifts and to offer women-only classes should also be considered by OAED if it is found at initial counseling sessions that mixed classes, or classes at certain hours prove to be barriers to participation. Moreover, depending on number of participants, teachers might have to accommodate different language levels within the same class, or run different classes. Again, this requires a strong feedback loop between employment counselors and language trainers to ensure that learning from the counseling sessions translates into action to adapt programs where possible to match the needs of the target group. Table 8 - Pending Decisions and Recommendations for Language Training Pending Decision Recommendation • Ideally project participants should be able to undertake language training while participating in another project intervention. • Confirm with the OAED KEK language trainers the option for training Parallel training participants to carry on using the mobile app should they leave training early for a work opportunity. • Combine job search training with language training so that participants are ready for an interview as soon as a suitable vacancy occurs. Certification for • It is preferable that assessment for certification of language training is provided language training by a respected third party. • The planned duration of language training - 120 hours - should not be mandatory so that refugees who progress faster can leave at any point to take up work or training opportunities. • Ensure that the language teachers review the content of the language training package and revise it as necessary for the older age group in Central Implementation Macedonia. • Language training should be available on a part-time basis if possible, for project participants. Gender issues should be taken into consideration when planning classes. • Use job search vocabulary and exercises in the language training so that participants are ready for an interview as soon as a suitable vacancy occurs. • Discuss with the IT department/contractors the payment mechanism for the pilot. Since language will not have a mandatory length, payments to refugees Payment should be made on a regular basis rather than at the end of training. This mechanism enables them to leave before the end should a vacancy occur and only receive payment for the training they attended. A childcare allowance for participants should be considered. 3.6. Group Counseling: Job Search and Active Vocational Guidance This activity focuses on two referral options that are organized as group counseling sessions: job search assistance and active vocational guidance (AVG). The session on job search offers an opportunity for refugee participants to strengthen their practical skills related to job search and interview preparation, as well as the work environment in Greece. On the other [68] hand, AVG is primarily, although not exclusively, aimed at those who will opt for technical training and need support to choose a specialty. The group format contributes to additional benefits for the participants. Getting experience through role-play, exercises, and seeing the approach of other participants can increase an individual’s self-confidence. Soft skills such as communication, ability to work in a group setting, also come into play. The method of group counseling sessions is based on participatory procedures with interaction and collaboration between the moderators and the participants. During these sessions a variety of counseling methods and techniques can be used for participants to gain a better understanding of themselves and make the most appropriate decisions. Selection and Referral Specific criteria would guide these referrals. Referrals to the job search group counseling sessions could be made as early as the 2nd counseling session, while, it is expected that referral to AVG would take place after the 3rd counseling session in most cases. For both the timing of referrals should be flexible: it could be earlier if there is good progress to complete the skills recognition tool, and consistent with the work first objective of the Pilot. Referrals should be guided by the following criteria: • For Job Search Group Counseling, the selection criteria would include participants referred to a vacancy (subsidized or not), those referred to an ATP, those who the counselor thinks would benefit from interview preparation; and those interested in the content. • For Active Vocational Guidance, the criteria would include anyone referred to technical skills training who has not decided on a specialty. Consistent with the selection criteria, ideally, Job Search Group Counseling would precede interviews for job placement or ATPs, and AVG would take place prior to technical training. It is important to note that the idea is for these referrals to be used on a “needs basis”: not all pilot participants will necessarily attend. Ideally participants in either group sessions could attend at the same time as language training. Moreover, it is suggested that both types of sessions would be open to anyone who desires to attend them, for example, if participants want to further develop their soft skills or need help deciding on future training paths. Main features Building on the current OAED offer of Group Counseling, the content of the job search sessions for refugees would focus on job search technique. Some of the current features of the job search group counseling for general clients are appropriate for the refugee pilot. Nevertheless, it is recommended that the content be reviewed and adjusted to take into account the context for refugee labor market insertion, and specific features of the Pilot, such as adding an introduction to the work environment in Greece (work ethics, employer expectations, etc.) and how to build the e- portfolio. The methodology may also need to be updated to focus more on soft skills (for example, by expanding the use of participatory exercises, role-playing self-expression, among others) and to take into account issues faced by female refugees. The main objective of AVG is to support beneficiaries to make informed career choices, based on their interests, needs and on available interventions. Building on the information, provided in the AVG sessions, the refugee can learn about skills that are needed in the Greek labor market, which are related to their interest and the available opportunities for obtaining them (e.g. job readiness workshops, language and intercultural courses, upskilling and reskilling through vocational training courses, developing their own business, etc.). [69] The AVG group counseling will focus on the training and educational needs of participants. For the AVG group counseling, OAED intends to use part of the material developed for the I.Ref.Sos project combined with some content on job search techniques. The AVG material contains experiential activities covering the following topics: A. Self-perception i. First Contact, Group contract ii. Communication and acceptance of the others iii. Self-esteem, self-knowledge iv. Recognizing horizontal and professional skills; Abilities, Skills, adaptability B. Preparation for visiting training places: Collecting and organizing the necessary information C. Preparation for visiting employers/workplaces: Collecting and organizing the necessary information In addition to the above topics OAED proposes additional activities covering the following subjects: A. An exercise for knowing each other B. The Social/human network that exists today C. Professional goal D. Describe yourself E. Personal characteristics Several features could support AVG in its intended role. To support participants in the selection of a training specialty among those offered in the Pilot, the AVG session could: a) Use features of the existing AVG (from I.Ref.Sos) that addresses the training and educational needs of the participants and helps them decide which specialty to follow, if they are referred to Technical Training; b) Extend the content more broadly to other Vocational Education and Training (VET) systems outside of the OAED pilot, so participants can make more informed choices; c) Update the final material to be used with current information, especially reflecting any Covid-19 restrictions; d) Review the material to make it suitable for participants over 30 years old that are going to participate in I.Ref.Job in the region of Central Macedonia; e) Schedule sessions mainly during morning hours: it is important that participants consider this activity as a “real commitment” in order to model the behavior needed in a work situation (for example, consistently being on time), with flexibility in cases where needed. The main operational parameters for both activities are listed below, as well as OAED’s standard job search workshops and AVG in I.Ref.Sos, for purposes of comparison. [70] Table 9 - Operational parameters for Group counseling and active vocational guidance Active Group Group Active Vocational Operational Vocational Counseling Counseling Guidance Parameters Guidance (OAED) (I.Ref.Job) (I.Ref.Job)86 (I.Ref.Sos) Number of 5 20 5 5 Sessions Length of each No info 6 hours 4 hours 4 hours Session Total Duration 5 days 20 days 5 days 5 days Size of 10-15 (if online 10 10-15 (if online 10 8-12 10-15 classes/groups max) max) OAED KPAs and OAED KEKs or Location OAED KEKs OAED KEKs or KPA2 KEKs KPA2 OAED job counselors would deliver both types of workshops. For this purpose, 120 job counsellors from different KPAs across Greece have recently undertaken a training program focused on intercultural counselling in order to get familiar with this target group and their needs. This training program took place in cooperation with the Kapodistrian University of Athens. Depending on the composition and needs of attendees, interpretation would be considered for some sessions. To facilitate communication and reduce the need for interpretation, ideally the session moderators should have a good command of the material not only in Greek but also English (preferably at least C1 level). It is also suggested to group together participants with similar levels of Greek language. If as intended, both workshops model a work situation (for example, attending every day and being on time), the only other service that could be provided would be part-time language classes, depending on the schedule.87 OAED should keep a record of attendance and provide testimonials concerning refugees’ participation in both group activities. OAED may consider providing a certificate of attendance to refugees as this action could motivate the participants of I.Ref.Job. OAED may also provide confirmation of attendance to employers, if it is requested or needed. In addition to the certificate, other information could be registered at the end of the session for each participant, for example, their attendance performance and the results of a self-assessment (i.e., existing skills and new skills that were developed). The IAP would be updated to include the participation/completion of workshops during the post-referral counseling session. 86 OAED’s intention is to provide Group Counseling sessions and AVG in 3 sessions of 6 hours each (1 session per day). However, it is suggested to shorten the length of each session in order for the refugees to participate more actively in the entire session and remain motivated. The sessions will take place in OAED structures in groups of 10 people. 87 Best practices suggest that childcare support for parents who attend classes should be available to enable good attendance. OAED’s institutional framework though does not permit the provision of such an option, unless the agency utilizes its own Day Care Centers. [71] Table 10 - Pending Decisions and Recommendations for AVG and Job Search Group Sessions Pending Decision Recommendation • AVG would be a referral prior to technical training and job search prior to job placement (subsidized or not) and ATPs, in all cases as needed. • Material should be adjusted as necessary. • Keep a record of attendance and consider providing a certificate of Implementation attendance to refugees. • If as intended, both types of sessions model a work situation (for example, attending every day and being on time), the only other service that could be provided in parallel would be part-time language classes, depending on the schedule. 3.7. Job placement The objective of this activity is to match project participants to vacancies. Placement into work is at the top of the hierarchy of referral options within I.Ref.Job: participants should be matched to vacancies just as soon as they are ready, assuming suitable vacancies are available. Job placement is likely to be appropriate for refugees with sufficient Greek language skills and recent work experience. An effective employer outreach strategy, both in advance of the first beneficiaries joining and throughout the project, is essential to identify hiring firms and ensure there are vacancies available to refer to. Selection and referral Once a vacancy is notified for job placements, it is important that OAED responds as soon as possible by pre-selecting candidates for interview. OAED can also consider proactively sharing CVs with employers or, should they decide to use an e-portfolio in I.Ref.Job, with the permission of beneficiaries they could allow employers to access this. The employer will make the final choice of candidates, but counselors should prepare a short-list of candidates for interview and seek feedback from employers on the unsuccessful ones, as well as from beneficiaries on their interview experience, so that this can inform future referral choices. Experience from NGOs in Greece (See Box 8) suggests that counselors should maintain contact with employers and with refugees for a period up to six months after placement. The timing of job placement activities will differ according to the characteristics of the refugee. Although some project participants may be employable as soon as they join the project, others will become more employable throughout the project, for example, as their language skills improve, or as they finish an ATP or vocational training. Therefore, employment counselors can consider referring participants to jobs immediately after the Individual Action Plan is completed, or at any point while they are on language training, an ATP or on vocational training as and when suitable vacancies arise. Effective screening and assessment of project participants will be key. Employers will set the precise requirements for the skills and experience they require for their vacancies. However, judging from employer feedback in Greece, most are looking for candidates who have a functional level of Greek along with soft skills, such as an awareness of work ethics in Greece and the ability to work in teams. Some employers might also require relevant prior experience and/or technical skills, although many seem willing to train ‘on the job’. Box 8 contains examples of screening, pre- [72] employment preparation and post-placement monitoring in NGOs’ job placement services in Greece. Box 8 – Examples of Job Placement services in Greek NGOs IRC has adopted a pre-employment internal tool for skills mapping (an excel file with categories) and various employability services; weekly group job search sessions where beneficiaries look for jobs on computers or their phones with the assistance of job counselors; and job fairs. UNHCR makes use of tools such as an action plan, assessment tool, EU skills profile tool for third country nationals and a monitoring form. They also provide at least 5 meetings with a career counselor. At the 4th meeting, the beneficiary and counselor prepare a CV (in Greek and English) and the counselor sends it to the list of potential employers. At the 5th meeting, the beneficiary either meets with the employer or is prepared for an interview with the employer. Program results: 58.5% of participants had job interviews, 37.2% accepted a formal job offer, and 19.5% found a job with valid employment prospects GCR has cultivated a network of around 60 employers sympathetic to hiring refugees. All businesses are subject to a check. Their process for job placement is as follows: 1) Identify skills, experience and interest amongst the beneficiaries; 2) Identify local companies that have high levels of recruitment and may be able to offer placements for refugees; 3) Meet employers to understand what they need; 4) Prepare beneficiaries for interviews; 5) The GCR employer counselor keeps in regular touch with employers and refugees once they are in work – for up to at least 6 months – and tracks their progress; and 6) Volunteer placements in the beginning and then paid jobs. In 2019, 45% of beneficiaries received a job offer after attending the program. Main features Overall responsibility for job matching within OAED sits with the Employment Directorate. Firms who express interest in participating in the project will need to submit an application for registration in OAED’s registry for firms, although most of the firms that participate in the project will probably already be registered and known to OAED88. In addition to normal procedures, it is recommended that approved firms identified as hiring companies should be contacted by OAED‘s employer-facing staff including the Key Account Unit. The aim is to explain the project to them, allay any fears or misunderstandings about taking on refugees, and make employers aware of post- placement monitoring.89 Posted vacancies for the Pilot will meet the requirements of formal jobs such as payment of minimum wage, provision of social insurance and appropriate benefits and include a broad range of contract types. Within the project, it is expected that those referred to jobs will be paid at the same level as other jobseekers registered with OAED. In other words, they should receive at least the national minimum wage and all the appropriate benefits that employees are entitled to (such as social insurance, leaves and payment of Christmas, Easter and summer bonuses) as this is 88 Documentation for registration in OAED’s registry for firms, varies depending on whether the company is a sole proprietorship or not, and includes the certificate of incorporation of the company as well as the declaration of all necessary data (address, phone, email, VAT number, etc.) of each branch the company has. Upon registration, all companies receive codes in order to access and use OAED’s electronic services. 89 Annex I of the Employer Engagement Strategy (under Output 1.B) offers specific examples of employers’ reservations about hiring refugees and OAED’s potential responses. [73] the case with job vacancies via the open market and wage subsidies. Open market vacancies notified under I.Ref.Job could be full-time or part-time, rotational, temporary, permanent or seasonal if the project is to offer maximum possibilities for refugees to get a foothold in the job market. OAED can encourage good practice among hiring employers and help to minimize problems within the project by offering guidance and support. Besides reinforcing the practices mentioned above, OAED could develop a guide for employers hosting refugees and should encourage employers to give a testimonial or reference at the end of the term (if the job is not a permanent one) outlining the skills and experience obtained. This will give the beneficiaries a better chance of finding work elsewhere thereafter. Table 11 - Pending Decisions and Recommendations for Job Placement Pending Decision Recommendation • The process designed for employers to post vacancies should be a simple as Vacancy posting possible using standard job description. This could either be completed directly by employers on OAED’s web portal or shared privately with OAED. • OAED must decide whether vacancies posted for I.Ref.Job will be public and potentially open to all, or kept privately (e.g. on a separate patchwork Access to vacancies platform developed only for the pilot or on a separate xls file maintained centrally by the Key Account Unit and accessed also by employer counselors). 3.8. Wage subsidies Wage subsidies encourage hiring by reducing the cost of labor to employers. For OAED, wage subsidies have long been a core instrument in its programming. The responsibility for the design and management of wage subsidies rests with OAED’s Employment Department. The approach used by OAED and many other public employment agencies has been to cover a share of wages and sometimes non-wage labor costs for employers who hire eligible unemployed workers. Wage subsidies can be a particularly useful hiring incentive in two overlapping cases. The first is where the targeted eligible workers for some reason represent a priority group for the public employment service. The second is where the barriers to employment are substantial because labor market opportunities are scarce and/or targeted workers may not be as attractive to employers as others. Meta-evaluations of ALMPs in Europe for the general case and specifically for immigrants show that wage subsidies are among the most effective interventions.90 Butschek and Walter (2014) find positive effects from wage subsidies concluding that “programs that are relatively closely linked to the labor market (for example, work experience and wage subsidies) appear the comparatively most effective programs”.91 While there has been much less analysis of their usefulness in the specific case of refugees, the evidence does seem positive. Both the IMF and the OECD have recommended wage subsidies as an intervention for integrating refugees into the labor 90 A meta-analysis of ALMPs for integrating immigrants into European labor markets concludes that wage subsidies are the only intervention that consistently improves employment outcomes. The meta-analysis is based on 33 evaluation studies in Europe. (See Butschek and Walter, 2014). 91 Rinne, 2013. [74] market.92 Table A2 in Appendix II includes some examples of EU programs for refugees with a wage subsidy component. Due to the prevailing labor market conditions in Greece and the particular situation facing refugees, wage subsidies may have an important role in the context of the Pilot. Wage subsidies can help by making pilot participants more attractive to prospective employers. If some participants have skills and experience that are harder to observe in the host country, subsidies give them a chance to show they are productive. In addition to providing an immediate hiring incentive, wage subsidy programs can allow the worker to gain experience, develop skills, and raise his/her productivity, making it more likely that they will find employment either in the firm providing the subsidized job or elsewhere after the subsidy period. The wage subsidy program in the refugee pilot can build on the Elefsina experience. In the past couple of years, OAED has made some improvements, some of which were initiated in the Elefsina pilot and then mainstreamed nationally. In the past, high transaction costs in accessing subsidy programs, verification, and receiving payment have discouraged employers from participating.93 Reducing transaction costs, making it more attractive for employers, and addressing the weaknesses, including through early employer engagement are extremely important for employers to be interested in wage subsidy programs (see Box 9). Box 9 - The wage subsidy program in the Elefsina pilot For the promotion of wage subsidies, the Pilot incorporated stronger employer engagement, including by hiring an additional employer counselor, holding an information day, sending a letter to businesses and preparing a leaflet for employers. Employers did not need to wait for a call since the Pilot wage subsidy program was to be open throughout the Pilot period. Beneficiaries were referred to open positions based on the new profiling methodology. OAED shortlisted wage subsidy candidates but the final selection was made by the employer. In recognition of the difficult target group and because the administrative burden for employers had been identified as a reason for low take-up in previous programs, the program was designed to make it attractive to employers. Key features included a more generous subsidy level (equal to 60% of total labor costs – up to EUR 700), three duration options (9, 12 or 15 months) and no commitment for the employer to retain the worker after the subsidized period. Additional changes from previous wage subsidy programs aimed to reduce transaction costs for both employers and OAED staff. Firms no longer had to apply for the program. Rather once vacancies were posted, the OAED counselor verified firm eligibility and if confirmed, initiated the referral process. Once the employer made the final selection, the beneficiary was hired. Within 30 days from hiring, the firm had to submit an electronic application for entering the wage subsidy program by choosing one of the three available duration schemes. Hiring prior to application and inclusion in the program was a new feature. Another feature of the Elefsina wage subsidy program was that the payment process was disconnected from audits. As a result, the time required for payments to firms was significantly reduced. On the downside, not all streamlining procedures that were initially envisioned for the Pilot were adopted primarily because they couldn’t be supported by the Information System. Examples 92IMF, 2016; and OECD, 2016. 93World Bank (2018): Program Document for 1st Phase of New ALMP Model (Output A.2), Administrative Agreement of November 27, 2017 - EC Contract No SRSS/S2017/029. [75] included the submission of the request of payment and the supporting documents by firms on- line instead of visiting the KPA2 and post-program monitoring arrangements. Another weakness identified through a process evaluation was the lack of an effective employer engagement strategy to achieve the targeted number of positions throughout the Pilot. Since firms were also being contacted to offer internship placements, the advantages and different purpose of wage subsidy vacancies should have been specifically promoted. Source: World Bank (2020): Process Evaluation Technical Report, Administrative Agreement of February 11, 2019 - EC Contract No SRSS/S2019/012. Eligibility criteria for firms Wage subsidies will be available for a posted job vacancy if the employer and the job meet the eligibility requirements for the subsidy. Firms eligible to benefit from the wage subsidy must be in the private sector or in the social and solidarity economy and engaged in regular economic activity in the regions covered by the Pilot. There are additional considerations noted below for firms to be able to hire workers for subsidized jobs. Employer outreach is important for the wage subsidy program, just as it is for job placement activities in general. There are specific reasons why a firm may not be eligible for an OAED wage subsidy program. Firms may be ineligible due to being in an ineligible sector, prior episodes of non- compliance, and exceeding the EU de minimis limits for state aid to individual enterprises. 94 Another eligibility condition for receiving an OAED wage subsidy is the requirement that the enterprise has not reduced employment levels in the three months prior to participation in the subsidy program. This condition is intended to prevent the substitution of subsidized for non- subsidized workers. While most countries do impose some no-layoffs condition based on prior employment levels, usually between 3-12 months, some (e.g., Norway) have no employment- related conditions at all.95 Some flexibility on the no-layoff condition could be considered, following international practice. In light of the difficult labor market conditions that have prevailed during the pandemic period, the no-layoff condition prior to participation in the wage subsidy program could be relaxed, for example, by restricting it to occupations and locations where the subsidy applies. As an alternative to this type of rule, some countries base eligibility on overall employment levels during the subsidy period relative to before. For example, a program in Croatia required that the subsidy had to lead to a net increase in the number of employees in relation to the average number of employees over the previous 12 months. A program in Cyprus restricts the no-employment reduction condition only to employment that is relevant to the subsidy positions for 3 months prior to participation to the program. Likewise, a Belgian program addressed this issue by allowing firms to apply for an exemption from a 3-month prior no-layoff rule on the basis that layoffs were 94 Greece, like other EU members, does not allow companies to participate in wage subsidy programs if they have received state grants over a specific amount according to the de minimis rules. 95 Annex II (Briefing note on wage subsidies) in World Bank (2018): Program Document for 1st Phase of New ALMP Model (Output A.2), Administrative Agreement of November 27, 2017 - EC Contract No SRSS/S2017/029. [76] unrelated to the new jobs. However, during the period that subsidies are being paid, the firm must comply with a no-layoff commitment.96 Selection and referral Once a subsidized vacancy is notified and firm eligibility is confirmed, it is important that OAED job counselors respond as soon as possible by pre-selecting candidates for interview. Pilot participants can be referred to these jobs if they have the relevant skills and experience. As in the case of non-subsidized jobs, OAED could also share CVs with employers or, should they decide to use an e-portfolio in I.Ref.Job, with the permission of beneficiaries, they could allow employers to access this. The employer will make the final choice of candidate, but counselors should seek feedback from employers on the unsuccessful candidates and from beneficiaries on their interview experience so that this can inform future referral choices. Main features OAED already runs wage subsidy programs targeted at disadvantaged workers which will be useful to inform the design of the wage subsidy for refugees. An example of this is the 12- month subsidy to encourage employment of people in vulnerable social groups.97 Generally, the key factors in determining attractiveness to employers are: a broad definition of jobs eligible for subsidies, generous subsidy levels, flexible duration options, minimal (if any) post-subsidy employment obligations, and a business process that keeps transaction costs low. While OAED wage subsidies have traditionally only been available for full-time jobs, the Pilot should extend subsidies to part-time jobs too.98 While full-time employment is understandably a goal for OAED, this reform would reflect changes that are going on in the nature of work and in the preferences of many workers throughout Europe.99 It would also respond to the challenges refugees are bound to face in finding employment, particularly given labor market conditions. Some countries are now more flexible in terms of the types of jobs eligible for subsidization (e.g., Norway, Spain, Sweden).100 Both the extent of the level of subsidy and duration options are important parameters. Recent experience suggests that OAED could set the subsidy at a high level, even as high as 80-90 percent of total labor costs.101 While typical wage subsidy programs replace 40-60 percent of wages, our 96 Annex II (Briefing note on wage subsidies) in World Bank (2018): Program Document for 1st Phase of New ALMP Model (Output A.2), Administrative Agreement of November 27, 2017 - EC Contract No SRSS/S2017/029. 97 In June 2021, OAED launched a program through which employers can receive a 12-month subsidy to employ unemployed people who belong to Vulnerable Social Groups (VSGs) in full and part time jobs. The subsidy equals 90% of the total labor cost with a maximum amount of € 800 for a full -time job and € 400 per month for a part-time job. The program can be extended for an additional 12-month period. Eligibility conditions for employers include de minimis and no staff reduction in the last 3 months while there is no employment commitment after the end of the subsidy. (Public Call 40245/28-06-2021). 98 Following the example of the recent call specifically targeted to individuals from special/vulnerable social groups (i.e. Public Call 40245/28-06-2021) described in the previous footnote. 99 McKinsey and Co., 2020. 100 See Annex II (Briefing note on wage subsidies) in World Bank (2018): Program Document for 1st Phase of New ALMP Model (Output A.2), Administrative Agreement of November 27, 2017 - EC Contract No SRSS/S2017/029. 101 According to OAED’s latest call for VSGs, the subsidy level was set at the 90% of total labor costs (up to EUR 800 and 400 for full and part-time employment respectively) and the subsidy period was 12 months. On [77] suggestion for a higher subsidy rate is based on the challenges the target group is likely to face.102 Employers could be given options in terms of duration: 9 months or 12 months. or 15 months, as used in the Elefsina pilot (see Box 9 for the Elefsina pilot subsidy program).103 Longer subsidy periods have the attraction of increasing the amount of subsidy assistance the employer will receive, but they also require a longer commitment from the employer. By offering different options, the program can be used by employers to reflect the nature of the position being subsidized and their level of commitment to maintaining the subsidized position. Employers should commit to retaining workers for a few months (e.g. 3 months) after the end of the subsidized period unless well-defined exceptions hold (e.g. poor performance, misconduct etc.). Table 12 - Pending Decisions and Recommendations for Wage Subsidies Pending Decision Recommendations Program features and design • Both full and part-time jobs. This would make the program attractive to more Type of eligible employers and would encourage the employment of workers who need or jobs prefer a flexible working arrangement. • 80-90 percent of total labor costs following the most recent call for Level of subsidy disadvantaged workers (i.e. 40245/28-06-2021). • Employers to be given three duration options: 9 months, 12 months or 15 Duration options months following the Elefsina example. Post-subsidy • Requirement for the employer to commit to retaining the worker for 3 months commitments after the end of the subsidized period (unless well-defined exceptions hold). Conditionalities for • Consider relaxing the 3-month no-layoff condition prior to participation, by firm eligibility restricting it to occupations and locations where the subsidy applies. Collection/posting procedure and access to positions Collection/posting • The process designed for employers to post wage subsidy vacancies should be of wage subsidy as simple as possible using a standard job description. This could either be positions for the completed directly by employers on OAED’s web portal or shared privately Pilot with OAED. • OAED must decide whether wage subsidy vacancies posted for I.Ref.Job will be public and potentially open to all, or kept privately (e.g. on a separate Access to vacancies patchwork platform developed only for the pilot or on a separate xls file maintained centrally by the Key Account Unit and accessed also by employer counselors). Hiring, payments and audits procedures the one hand, this subsidy level is considered high enough while on the other employers might be reluctant to commit for a long period and they might want to choose among different options depending on their needs. 102 OAED recognized the barriers some types of workers face in finding employment in its setting of the subsidy for the vulnerable groups (footnote 87). Refugees face substantial barriers and other countries in Europe have set high subsidy rates as a result. For example, a program for refugees in Sweden – where labor conditions are more favorable than in Greece -had a subsidy rate of 75 percent (see Appendix II – Table A2). 103 As part of I.Ref.Job, OAED is currently considering providing wage subsidies of 12 months. [78] Hiring procedure • Confirm that the procedure adopted in the Elefsina pilot i.e. hiring prior to to keep transaction application and inclusion in the program will be adopted for this pilot too 104, costs low 105 Further streamlining • Further improvements in the business processes are still needed, particularly processes with with respect to the payment and audit process, e.g., through expanding respect to the electronic verification. payment and audit process 3.9. Applied training program Applied Training Program (ATP), or stand-alone work experience placement, is an inexpensive and effective intervention appropriate for individuals who have potential to secure employment but who need to build their skills and gain experience. When no suitable vacancy is available, or when beneficiaries are not fully prepared to get employed, an ATP is the next best option to move participants into the workplace as soon as possible. It is also suitable for those who complete technical training within the project, to provide an element of practical experience when no vacancies are immediately available. Work experience is also appropriate for employers who cannot commit to an immediate vacancy but who are willing to offer work experience to a candidate with the potential to be employed. As a program, ATP is appealing to employers because it is low risk and usually involves minimal bureaucracy. It does not require an employment contract and offers a firm the opportunity to try someone out in the workplace before hiring them. The potential for ATPs in I.Ref.Job Although not currently a referral option for the project, OAED has agreed in principle that the ATP is a promising option, potentially attractive to employers, and a desirable addition to theoretical technical training.106 OAED has some experience of internships as part of technical training through the Elefsina pilot, but ATP as a stand-alone option would be a new program for them. Key Account Unit staff have already mentioned ATPs during the second wave of outreach to employers in advance of the project launch and early feedback from employers has been positive. Moreover, as part of OAED’s general ALMP reform program, the development of a stand -alone, short-term work experience option is of interest to OAED as they look to expand their ALMP portfolio. As OAED has not yet confirmed ATP as a referral option within I.Ref.Job, what follows is a 104 The hiring process in Elefsina included the following steps: (i) firms don’t apply to enter the program; (ii) once vacancies are posted/submitted by employers, the OAED employer counselor verifies firm eligibility; (iii) once firm eligibility is confirmed, the employer counselor informs the job counselor and the referral process begins; (iv) once the employer makes the final selection, the beneficiary is hired; (v) within 30 days from hiring, the firm submits an electronic application to enter the wage subsidy program by choosing one of the three available duration schemes. 105 The innovative elements related to hiring, payments and audits adopted in the Elefsina wage subsidy program, have since then been incorporated in OAED’s offerings nationwide. 106 According to OAED, ATPs cannot be submitted as such for ESF funding. There is no institutional framework in Greece for such an action for over-29s. In addition, it is not possible to use the internship as a stand-alone referral in the project, as the internship as it stands now must be linked to an educational activity that takes place first. [79] proposal based on international evidence, experience from the ALMP Reform project and consultation with OAED thus far. I.Ref.Job presents a good opportunity to develop and pilot ATP should OAED decide to roll it out more widely for Greek citizens. Although responsibility for design and management of an ATP type of intervention is likely to rest with OAED’s Employment Department, it is also relevant to the Training Department as it can be deployed as an element of vocational training – in effect, as an internship - therefore close consultation and collaboration between the two departments will be essential. ATP can be structured flexibly to accommodate the Pilot timeline and budget. If time constraints prevent the introduction of a stand-alone work experience option via the Employment Department within I.Ref.Job, then a similar action could be introduced by the Training Department. This would involve a very short theoretical element (e.g. a couple of days with some short sessions introducing participants to work in a sector/occupation or basic Health and Safety at work) followed by an internship, or placement, which would make up the bulk of the activity. Then, work- ready trainees could be referred quickly to internships. Selection and referral Once eligibility and language skills are established, referral might take place after session 3 with the counselor. A participant can be referred to an ATP depending on profiling and skills assessment, if there are no vacancies available and providing there are suitable placements. Work-ready candidates could be referred earlier than the third session if there are ATPs that match their interests and skills. As with job placement, participants can also be referred to an ATP at any stage of the project. Participants can be referred from language training or technical training – if they are ready and there are places available. All refugees will have at least A1 equivalent Greek on joining the project, and so potentially can be referred to an ATP straight away depending on the nature of the placement and the level of language required. If possible, they should have the opportunity to improve their Greek via part-time language training if the individual and employer deem it desirable. Project participants can also be referred to an ATP during or following full-time language training. Main features In line with international practice, ATPs should be relatively short. It is important that a maximum rather than a mandatory ATP duration is stipulated, so that participants can move off the program as soon as they find work. A World Bank-financed Employment Support project in Turkey has recent experience implementing ATPs for refugee clients as well as for Turkish citizens. In the Turkey project, ATPs are generally from 3 to 6 months, but OAED could build in some flexibility for certain groups, or for different sectors (See Box 10 below). Box 10 - Employment support for Syrians under temporary protection and Turkish citizens The Turkish Employment Agency, ISKUR, uses work experience, or Applied Training Program (ATP), as part of its ALMP portfolio. The program is a referral option for both Turkish citizens and Syrians under Temporary Protection (SuTP). The ATP supports those SuTPs who are more employable from the project outset, or become more employable through the program, to help them enter the formal labor market. The intervention deploys existing ISKUR business processes and programs available for Turkish [80] citizens, adapting them where needed for SuTPs. Based on a skills assessment, job counselors try to place project participants with Turkish proficiency in jobs or ATPs as early as possible. Where there is demand, some SuTPs who lack Turkish proficiency can be placed in an ATP and attend language training delivered in the evenings. Skills training courses are only provided, if necessary, in order to minimize the well documented risks of ‘lock-in’ effects from training. In each program step, the priority is to place jobseekers in private firms using the ATP where there are no job vacancies. Employers apply for the program through ISKUR’s online portal indicating their preference for profession and type of profile. Job counselors match SuTPs with interested employers. ISKUR incentivizes employers to participate by financing the equivalent of the net minimum wage for ATP beneficiaries as well as covering accident and health insurance. The conditions are the same for Turkish citizens and SuTPs. Under the project, ATPs have a maximum duration of 3 months, but ISKUR regulations allow some flexibility for groups that require longer to improve their employability. Source: World Bank, 2018. Employment Support Project for Syrians under Temporary Protection and Turkish Citizens Project Appraisal Document International examples also show the strength of combining interventions for refugees in order to avoid the lock-in effects of lengthy language or technical training (See Box 11 below). The option to do language training on a part-time basis, for example via the mobile app. would allow beneficiaries to upgrade their language skills while on an ATP, providing they are sufficiently proficient in Greek to meet employers’ requirements. If this cannot be done, then OAED counselors should keep a list of free providers of Greek language to enable them to point beneficiaries in the right direction. According to research by the UK’s Institute of Employment Studies107, the two main barriers to employment identified most frequently by refugees are the host language and literacy, and work experience. The research found that work placements enable refugees to overcome the barriers of lacking UK work experience or UK employer references. Box 11 – Combining work experience with training in the UK, Denmark and in Greece The Step Model in Denmark is a long-term integration program designed to ensure gradual labor market integration and provide support beyond the initial hiring phase. The Step Model targets new arrivals as well as settled immigrants from non-Western countries. The program has been developed by the Danish government, together with municipalities and social partners, and seeks to provide targeted integration support taking into account refugees’ and other eligible migrants’ skills and qualifications. The program combines language courses with initial work placements and traineeships in companies. It is also possible to participate in additional up-skilling and training, while gaining work experience in companies. If employers want to offer a job after the initial placement, they can be eligible for wage subsidies for up to a year. Employers can also receive financial support for mentorships between native-born employees and newcomers. In the United Kingdom, the Bridges Programme is matching refugees with employers who offer short (around 12 days) work opportunities. Refugees are selected based on having previous work experience or training in the employer’s sector. While placements are unpaid and there is no obligation to offer a job afterwards, many employers choose to keep refugees as employees. 107 Institute for Employment Studies, 2004. [81] The involvement of the Bridges Programme also ensures that the placement (and possible continuation of work) does not violate immigration or labor law, depending on an individual’s status or benefits. Source: OECD/UNHCR (2018). Engaging with employers in the hiring of refugees. Combining work experience with training in Greece Since May 2017, the NGO Metadrasi has run the Stepping Stone program with the aim of reinforcing refugees’ and migrants’ integration into Greek society by strengthening their professional skills. This program includes educational activities, such as intensive Greek and English language courses, courses on digital skills, counseling and support on legal issues related to employment, technical and professional training (sewing or cooking courses). In addition, there is a one-week training seminar on soft skills, work ethics and CV preparation. Participants also benefit from the employers’ network for paid internships of 3 to 6 months. These activities are offered in English and Greek language. Within the first 14 months of the activity’s implementation 115 beneficiaries had participated in educational activities and 40 of them had started a paid internship. For ATPs to mimic workplace conditions as closely as possible, OAED could consider paying participants a sum similar to the national minimum wage (NMW) while attending the program. A payment by OAED provides an incentive to employers to take part in the program, motivates beneficiaries to attend, avoids accusations of exploitation and helps participants become used to budgeting on a real wage. In the case of very short placements – i.e. a matter of days, beneficiaries may receive an allowance to cover basic travel and meal expenses. Normally, the employer pays nothing to host an ATP as her/his contribution is ‘in k ind’. In the project application, OAED has budgeted for an allowance for internships aligned to theory training of 3 Euros per hour for a maximum of 4 months. This compares to the NMW of 4,23 Euros per hour108. Close cooperation is needed between counselors and trainers during implementation. For the ‘proactive approach’ to be effective (whereby project participants are continuously considered for ATPs while they are on training and for jobs while they are on ATPs), it requires close liaison between employer and employment counselors, language trainers and vocational trainers. Employment counselors also need to commit to regularly contacting participants to check on progress while they are on training to alert them to ATP and work opportunities. Both ATP beneficiaries and employers typically receive support from the PES. The goal is to ensure that each party gets the most out of the ATP and that any issues are dealt with swiftly, before they become real problems. Key Account Unit staff and Employer counselors have a role to play to ensure that employers know what to expect and are monitored to ensure that they comply. Job counselors should be proactive in maintaining contact with beneficiaries to ensure they are having a satisfactory experience and to alert them to job opportunities. In addition, a tri-partite agreement (OAED-beneficiary-firm) should be signed prior to the start of the ATP that includes reference to any allowances, duration, break clauses, employer reference, etc. This will need to be a different model from the KEK-beneficiary-firm tri-partite agreement used for internships in the Elefsina pilot, where the KEKs sourced the work placements. Firms that express interest in hosting ATPs are not obliged to employ beneficiaries at the end of a placement, but their hiring record and potential to hire in the future should be 108 Government Gazette 173/B’/30-1-2019. [82] considered. Employers set the selection criteria for ATP participants based on a description of the role envisaged and the skills and attributes required. OAED in turn can determine the selection criteria for participating employers, in addition to their existing requirements for employers that benefit from their services. For example, OAED may wish to set a limit on the number of ATP candidates that one employer can host depending on their size and hiring potential as was the case for internships in the Elefsina pilot109. The premises of employers who wish to host an ATP should be visited by OAED (unless they are already well known to them). The size of the firm and its hiring potential should be conducive to supervision of ATP participants. OAED can promote beneficiaries to firms for ATPs. OAED might consider posting brief ‘pen portraits’ of work-ready I.Ref.Job beneficiaries on the website as a way of promoting them to employers. This could be done on a dedicated section of OAED’s website devoted to I.Ref.Job. Employment counselors could also share CVs with priority employers to encourage them to offer ATPs. Provision should be made for an employer reference post-ATP. Should an employer not employ a beneficiary at the end of an ATP, they should at least provide a reference or testimonial for the beneficiary to recognize and testify to the skills and experience acquired. The use of the e- portfolio (from I.Ref.Sos) has been discussed as a means of capturing the testimonial, and an exemplar reference was developed as part of the Elefsina pilot which could be used in I.Ref.Job. OAED might want to consider building into the design rules and tri-partite agreement a guaranteed job interview for each beneficiary on an ATP. The UK PES has this practice to help guard against the program being used simply as cheap labor where there is no chance of the trainee being hired from the outset. OAED can draw on lessons from a similar activity it has recently launched. OAED has very recent experience of launching a call for a work experience program110. It is aimed at young marketing graduates from which valuable design and operational lessons can be drawn for ATPs under I.Ref.Job (See Box 12). Box 12 – OAED’s Acquisition of Work Experience Program The “Acquisition of Work Experience Program for 5,000 unemployed young people up to 29 years old ", was launched in March 2021. This program aims to both enhance digital skills within companies, and support the career development of young unemployed people, significantly strengthening the digital economy. Through the program, beneficiaries will gain experience and skills in Digital Marketing, for a period of six months plus a certificate of completion from OAED at the end. The program is targeted at young people who have trained in digital marketing and who wish to gain work experience through a placement with a private company. They must be registered as unemployed with OAED at the time of applying. The program works as follows: Company requirements: Eligible private sector companies must engage in economic activity related to digital marketing or have marketing departments, and be willing to host unemployed young people. A necessary condition for the inclusion of a company is that it has not reduced its staff in the month prior to submitting an expression of interest to the program. Participation: Unemployed young people who are interested in the program have to submit an 109 In the Elefsina pilot, the following rules applied: 1) for firms with 0-4 employees: 1 trainee; 2) for firms with 5+ employees: number of trainees equal to 30% of the number of employees. 110 Posted on the internet by Ministry of Labour & Social Affairs, March 4th, 2021 [83] electronic application via the electronic services of OAED. Companies can also submit an expression of interest through OAED’s e-services via their local KPA2. Young people are referred to the program by an employment counselor, and the IAP is updated or created. Beneficiaries can choose which company they want for work experience. The beneficiary then receives a referral note from the local KPA to present to the company. The note is also sent by the KPA by e-mail to the company. Placement: If either the beneficiary or the company does not accept the placement, then their refusal is recorded in OPS. The young person, whether they reject the position or whether they are rejected by the company, may be referred by the job counselor to another company if a position is available. The company may also receive another referral. This process can be performed up to three times-both for the beneficiary and the company. After confirmation of the placement, both the beneficiary and the participating company must sign a cooperation agreement within 5 days. Agreements: Signatories to the agreement are OAED, (represented by the Head of the relevant KPA), the company and the beneficiary. The agreement sets out the obligations of companies and beneficiaries. An entry form is completed at the beginning of the action and before payment of the first monthly allowance; an exit form is completed within four weeks after the end of the action and before the payment of the last monthly allowance to the beneficiary. If the beneficiary leaves earlier than 6 months, the exit form is completed within 4 weeks of her/his leaving so that they are paid the compensation corresponding to their time at the company. If a beneficiary leaves a program early at his/her own volition, they are not reassigned to another company. Similarly, if a company is responsible for the early departure of a beneficiary, no other beneficiaries are referred to them. Benefits and responsibilities: The company must appoint a supervisor for the work experience and there is a maximum number of young people that companies can host depending on their size. Beneficiaries of the program receive an allowance monthly from OAED amounting to 25 Euros net per six-hour day for not more than 22 days a month up to 132 days in total for the program. (This equates to 550 Euros per month, slightly below the current Greek NMW of 650 Euros)111. Workplace and health insurance are also covered. No financial compensation is paid to the company. OAED is responsible for the monitoring and implementation of the program through its staff of auditors who carry out at least two on-site inspections of companies. Table 13 - Pending Decisions and Recommendations for ATP Pending Decision Recommendation • The Training Dept could design very short theory training sessions (i.e. a Training model couple of days) followed by an internship/work placement with an employer. • Ideally, the Key Account Unit and employer counsellors will source ATPs at the Seeking and posting same time as job vacancies. of vacancies • The process for posting ATPs/internships should be easy for employers. • Counselors need to proactively seek vacancies for those participating on ATPs, 111As of February 2019, the monthly statutory minimum wage in Greece was set at €650 (Government Gazette 173/B’/30-1-2019). [84] taking into account current OAED guidance and conditions • A tri-partite agreement (OAED-beneficiary-firm) should be designed to include details of any allowances, duration and break clauses for ATPs. It Tri-partite should also stipulate the requirement for employers to provide a reference agreement testifying to the skills and experience acquired should a beneficiary not be employed at the end of an ATP. • A maximum rather than a mandatory duration is proposed for the ATP, so that participants can move off the program as soon as they find work. • The premises of employers who wish to host an ATP should be visited by OAED staff (unless they are already well known to them). The size of the firm and its hiring potential should be conducive to supervision. Key Account Unit Implementation staff and Employer counselors should support employers who offer ATPs to ensure that they know what to expect and are monitored to ensure that they comply. • Job counselors should be proactive in maintaining contact with beneficiaries to ensure they are having a satisfactory experience and to alert them to job opportunities. 3.10. Technical skills training Technical training aims to improve the employability of individuals and contribute towards increased productivity in the companies where they work. Technical training is designed for those project participants who are not yet ready for the workplace, and those without relevant skills or recent work experience who need to retrain and have sufficient Greek to benefit from a training program. Training in the Pilot will be modular and offered in technical specialties in high demand in the labor market. Training will comprise a theoretical element followed by progression to an internship/ATP or a job. At any stage of theoretical training, participants should be referred to jobs or applied training if they are ready. Since most refugees are likely to be seeking entry level jobs, the basic training required can also be offered by employers either on the job or on an ATP, provided that refugees are work ready in terms of language and soft skills, and that there are vacancies or placements available. Accelerated by the global pandemic, digital skills have increased in importance across the board and will be a key training component. Digital skills are critical: for PES because of more digitization of services; for jobseekers in order to access online services and cope with new technologies at work; and for employers and workers where increased remote working means making greater use of technology, and of online business services. New technology-based training formats have been introduced, and to take advantage of online learning, individuals not only require access to the internet and an appropriate device, they also need basic digital literacy. Digital skills have become a requirement for many jobs, and entry level jobs are now available that are not restricted to local labor markets for those with basic digital skills. For these reasons, digital skills and virtual training delivery are two focal areas of this component too. Profiling of the target group for I.Ref.Job revealed key information regarding main challenges to be addressed. The majority of refugees in Greece have low educational levels, although HELIOS beneficiaries present a more mixed profile. Few refugees speak Greek fluently, while the most common second language among refugees is English. Lack of language skills is seen as a major barrier to employment by refugees and employers alike. In terms of digital skills, the majority of refugees have internet connectivity but user skills tend to vary according to age. Nearly [85] all male and most female beneficiaries of the HELIOS program have previous professional experience, and the professional experience of the target group is a reasonable match for labor market demand. Selection and referral OAED’s Training Directorate will be responsible for technical training within I.Ref.Job. Theoretical training will not be contracted out to external providers but will be delivered by teachers in OAED training centers (OAED KEKs).112 OAED intends to offer practical training via internships in addition to theory training. Participants could be referred to internships/ATPs either at the end of theory training, or during it if they are ready and suitable positions are available. Referrals with take place during counseling. Through the counseling process (most likely after the 3rd session), project participants identified as being suited for technical and/or digital skills training will be referred to active vocational guidance to select a training specialty unless they are ready to select a specialty. The AVG discussions will cover the list of specialties available and the outline curriculum (modules with learning outcomes) for each specialty. Once the choice of specialty has been confirmed, beneficiaries will be referred to a training program at one of OAED’s KEKs. At this point, counselors should explain to the beneficiary the course content, the training allowance and details of any other support available. Main features Training duration should be flexible. It is envisaged that theoretical vocational training in I.Ref.Job will last for a maximum of 200 hours. This should be a maximum rather than a mandatory time as the demands of some specialties may be less, and participants should also be considered for referral to an ATP while they are on training as well as to any suitable vacancies.113 Beneficiaries should also be encouraged to search for jobs independently and discuss actions and outcomes with the counselor. OAED is proposing to offer a 2 Euro per hour training allowance (240 euro per month), which should not prove a disincentive to work. The training allowance will help cover meals and expenses but not disincentivize trainees from seeking work114. Currently OAED is not planning to pay trainees any allowance until they have completed the full theory training. This does not seem appropriate for refugees who are likely to have very limited means. It could either put refugees off choosing training in the first place, or disincentivize beneficiaries moving into workplace settings as soon as possible because they need to complete the whole theoretical course to receive any 112 OAED said that no voucher would be needed for referral to the OAED KEK but that some kind of process for referral will need to be worked out. In the Elefsina pilot, the training JMD (4132/93/20-11-2018 published in GG 5709/B/19.12.2018) stipulated that “beneficiaries receive a special referring voucher for the KEK of OAED without an economic value to attend the basic skills courses which took place in the KEK of OAED”. 113 Two issues might affect this according to OAED. The first is the risk that the unemployment cards of some beneficiaries (under certain circumstances) may be deactivated while on theory training. If so, job counsellors will be unable to move people off theory training into jobs/internships when those become available and when beneficiaries are ready. The second is that trainees are not entitled to receive any allowance until they have completed the full theory training. 114 Analysis suggested that the training allowance of 4 Euro paid to trainees in the Elefsina pilot for considerably longer periods of time in many cases could be a disincentive to work. [86] payment.115 Consideration should be given to access barriers that prevent women from undertaking training, e.g. family obligations or cultural considerations. Providing daycare and offering women- only classes can help to overcome these. Alternatively, OAED could consider offering a childcare allowance, as lack of support could be a barrier to participation, especially for women. For comparison, Box 13 provides the duration and allowances paid for training in similar programs in Greece and Turkey. For information regarding duration, languages, frequency, allowance and certification of training courses provided by NGOs to refugees in 2020-2021 in Athens, C.f. Annex II. Box 13 – Duration and allowances in training programs in Greece and Turkey In the technical training courses offered by NGOs, refugees can participate for free and in some cases with prerequisites. A training allowance is not provided to the participants. However, organizations provide some meals in the breaks of the courses. In some cases a kinder garden teacher provides childcare for the participants if it is needed. Also during the period of COVID-19, training has been provided via the internet. In the Elefsina pilot program, OAED offered a training program comprising a theoretical component and a practical part (i.e. an internship). The theoretical element ranged from 200 to 600 hours, or 7/8 to 16 weeks, depending on the chosen specialty. Roughly 10% of the training time for all specialties was allocated to “horizontal” skills. OAED determined horizontal skills for the Pilot to be language, Health and Safety and IT skills. These were contextualized for each specialty. Training courses under the World Bank-financed employment support project for Syrians under temporary protection (SuTPs) in Turkey are kept fairly short so as to avoid ‘lock-in’ effects. The small allowances paid to participants are designed not to compete with a wage, but simply to cover out of pocket expenses. The allowance has been set to be enough to make training attractive, but it is not an incentive to remain in training longer than is necessary. Figure 8 - Training courses under the World Bank’s employment support project in Turkey 115It is recommended that OAED build in flexibility so that payments are made regularly during the training depending on attendance. In the Elefsina pilot, the training JMD (4132/93/20-11-2018 published in GG 5709/B/19.12.2018) stipulated that “Payment to trainees happens on a monthly basis, after the monthly “certificate of realization” of the training/or the internship is issued”. In practice though, the payments from OAED to trainees were significantly delayed due to the fact that the information system support for attendance was not operational from the beginning, leading to frustration among them – something it will be important to avoid for the refugee target group of I.Ref.Job. [87] Given the importance and the complexity of developing training programs, a three-step guide has been developed for this purpose (see the summary below)116. The aim is to facilitate the process of training development for OAED not only for this Pilot but also for further upscaling and new projects. The guide comprises the following steps: 1) Identifying training needs; 2) developing training content and 3) Progression from training. 1. Identifying training needs Effective employment training starts with the identification of training needs – both of individuals and of the labor market. A labor market assessment is essential to determine the needs and changes in the labor market, and identify those occupations and skills in highest demand. It also brings other benefits, for example: • An expanded network of connections with different stakeholders: companies; trade associations, research entities, training providers, and observatories. • Greater knowledge about hiring requirements to share with jobseekers during recruitment and placement processes. For this activity, a guide on identification of training needs was prepared (C.f. standalone note “Document 9: Technical Skills Training”) According to international evidence117, good practice principles for employment training include: • Link individual development expectations with the productivity and competitiveness objectives of companies; • Meet the demand in the current labor market and, as far as possible, anticipate the demand in the medium term; • Focus on industry sectors that are experiencing growth and can offer quality entry-level positions; • Include training in the set of skills and competencies that are in demand in those sectors; • Involve potential employers in the design and implementation of the training. 2. Developing the training content In terms of curriculum development, once the priority training specialties have been identified from analysis, they need to be further filtered down through consultation with employers.118 Validation of critical occupations with employers also helps to keep them engaged and informed about the refugee pilot so that they can refer to OAED when jobs/internships in their firms come up. While employer validation is taking place, to make best use of preparation time and resources, OAED could start by developing those horizontal modules that they know in advance will be important and will be needed across all specialties, e.g., digital skills, health-safety at work, soft skills and work preparation training. 116 All three steps are further developed in the standalone note “Document 9: Technical Skills Training“, delivered to OAED in July 2021. 117 International Youth Foundation, 2015. 118 A questionnaire was devised by the WB team for OAED to validate the list of occupations in demand resulting from the initial labor market demand analysis done for the Attica and Central Macedonia regions. [88] Evidence119 suggests that a core part of the training offer should be strong employment- related life skills (i.e., behavioral or non-cognitive skills). Life skills would help refugees behave and communicate in a way that makes best use of their technical training and promotes their personal and professional success. Training programs should ideally cover employment- related skills training combined with softer skills and complementary practical experience. Soft skills can be integrated at various stages of the refugees’ journey to the labor market120 – e.g. Greek culture can be delivered alongside language training; work ethics, job search and interview preparation as part of the vocational guidance offer, and a broader range of soft skills built in to vocational training courses. OAED will need to continually review its training offers as numbers per training specialty will be difficult to plan in advance. Not everyone from each batch of 200 beneficiaries will be referred to training, and it is hard to predict how many will opt for which specialty. In addition, some participants are likely to progress faster in language training than others and to start technical training sooner than others. If many participants opt for the same course, it will be necessary to run a few classes in the same specialty. Or if teacher availability and resources do not permit this, it may be necessary to keep waiting lists for certain courses, although waiting times could reduce motivation and lead to drop-outs. This underlines the importance of trying to place as many participants as possible in ATPs or jobs. It is likely that training participants will need a reasonable level of Greek to benefit from technical training. OAED could consider offering the opportunity for some who want to improve their skills further to continue with more advanced language training on a part-time basis in addition to technical training. If this is not possible, then ideally language teachers should be as creative as possible incorporating professional vocabulary from the chosen specialties of participants into their teaching. 3. Progression from training Close monitoring and follow-up of trainees is needed. Employment counselors should maintain contact with trainees at regular intervals while on theoretical training in case any job vacancies become available. On completion of theory training, the counselor should recall the beneficiary to update the IAP and issue a certification voucher if appropriate. If suitable vacancies are available once theoretical training has been completed, the employment counselor should refer the participant to an appropriate ATP or job. The process then follows the approach for ATP or job placement. However, if there are no vacancies, the individual can be referred to group sessions until one becomes available. The graph below provides an overview of the whole process. 119 International Youth Foundation, 2018. 120 Youth Employment Funders Group, 2017. [89] Figure 9 – Referral process OAED agrees on the importance of recognizing training via a formal certificate at the end of theoretical training. All trainees will receive at least a certificate of attendance from OAED, if not an independently assessed certificate of achievement.121 A certificate of attendance from an official Greek organization like OAED could be a motivating factor for refugees to undertake vocational training as most will lack any formal certificates or find it difficult to gain recognition for their existing qualifications. However, a certificate that follows an assessment process, and that testifies to competences acquired during training, is more valuable than an attendance certificate for refugees when presenting themselves as employable candidates to employers.122 In the Elefsina pilot ISO centers were commissioned to set tests for trainees and trainees were issued with vouchers to redeem at ISO centers to be assessed for their specialty. The certification cost was covered by OAED. A similar approach could be adopted in I.Ref.Job. If so, trainees would need to be issued with a voucher at the end of theory training – either by the OAED EK, or by the employment counselor – and directed to an appropriate independent testing center.123 In the case of a certificate of attendance, this could be issued to trainees by OAED. Training 121 International literature and experience related to the employability of refugees highlight the importance of certification, besides recognition, of skills. See, for example, ILO, 2020. 122 CEDEFOP, 2015. 123 The OAED team has had some discussions with certification bodies but there seems to be concerns around the educational level of the target group (lack of primary education) and their low Greek language level. The World Bank suggested that end-tests be set based on the competences outlined in the modular training programs – it is the assessment of the learning outcomes that are important rather than the prior educational qualifications of those on training programs. It is also recommended that OAED should share the modular programs with the certification bodies as soon as they are developed to ascertain whether they can design assessments based on them. [90] implementation will build on previous OAED experiences in the I.Ref.Sos Project as well as the Elefsina pilot (see Box 14). Box 14 – I.Ref.Sos and Elefsina pilot experiences with technical training I.Ref.Sos Project • The modular curriculum was produced for young refugees, age 16-24, but is flexible enough to be contextualized by the trainer and adapted for different groups of learners. • Participants were given tablets where all the educational material was uploaded. Both the young people and trainers used tablets and printed material during lessons. • Participants’ skills acquired were recorded in an individual E-portfolio. • Participants received a certificate of attendance at the end of the program. Elefsina pilot project • 10 modular curricula outlines were developed for skills in demand in the region based on the ERGANI data and the results of a qualitative survey in the local labor market. • No soft skills were included and KEKs developed the learning materials. • There was a practical component – an internship – placements were sourced by the KEKs. • Developing the curricula from scratch was quite a lengthy process but some might be suitable for this project with the addition of soft skills. • ISO centers in the locality prepared tests to certify the trainees’ courses. Table 14 - Pending Decisions and Recommendations for Technical Training Pending Decision Recommendation • A means of certifying the skills acquired in training by refugees should be Certification developed. One option would be to follow the Elefsina model and make arrangements with ISO centres. Training content • Soft skills should be an integral component of technical training.124 • Duration of theory training (set at 200 hours) should be a maximum rather than a mandatory length to allow for participants to move into work settings as soon as they are ready or places become available. • Payments should be made to participants regularly during training depending on attendance, rather than on completion of the theory training as is currently Implementation mooted. • Employment counselors should also have the flexibility to refer trainees on to workplace settings while on theory training to ensure momentum towards work is not lost. • Gender issues should be taken into consideration when planning classes. 124OAED has confirmed that there will be discrete modules in digital skills in the theoretical component of the training program. [91] 4. Pilot Management and Implementation The focus of section four is on the requirements to begin implementation of the Pilot. This section covers a series of topics related to implementation of the Pilot. It starts with a proposal for project management arrangements comprising three interrelated bodies: the project management group, with special attention to the role of the project manager; a project steering group; and a project advisory group. This is followed by a discussion of issues related to human resources and the continuing impact of COVID-19. Next, an outline of the pre-requisites for implementation covering the final design phase, preparatory activities, and outreach is presented. A preliminary timeline is presented covering these pre-requisites as well as the initial stages of pilot implementation. The section ends with a “nuts-and-bolts” listing of business processes for each activity and the corresponding IT requirements. Table 15 –Reading Guide of Section 4 Number Topic Page 4.1 Project Management Arrangements 92 0 97 HR Considerations 4.3 COVID-19 Considerations 98 4.4 Pre-requisites 99 4.5 Business processes and IT support considerations 103 Population and Employer Outreach 106 Eligibility, selection and enrollment 109 Counseling, profiling and referrals 114 118 Language training Group counseling: Job Search and Active Vocational Guidance 122 Job placement 125 Wage subsidies 129 Applied training program 136 Technical skills training 139 4.1. Project Management Arrangements Effective project management is key to every project as it contributes to achieving efficient and positive results. For the I.Ref.Job pilot, three groups are envisioned to support the design and implementation arrangements of the project. These groups are shown in Figure 10 and presented in detail below: [92] Figure 10- Groups to support the design and implementation of the Pilot 1. The project management group for I.Ref.Job includes several OAED staff who will work together on the project to achieve its objectives. The group will deal with day-to-day activities and monitor progress on implementation. It consists of the project manager, project management core staff, and other members who though not directly involved in management, carry out activities related to project implementation. More specifically: I. The project manager has a lead role. The manager’s job is to ensure that the project proceeds and finishes within a specified time frame and budget, while accomplishing its objectives and goals. The manager should also make sure that activities are given sufficient resources, while managing relationships with contributors and stakeholders. The successful delivery of a project is often directly correlated with effective coordination. The project manager is in the best position to coordinate the responsibilities of different staff involved in design and implementation, and the contributions of different units within OAED, in order to ensure that all pull in the same direction towards a common goal. The project manager should ensure that different parts of the Pilot are coordinated as the program activities are interconnected. Efficient coordination with external partners and agencies is also a key responsibility of the project manager. II. Project management core members are those who will work on both the design and the implementation of the Pilot. In the case of I.Ref.Job, team members are OAED’s in-house staff from various directorates and departments who will work for the Pilot on a part-time basis, as they are also charged with other tasks. The main directorates and departments who will be involved in the Pilot as well as their indicative general responsibilities are the following: a. Directorate for Special Social Groups: responsible for activities such as outreach to the intended target group, management of relations with other agencies dealing with refugees, and support for overall design. [93] b. Key Account Unit: responsible for outreach to and communication with employers and for securing job vacancies, wage subsidy positions and on-the-job training places. c. Directorate of Vocational Training for Adults: responsible for the design and implementation of the training programs i.e., language and technical training. d. Employment directorate: responsible for the design and implementation of job placements and the wage subsidy program. e. Vocational Guidance Directorate: responsible for the curriculum, organization and implementation of job search workshops and active vocational guidance seminars. f. International Relations Department: responsible for the submission of funding proposals to the managing authorities as well as for funding arrangements. III. Additional project members will support the core team by providing specialized support to specific implementation activities. Staff from the IT Department as well as the Communications Department will be responsible for making the necessary IT adaptations to support the Pilot and to design and disseminate the outreach material, respectively. The Heads of the KPAs that will participate in the Pilot are expected to operate as the implementation arms of I.Ref.Job. The following figure lists the indicative duties of the project management group members. Figure 11 - Indicative list of duties of the project management group member 2. The project steering group will help to steer the project from start to completion as well as to keep key stakeholders informed about its design and implementation. The main role of the group is to provide timely inputs and advice on project design and implementation as [94] well as recommendations about any changes required as it develops. Members of the steering group could also contribute to the assessment of the project. In the case of I.Ref.Job, the steering group will be composed of key entities who are either partners with OAED or have experience and expertise relevant to the project or whose clients or residents are the intended users of Pilot services. More specifically, the steering group may consist of representatives from: • the MoLSA; • the Ministry of Migration and Asylum (MoMA); • regional and municipal authorities of both pilot regions; and • the KEMs of both pilot regions. If frequent meetings of the steering group are not possible due to time and other constraints, it might be sufficient to meet at least 3 times: once at the planning stage of the project, mid-way through the project to monitor progress, and at the end of the Pilot, to assess the outcomes of the project. The Project Manager and an additional member of the core project management team will normally attend meetings of the Steering Group to report on progress and answer questions raised by members. 3. The project should be supported by an advisory group. The advisory group consists of several stakeholders who are dealing with the intended target group on a regular basis and can assist OAED to design and implement a successful pilot by providing inputs and recommendations. More specifically, the advisory group may consist of representatives from: • Development partners such as the UNHCR and the IOM; • 4-5 NGOs that provide services and implement programs similar to those of OAED for refugees; and • Employer associations and a small number of large employers involved in CSR activities. The advisory group could meet on a regular basis, for example, once every three months. As in the case of the steering group, the Project Manager and an additional member of the core project management team will normally attend meetings of the advisory group to lead the discussion, collect feedback and inputs and answer questions raised by members. Figure 12 shows the proposed institutional arrangements for the Pilot. [95] Figure 12 - Project management arrangements for the I.Ref.Job pilot program The proposed arrangements are informed by the experience of the Elefsina pilot, particularly the challenges of coordination and the key role of the KPA head (See Box 15). Box 15 - Project management in the Elefsina pilot A project manager was appointed at OAED Headquarters from the beginning to coordinate the design and implementation arrangements of the Pilot. Various departments were charged with specific responsibilities, for instance, the Training Directorate for training activities, the Directorate of Employment for wage subsidies etc. A process evaluation carried out by the World Bank team, indicated that the Elefsina pilot was managed more closely than previous OAED pilots with more emphasis on organization and planning. While the existence of a cross-directorate team was a plus compared to the single- person for earlier pilots, it also presented challenges. The participation of involved departments to deliver the Pilot varied. When there was a match between wider reforms and the Pilot such as profiling, support was high. Cooperation between HQ and the implementation arm of the Pilot i.e., the Elefsina KPA2, was good and contributed to its achievements. The project manager monitored progress primarily through monthly reports from the KPA2, supplemented by weekly e-mails on new vacancies, people profiled, and wage subsidy hires. The Training Department monitored that component mainly using data issued by Diofantos, OAED’s contractor for the training information system. Source: World Bank (2020): Process Evaluation Technical Report, Administrative Agreement of February 11, 2019 - EC Contract No SRSS/S2019/012. [96] 4.2. HR Considerations Human Resources are key for the implementation of the refugee pilot. Some important general considerations starting during the design phase and continuing during implementation are discussed below: Staffing Levels and Selection. A sufficient number of staff needs to be planned for and mobilized to handle the projected workload in a reasonable amount of time so as to minimize delays in gaining access to the program and benefiting from the interventions. Job counselors should be a priority since counseling is the key initial activity and serves as the gateway for subsequent referrals. Initial estimates should be made for these and other staff: personnel to handle outreach, eligibility determination, and enrollment; language and technical training instructors, moderators for group sessions, and employer counselors to identify job and wage subsidy vacancies and ATPs. For some activities, the suggested parameters in Section 3 can guide planning. OAED is anticipating the provision of interpretation services in several activities and will need to decide the hiring arrangements. The staff selected should have demonstrated an interest in or competence in inter- cultural communication and working with this target group. English language skills would also be a plus for some positions. OAED might consider incorporating a call for volunteers among existing staff in the selection process. Training and Development of Guidance. OAED has already started to arrange for inter-cultural training for the staff working on the Pilot.125 In addition, some activities differ from current OAED routine and practices, so staff need to be trained on the new interventions and tasks (e.g., counseling, ATPs, skills recognition, advocacy for this target group, etc.) and be given written operational guidance. Since the I.Ref.Job is a pilot, it may be worthwhile to organize informal sessions, for example, among job counselors periodically to learn about initial experiences and identify early on any required adaptations. Team Formation. At least two proposed activities call for the organization of teams comprised of staff from different OAED Directorates. Outreach activities (to employers and refugees) and the design of related communications materials should be the responsibility of a group comprised of staff from OAED’s communication department as well as staff involved in the refugee pilot. If OAED decides to include ATPs as an intervention, a working group drawn from the Employment and the Training Directorates needs to develop the design implementation rules and supporting guidance. Coordination Arrangements. Features of the Pilot and its approach require coordination arrangements. While the specifics are covered for each activity in the sections on business processes and related IT considerations, it is worth making the point more generally. For example, the work of both the Key Account Unit and employer counselors to identify job and wage subsidy vacancies will need to be coordinated. If the principle of proactive engagement with the refugee participants is to be carried out in practice, fluid communication needs to be ensured among key staff, such as job counselors, training instructors and employer counselors. Partnerships. Aside from ISO certification centers, for which OAED can draw on the experience of the Elefsina pilot, there are other areas in which partnerships may be beneficial for the Pilot. These partnerships should be identified and planned for accordingly. For example, NGOs working with 125 Until now, 120 job counsellors from different KPAs across Greece have undertaken a training program focused on intercultural counselling in order to get familiar with this target group and their needs. This training program took place in cooperation with the Kapodistrian University of Athens. [97] refugees would be valuable intermediaries for outreach activities, and specialized agencies could assist with language assessments or/and formal language certification. 4.3. COVID-19 Considerations COVID-19 is likely to be a factor influencing the implementation of the Pilot. While the more drastic national responses to the COVID-19 pandemic have eased recently, the situation remains volatile, making it likely that the virus will continue to be a factor to be taken into account in the design and implementation of the Pilot. OAED will need to decide the best delivery mode for pilot activities given the constraints imposed by COVID-19 at the time. Some aspects to be kept in mind are discussed below. Labor Market Changes. The ILO estimates that the crisis is affecting nearly 1.25 billion workers worldwide, with particular impact on retail trade, food services, hospitality and manufacturing, sectors where many refugees commonly find employment. On the other hand, other sectors are coming to the fore, E.g., increasing reliance on online retail has led to a rise in jobs in logistics, driving and distribution; commercial cleaning has also increased in importance with the pandemic. As such, it is essential that PES such as OAED have a good understanding of the movements in the local labor market so that they can reach out to employers in hiring sectors. In Greece, the skills diagnosis mechanism, operating since 2016 under the National Institute of Labour & Human Resources (NILHR), has recently published dashboards126 with the analysis of the impact of the COVID-19 crisis on the Greek labor market at national, regional and local levels. Online Methods. At least in the short-term, there may be fewer opportunities for face-to-face communications and networking events and increased reliance on online methods. This could affect a range of activities including employer outreach and counseling. Since COVID-19 hit, national PESs have updated their electronic platforms and introduced several changes to respond to the new needs and challenges posed by the pandemic generally by switching from direct contact with the public to technology-based solutions, maximizing the use of technology for various activities. OAED like many PESs updated its electronic platforms, and extended the range of services than can be performed remotely. Some of these initiatives, particularly interpretation services, will support the implementation of I.Ref.Job and allow for more flexibility in the way that services can be delivered to refugees127. Restrictions on gatherings. If COVID restrictions persist, restrictions on the possibility to organize large gatherings should be taken into account during outreach and in the organization of group activities within the Pilot, i.e., group counseling and training. Any restrictions would affect the size of classes and possibly location. In the case of training, given the language constraints and mixed skills profile of most participants, OAED will most likely want to keep classroom sizes relatively small in any case: OAED’s funding proposal has estimated only 20 students per class. 126https://lmd.eiead.gr/covid19/ 127Since March 2020, OAED is providing an extensive set of digital services not only to the unemployed but also to employers, students and teachers in OAED facilities. Services include, among others, registration with the agency, submission of applications, and appointments with job and employer counselors. In December 2020, OAED developed a new online platform “myOAEDlive” for organizing and delivering online appointments with OAED staff. In addition to responding to its clients’ needs arising from COVID -19 restrictions, myOAEDlive aims to facilitate access to the agency for citizens who either do not know Greek or belong to vulnerable social groups such as the unemployed with disabilities. The platform supports interpretation services in many languages, including those of refugees and the Greek Sign Language. Finally, OAED has recently launched a user-friendly mobile app for mobile phones and tablets and updated its website. [98] Challenges for Target Group. The fact that OAED now delivers almost all of its services online, including remote learning, will be an advantage in terms of flexibility and accommodation of COVID-19 restrictions. Nevertheless, OAED will need to ensure that refugees have access to internet as well as the equipment and know-how required in order to benefit from online services to the fullest. In order to facilitate language training in the I.Ref.Sos project, tablets were purchased for participants. The development of a mobile phone app would make online learning more accessible as most refugees have internet connectivity, but some participants may need training to use it. In addition, the experience of other countries in language training for refugees is that the switch to on- line delivery proved most difficult for low-educated immigrants, particularly at the early stages, delaying progress in both language learning and broader social integration and even caused some to abandon study. This experience suggests that if a virtual modality is necessary to deliver services, ideally a hybrid model should be adopted, combining remote with in-person sessions, reserved for those refugees with stronger language skills, and incorporating written exercises (building on parts of the skills recognition tool perhaps in the case of counseling).128 According to the European PES Network, PES have responded to the challenges of COVID-19 with new training formats and targeted training programs to meet the changing labor market129. OAED already has experience with new modes of delivering training and recording achievement. Modular training within the I.Ref.Sos project was enabled for use on tablets and the skills acquired by participants were recorded in an individual E-portfolio. If physical attendance is not possible, then online classes might be an alternative, provided trainees have the equipment and skills to access the training and assuming that training content can be made available online, issues mentioned above. A blended approach with some classroom attendance and some remote learning is another option. Teachers will need to conduct an appraisal of COVID restrictions and the resources and skills of trainees before deciding on which delivery method is most appropriate. Digital skills also contribute to the inclusion of citizens with more public services becoming digitized as a result of the pandemic. The modular nature of the training planned for I.Ref.Job enables modules in digital literacy to be developed both stand-alone and as part of larger training programs to reflect and respond to the changing way that jobseekers access services and the changing demands of jobs. 4.4. Pre-requisites A set of tasks needs to be carried out prior to launch of the Pilot in order for it to start from a solid foundation. Following on the description of pilot activities in the previous section, the actions that need to be completed between now and the start of the Pilot can be organized into 3 general areas: final design phase; preparatory activities; and outreach. The specific actions are outlined below and summarized in the accompanying timeline (See Figure 13). The final design phase covers key procedures and processes still to be defined for the Pilot. The institutional and implementation arrangements as proposed at the beginning of this section need to be confirmed and adjusted as necessary to OAED requirements. Procedures and processes for all activities need to be determined: pending decisions and recommendations were included in Section 3. These include a range of areas starting from the process for posting job vacancies, ATPs and wage subsidies; procedures to be used by OAED staff to determine eligibility and enroll participants (including need for additional information and the rules for assigning participants); the referral criteria and procedures to be used by counselors; to the design and implementation 128 OECD, 2020. 129 European Commission, 2020. [99] arrangements for all referrals, including certification for training. Both delivery and payment modalities for language training need to be defined. Specifically for technical training, training specialties need to be chosen following consultations with employers. If ATP is to be offered as a referral, it needs to be designed. Participant enrollment procedures for all referrals should be set out. It might be helpful for OAED staff to consult with experienced stakeholders, e.g., GCR, to learn how they handle screening, pre-employment preparation and post-job placement monitoring to inform these decisions. Delays in finalizing the design can have adverse consequences. While recognizing that some adjustments may be needed during the early stages of implementation, the lesson from the Elefsina pilot is that delays in finalizing key aspects of design can cause reputational risks for OAED and delay deployment of critical IT support. The outline of business processes and corresponding IT considerations, which follows this section, should be reviewed in light of the outcome of the final design phase and adjusted as needed. In order to prepare for outreach both to the target population and employers, the communication channels to be used, the frequency of contact, and the involvement of other stakeholders need to be decided. Once the Pilot design is finalized, several preparatory activities will be critical to ensure that all those involved in implementation have the needed support to perform their roles. In the case of outreach, drawing from the 2 outputs already produced130, the outreach strategy and implementation plan should be finalized, followed by the development of messages and promotional materials both for employers and the target group. Arrangements should be made with any intermediaries for outreach. The foreigners’ database in OPS should be cleaned up in order to give a good foundation for outreach and the organization of eligibility determination and enrollment. A key preparatory activity relates to the material and guidance to be used in the Pilot. For several components, material, including specific instruments, as well as guidance needs to be prepared beforehand. This includes information for employer counselors and employers; guidance for OAED staff involved in participant selection and enrollment; and material for information sessions. Job counselors will need guidance for all sessions, including on the skills recognition tool and the language check-list, information on referrals and the criteria to be used. In the case of language training, supporting material is needed for language screening and the classes. For job search group counseling and AVG, although material exists, it should be revised and adjusted as necessary for the refugee target group. Once the training specialties are selected the courses will need to be developed (training modules and learning materials). The tri-partite agreement for ATPs needs to be drafted. Given the new target group, training prior to launch of the Pilot will be important. While OAED is experienced with most of the activities under the Pilot, some such as language and possibly ATPs are new, and the target group will also be new for most of the staff. In addition, some procedures such as counseling and referrals are specific to the Pilot. All staff likely to deal directly with the target group in some capacity will need training in order to understand the new guidance and supporting material. This includes staff handling selection and enrollment, counselors, moderators of group sessions, and training instructors. Training is also a good opportunity to seek feedback and make adjustments before pilot launch. The M&E framework should be finalized before pilot launch in order to ensure that the data needed to monitor progress will be available on C.f. Employer Engagement Strategy and Outreach Strategy and Information Material to Support Campaigns 130 Aiming to Promote Registration in the Pilot with OAED, both under output 1.B. [100] a timely basis. Lastly, it is critical for the functioning of all pilot activities for the information management infrastructure to be prepared and in place beforehand. [101] Figure 13 - Timeline with key milestones [102] 4.5. Business processes and IT support considerations This section tries to address the question of “who does what” and in which order, followed by a description of the necessary Information Technology (IT) support. Business processes is the compilation of the day-to-day structured and interrelated procedures and actions that will be conducted to implement the Pilot. Each activity sub-section, begins with a visual summary, followed by a table that describes the processes to be conducted, as well as the person or unit responsible for conducting them131. Most business processes would be supported by the OAED information systems(s). The definition of these processes is a prerequisite for defining the user requirements for the IT support, which are presented at the end of each activity subsection. This information should be considered as preliminary, to be reviewed and revised once OAED finalizes Pilot design and implementation arrangements as discussed in Section 4.4. In order to set the context for the IT support for specific activities, the section starts with a brief description of OAED information management infrastructure. Overall, as the starting point, in terms of information technology, OAED already has a very mature information management infrastructure. OAED has in place several IT tools and mechanisms that are capable of supporting all the business processes throughout the project. For example: • OAED OPS and OAED’s subsystem of e-services compose the prominent IT infrastructure underpinning all the client servicing business processes of OAED. OAED OPS is very rich in functions and has a high level of maturity from an implementation point of view, while at the same time it is fully integrated into OEAD's operations (e.g., basic registration and online profiling of the unemployed, counseling, management of individual action plans - IAPs, processing of unemployment benefits, ALMPs run by OAED, electronic submission of applications forms and CVs for participation in both active and passive labor market programs, electronic update of the unemployment card, etc.). The OPS, the subsystem of e- services and the portal also provide tailored services for the unemployed and employers. They make use of both the database and data/information received through interoperability with other systems, as they have connections to external systems (ERGANI, SSI/GMI, GSIS132, and in the future EFKA once the EFKA system is fully implemented) allowing the (semi)automatic update of employment status and other information. • The Demand-Responsive Training Programs (DRTP) MIS acts as a management tool for program administration, operation, and monitoring. It was developed to facilitate the Elefsina pilot training programs and is relevant to the implementation of the different operating processes of the demand-responsive training programs. • A new Web Portal133 has been deployed. It was redesigned to be responsive (easily accessible through multiples devices, e.g., tablets, mobile phones, etc.) and more user- friendly (the navigation mechanisms of the Portal have changed, and most of the 131 While some activities (trainings, for example) involve payments to participants, since the technical assistance focused on design parameters, rather than payment procedures for which OAED has well- established practices, the related business processes are not detailed in the relevant sub-sections. IT considerations do incorporate those requirements. 132 General Secretariat for Information Systems of the Ministry of Economy and Finance, develops and operates large-scale Information Systems, mainly tax systems such as TAXIS and TAXISnet, ICIS (Greek Customs) and the payroll and pension systems. 133 https://www.oaed.gr/ [103] information and services can be reached through the advanced search box at the right of every page in one click). • OAED has active profiles in Social Media, such as Facebook134, Twitter135, Instagram136, LinkedIn137, and YouTube138. • A mobile app for both Android and iOS is available for the clients of OAED to install. • A Customer Relationship Management (CRM) System has been developed under the framework of the reengineering of OAED and is expected to be operational. The CRM facilitates communication and provision of personalized services to the unemployed and employers by using the relevant registries maintained by OAED139. All these information systems and IT tools can be customized, further extended, and adjusted to the needs of the project. OAED may streamline several procedures and, in parallel, enhance all the technology-related activities. This becomes even more important due to the restrictions imposed by COVID-19. Detailed options regarding the customization and development needed in the information management infrastructure of OAED are discussed in a separate document as Appendix I - Options for the gradual development of the DRTP MIS, in order of priority. Table 16 below provides a high-level mapping of the information management infrastructure of OAED for the project’s activities. Table 16 - Involvement of the information management infrastructure of OAED in the business processes Portal/ Social Mobile myOAED e- DRTP OPS CRM Mini-site Media app live services MIS Population outreach √ √ √ √ Employer Outreach √ √ √ Eligibility, selection and √ √ enrollment Counseling, Profiling and √ √ referrals 134 https://www.facebook.com/oaed.gr 135 https://twitter.com/gtoaed 136 https://www.instagram.com/oaed_officialpage/?hl=el 137 https://www.linkedin.com/company/oaed/ 138 https://www.youtube.com/channel/UCjLHDERE1Xidf59zTKdu0tA 139 The employers’ registry is enriched through interoperability with data/information drawn from various systems (AADE registry - Independent Authority for Public Revenue, OPS-OAED, ERGANI, OPS-SEPE - Federation of Hellenic Information Technology & Communications Enterprises, OAED’s Economic Management, etc.) [104] Portal/ Social Mobile myOAED e- DRTP OPS CRM Mini-site Media app live services MIS Group counseling and active √ √ √ vocational guidance Language training √ √ Job √ √ √ √ √ √ Placement Wage Subsidies √ √ √ √ √ √ Applied Training √ √ √ √ √ √ √ Program Technical √ √ √ √ √ √ Training [105] Population and Employer Outreach In the case of outreach activities, in addition to the business processes outlined below, consolidated for both population and employers, OAED’s IT system will support technology-based communication. Thus, the IT considerations cover both aspects. The figure below visually summarizes the business process involved in these activities. Figure 14 – Summary of Business process for Population and Employer Outreach Table 17 - Business processes for Population and Employer Outreach Process Main responsible/Description OAED HQ, employer counselors, KPA2s Record outreach activities Keep track of actions and dates in CRM or in case it is not ready, use excel sheets OAED HQ and KPA staff that will be involved in the Pilot Check new refugee Information on new refugee registrations into OAED’s registry are registrations on a regular transmitted to the refuges pilot managers to inform the Pilot design details. basis Population outreach As part of the outreach and communication strategy of the project, the tools mentioned above can be customized and adjusted to the needs of the project. They may enhance the effectiveness of all the technology-related outreach activities. Some of the customizations that could be considered for implementation are the following: [106] • Web Presence: o OAED’s Web Portal: Despite the new features supported in the current version of OAED’s Web Portal (responsive, user-friendly, enhanced navigation, etc.), it only provides Greek content for the clients. It is essential to make the content of the Portal multilingual in order to communicate information to the target population. The content should be available in more languages, including English, as well as in the primary languages of the refugees if possible. In addition, it would be crucial to make this information available in a distinct way at a central point of the homepage (e.g., an information box visually distinct at the top of the homepage or an advanced search box like the one currently available), as well as under a dedicated section, to avoid losing visitors. An online self-service window could complement all this information, including a ‘check-my eligibility’ functionality for the target population or even a chatbot140. Finally, all the refugee-related content should be automatically published to all the Social Media profiles of OAED. o Project’s Mini-site141: Α mini-site focused on the refugees could be developed to avoid mixing the content of various beneficiary target groups into the same Web Site (such a redesign requires significant effort to be successful). An approach like that would be favorable since all the refugee-related information could be organized under a focused Webspace. The mini-site may be extended further in the future and support all the refugee-related information and services provided by OAED. Most importantly, more refugees would be likely to use such a platform since it will provide content and services tailored to their needs. In this case, too, the mini-site should interoperate with OAED’s Social Media profiles. • Social Media: Since refugees are usually familiar with Social Media and use them regularly, all OAED’s Social Media accounts should promote information related to the project. Before that, the Communication Department of OAED should design a coordinated and effective Social Media campaign. In this case, too, for Social Media that do not support several information delivery channels142, it would be worth considering creating new accounts focusing on promoting the project material. Finally, it would be preferable that actual refugees be engaged in all the digital material (videos, infographics, etc.) to be produced for the campaign (e.g., the YouTube channel could promote videos with actual refugee stories, or videos with beneficiaries explaining the key features of the program, the application process and the eligibility criteria). • Mobile App: OAED’s existing mobile application could be further developed to support information provision and services regarding the I.Ref.Job, since most of the potential beneficiaries, are using mobile phones extensively and have an Internet connection. The mobile app may be extended to support a ‘check-my eligibility’ functionality or other 140 At the most basic level, a chatbot is a computer program that simulates and processes human conversation (either written or spoken), allowing humans to interact with digital devices as if they were communicating with a real person. Chatbots can be as simple as rudimentary programs that answer a simple query with a single-line response, or as sophisticated as digital assistants that learn and evolve to deliver increasing levels of personalization as they gather and process information. 141 A mini-site is a particular kind of website that has a smaller footprint on the Internet and that exists for the specific purpose of marketing an individual product or service, or for achieving a particular goal using a small number of customized Web pages. A mini-site may also be called a “microsite” or a “sitelet.” 142 Youtube has the ability to promote videos through different channels under the same account, whereas, Facebook does not support such a functionality. [107] project-related features (e.g., appointment management, push notifications on enrollment, obligations stemming from program participation, payments, etc.). • OAED’s CRM System: Communications and outreach activities can be managed and tracked by the newly developed CRM System. Calls, emails and/or standardized texts to refugees registered with OAED urging them to come to OAED and update their refugee status should be recorded in the CRM, provided that it is operational. This would enable tracking actions and dates and avoiding confusion and duplication (if the CRM is not ready, Microsoft Excel sheets can be used instead). Finally, if OAED follows a “providing services in the clients’ community” or a “mobile PES for geographically segregated communities” approach, the organization of OAED teams and tracking of results and performance may be facilitated by this system. Employer outreach As mentioned above, OAED already has several IT tools and mechanisms in place that are capable of supporting the outreach activities throughout the project: A new Web Portal143; active profiles in social media; and a Customer Relationship Management (CRM) System. As part of the employer outreach and communication strategy, all these tools can be customized and adjusted to the needs of the project. They may enhance the effectiveness of all the technology-related outreach activities. Some of the customizations that could be considered for implementation are the following: ▪ Web Presence: o OAED’s Web Portal: The Portal should advertise the program and be a repository for useful and accessible information for employers in a clearly signposted section, especially for them. This section may be populated with information on the Pilot, a rationale for hiring refugees, and practical information to join the scheme. It would be essential to advertise this information distinctly at a central area of the homepage (e.g., an information box or banner visually distinct at the top of the homepage, an extra option in the advanced search box currently available at the right of every webpage, and/or an image in the homepage slideshow area), to get more attention from the employers. Finally, all the new content in this section should be automatically promoted to all the Social Media profiles of OAED. o Project’s Mini-site: If a mini-site focused on the refugees will be developed by OAED as part of the population outreach activities, all the employer-related information should be announced there, too. In this case, too, the mini-site should interoperate with OAED’s Social Media profiles. ▪ Social Media: All OAED’s Social Media accounts should promote information related to the employers' engagement with the project. Before that, the Communication Department of OAED should design a coordinated and effective Social Media campaign targeting employers by utilizing Social Media capabilities to target users based on their specific characteristics (e.g., demographics, interests, location, etc.). ▪ OAED’s CRM System: The newly developed CRM System can manage all the communications and outreach activities. Calls, emails and/or standardized texts to employers should be recorded in the CRM, provided that it is operational. This would enable 143 https://www.oaed.gr/ [108] tracking actions and dates and avoiding confusion and duplication (if the CRM is not operational, Microsoft Excel sheets can be used instead). Eligibility, selection and enrollment The figure below visually summarizes the business processes for these activities. [109] Figure 15 – Summary of Business process for Eligibility, selection and enrollment [110] Table 18 - Business processes for Eligibility, selection and enrollment Process Main responsible/Description Eligibility OAED KPA Upon registration, OAED collects a standard set of information. Collection of information Additional information might be needed for this pilot i.e., refugee status (update status for already registered), contact details, spoken languages, formal language certificates, relationship with NGOs etc. OAED KPA or OAED HQ depending on how expression of interest is declared Preparation of list of Administrative staff prepares a list with the applicants. This list includes all applicants those who express interest in participating in the Pilot (following outreach). Some of them might already be registered with OAED, some of them might be new registrants. OAED KPA Verification of eligibility Administrative staff verifies that the person who expresses interest for requirements: age participation meets the age eligibility condition via AMKA or PAAYPA or any other valid official document (e.g., Residence Permit) and marks that in the list of applicants. OAED KPA Verification of eligibility requirements: language Administrative staff verifies that the person who expresses interest in participating in the Pilot meets the language eligibility condition (if there is a formal language certificate) and marks that in the list of applicants. OAED KPA Compilation of initial list of eligible applicants Staff compiles an initial list with those who meet both eligibility requirements (by applying a filter in the initial list). OAED KPA Notification of those who don’t have a language OAED notifies those who don’t have a language certificate about how the certificate for the language language screening procedure takes place (phone call, SMS, email). If screening process applicants are coming from a specific organization, notify the host organization. Refugee Scheduling appointment for language screening Refugee schedules appointment for language screening. Language screening and OAED KPA [111] assessment The selected assessor performs the language screening. Provided that the person’s ability to communicate sufficiently in Greek is confirmed, the person joins the list of eligible participants. OAED KPA Compilation of final list of eligible applicants Staff compiles the final list with those who meet both eligibility requirements (by applying the relevant filter). OAED KPA Provision of information Individuals who are found not eligible for the Pilot (e.g., with insufficient to those found not eligible Greek) are directed to free language classes held elsewhere or to for the Pilot KEMs/community centers that have access to such information. They are also invited to use OAED’s services, including the Pilot services, once they are proficient in Greek. Selection OAED KPA The selection process will be applied to the final list of eligible applicants. The process varies depending on the selection method that will be chosen. • Under option i- first comes first served: OAED selects the first 200 applicants who meet both eligibility conditions from the final list for each Implementation of the phase. The list is compiled from scratch in every phase; chosen selection • Under option ii- first comes first served with waiting list: same as above but process144 keep a waiting list with the additional eligible applicants to be selected in the next phase; • Under option iii-random assignment apply rule for assigning participants to each of two groups. Under all three options, implementation of the selection process, would result in the creation of 2 lists: one with the Pilot participants and one with the non-pilot participants. OAED KPA Provision of information Individuals who are not selected to participate in the Pilot are informed about to those not selected for OAED’s regular set of services given that these people are registered OAED’s regular services jobseekers and have some basic Greek (eligibility for the Pilot has been confirmed). OAED KPA Notification of selected OAED notifies registrants – selected and non-selected - (individually or/and and non-selected via host organizations) on selection results and next steps. Selected applicants individuals are also informed about the information session (location, date, time etc.). Enrollment Confirmation of OAED KPA 144 Once the selection process is chosen, the associated business processes should be specified further. [112] participation for selected applicants OAED confirms willingness, interest and availability of selected beneficiaries to participate in the Pilot. OAED HQ Carry out group information session(s) Group information session(s) take place for the selected individuals. Confirmation of Hosts of the information session(s) enrollment, gathering and recording of At the end of information session, each participant receives first appointment any additional information with counselor (date, time, place) in written format. Enrollment in the Pilot is and confirmed after the delivery of onboarding information and upon the provision of first scheduling of the first counseling session. The hosts of the onboarding also counseling appointments gather any additional information required (e.g., IBAN, photo, etc.). OAED OPS, being the prominent IT infrastructure underpinning all the client servicing business processes of OAED, should: • Facilitate the recording of information of applicants upon registration (everyone who expresses interest). To this end already existing fields in OPS should be used (or adjusted) and more fields should be added in case needed. • Facilitate the uploading of required supporting documents from interested applicants through the provision of automation and recommendations. • Enable OAED staff to screen the OPS database and create the lists of applicants (expressions of interest for participation in the Pilot): those who meet the eligibility requirements (age and language), those who are selected, and those who are enrolled. Also, OPS should provide export (minimum: Excel and PDF format) and print functions regarding these lists145. • Facilitate the recording of information regarding the eligibility of applicants (including the outcome of the language screening and assessment): the willingness, interest, and availability of beneficiaries chosen to participate in the programs, as well as the recording of additional beneficiary information that is required for the program operations (e.g., photo, beneficiary’s bank account, etc.). In parallel, all referrals should be recorded in the system. • Automate the selection method chosen to the final list of applicants. If the third-choice proceeds (i.e., random assignment), a random number generator should be deployed146. If the second option proceeds, a waiting list should be managed for future use. 145 Suppose OPS is not extended to support such functionality. In that case, the information management regarding these lists may be realized using spreadsheets (e.g., Excel files) hosted in a cloud service provider (e.g., Microsoft OneDrive, Google Drive, etc.). For such a scenario, personal data protection protocols, including GDPR, should be taken into account. The lists in the spreadsheets should support closed-form boxes for marking eligibility (age, certificate, passing screening), as well as a few open fields (i.e. if screening box is not marked, then OAED should be able to enter actions, for example, referral to services outside OAED for language courses). 146 A spreadsheet’s random number generator may also be used to assign applicants on a random basis. [113] • Provide facility for the communication management needed for all the selected and non- selected applicants, as well as the beneficiaries. This includes the ability to send SMSs, and emails, as well as record all the communication between the OAED staff and the target group based on other means (e.g., phone, email, in-person, etc.)147. Counseling, profiling and referrals The figure below visually summarizes the business processes involved in these activities. 147An alternative would be using the newly developed OAED Customer Relationship Management (CRM) system to facilitate communication management, provided that it is operational. [114] Figure 16 – Summary of Business process for Counseling, profiling and referrals Table 19 - Business processes for Counseling, profiling and referrals Process Main responsible/Description OAED KPA2 Scheduling of Appointments Appointments are scheduled for employment counselors in line with workload considerations and program parameters. Scheduling of First OAED KPA2 [115] Appointment between Refugee schedules/receives the first appointment with a counselor during the the Refugee and group information session. Employment Counselor In case he/she does not attend or cannot make an appointment at the information session, refugee can make an appointment on-line. OAED KPA2 Counseling Session Arrangements Counselor receives daily schedule for the week together with basic information for each refugee with whom they are meeting OAED KPA2 Interpretation for Counseling Session Interpretation services are scheduled for each appointment to match needs of refugee (language) and taking into account the work load of interpreter. Counseling Sessions Employment Counselor General Employment Counselor carries out each session documenting information and results in the OAED database, the skills recognition tool and the IAP. Provides information on job vacancies. Employment Counselor Comments on Language Employment counselor records any comments on language ability based on the Ability interaction with the refugee during the first session according to standard check-list. Employment Counselor Job Vacancies Information Employment counselors access up to date information on job vacancies to provide to refugees Employment Counselor Job Placement information access Counselors access up-to-date information on recent job placements of refugees and shares with all clients. Referrals to Programs148 OAED HQ/KPA2 General Information on Referral Options Counselor can access up-to-date information on referral options including description, schedule, location, prerequisites, and enrollment procedures. Referral Employment Counselor 148Details on procedures for referrals other than group counseling and AVG are included in the respective sub-sections [116] Based on results of counseling sessions and following the criteria and guidelines set, counselor recommends refugee for a job placement interview if job-ready or suggests a referral, discusses/agrees with refugee, records in IAP, and then takes next step as defined for the referral. Provides information on referral to refugee. Agrees with refugee on next step, including scheduling of follow-up counseling session mandatory in the case of referral to Active Vocational Guidance. Post-referral Activities Employment Counselor/Refugee Scheduling of post- Unless the referral is for a job placement, counselor and refugee schedule a post- referral counseling referral session in order to update the IAP and decide on next steps at the last session counseling session before the referral starts. Refugee should be able to reschedule the appointment in case necessary. Employment Counselor Monitoring of Referrals Counselor accesses the information necessary to follow-up on referrals including if participant has completed registration, attendance, and performance and if there are issues which require the counselor’s intervention. Employment Counselor Ad-Hoc Follow-up of If needed, according to the guidelines set, counselor follows up with refugee on Referrals phone or suggesting an in person meeting in case there are issues encountered during the referral or to inform about a suitable job vacancy. Employment Counselor Post-Referral Counseling Session Together with the refugee the counselor updates the IAP and e-portfolio, and agrees on next step and records in IAP. For Counseling, Profiling and Referrals, OAED OPS should: • Support the appointments management between the counselor and the refugee. In the case of virtual meetings, the system should facilitate the appointments through myOAEDlive (in this case, the system should prioritize the meetings with the same counselor). The system should also cater for notifications to the beneficiaries (SMS and email) regarding the appointment details. • Facilitate the recording of important information related to the counseling meetings and the profiling of the beneficiaries. The system should accommodate the update of the beneficiary's background and contact information, as well as the migration status. The system should also provide a facility for recording the characteristics of the refugee (socio- demographic, language skills, education, prior experience, occupational interests, motivation, etc.) based on a 'checklist' of topics149 to ensure that the necessary content is covered. 149The topics include results of previous counseling sessions, language, obstacles and barriers, education and training, professional experience, soft (horizontal) skills, digital skills, and driving licenses and other skills. [117] • Provide the counselors with appropriate reminders so that no more than two weeks lapse between appointments with the beneficiaries. • Facilitate the recording of any comments related to language guided by a simple checklist, as well as the referral process to language training. The system should enable OAED staff to screen the OPS database and create the list of beneficiaries referred to language training. Also, OPS should provide export (minimum: Excel and PDF format) and print functions regarding these lists. • Support the creation and update of Individual Action Plans (IAPs) for the beneficiaries. The IAPs should record all referrals and be updated upon completion of an intervention or based on the beneficiary’s progress. Through the IAP, the counselor should have access to information on the outcomes of referrals (language training, group workshops, technical training, and internships) to inform the post-referral counseling sessions. This information also includes if the participant has completed registration, attendance, and performance and if there are issues that require the counselor’s intervention. • Support the referral process to services, such as Group counseling sessions (active vocational guidance, soft skills training, Greek culture, Job search, interview preparation, etc.); Interviews for job placement; Applied training program (e.g., internships); and technical skills training/training on digital skills. The system should enable OAED staff to screen the OPS database and create lists of beneficiaries referred to the available services. Also, OPS should provide export (minimum: Excel and PDF format) and print functions regarding these lists150. • Support the generation (and export in pdf or other formats) of the beneficiary's CV based on the information recorded during the counseling sessions151. • Facilitate all the post-referral counseling activities, including the provision of reminders to the counselors, to check in with the refugees every 20-30 days by phone for participants who encounter difficulties securing job placement and arranging another session after 2-3 months to re-examine and adjust the IAP. In addition, for participants referred to vocational training or internships, the system should notify the counselors to arrange a follow-up appointment after the Active Vocational Guidance sessions have finished in order to make the subsequent referral. • Inform the counselors of the daily schedule for the week together with basic information for each refugee with whom they are meeting. • Provide access to the counselor for up-to-date information on recent job placements of refugees, and information on referral options, including description, schedule, location, prerequisites, and enrollment procedures. Language training The figure below visually summarizes the business processes involved in this activity. 150 Suppose OPS is not extended to support such functionality. In that case, the information management regarding these lists may be realized using spreadsheets (e.g., Excel files) hosted in a cloud service provider (e.g., Microsoft OneDrive, Google Drive, etc.). For such a scenario, personal data protection protocols, including GDPR, should be taken into account. 151 The I.Ref.Sos E-portfolio may be used as an alternative for the CV generation functionality. [118] Figure 17 – Summary of Business process for Language training Table 20 - Business processes for Language training Process Main responsible/Description OAED KPA Once the need for language training has been established beneficiaries will be issued a voucher for language training and referred to OAED’s training center (KEK). Refer to OAED KEK Counselors should explain to the beneficiary the training allowance, the training options (full/part-time) and any childcare support available. It should also be explained that they can still look for/be referred to vacancies or ATPs while on language training depending on their progress with language learning and availability of vacancies and ATPs. OAED KEK Assess competence and literacy level of Language expert will conduct assessment to confirm level of language competence those referred for and literacy level and determine the nature of training required. This can take place training at OAED KEK prior to individuals starting training, or an external provider could do the assessment and then the individual referred back for appropriate training. Language training OAED KEK [119] Language training will be conducted within the OAED KEK with the option to leave full-time training and move to part-time options, or leave altogether should a job or ATP arise. OAED KEK/Employment counselor EITHER: at the end of language training, language instructors test the beneficiaries’ knowledge acquired through the course. Upon the successful completion of the test, OAED issues a certificate of attendance. Assessment and OR: if independent assessment and certification is arranged, at the end of training, Certification OAED language teachers or counselors issue a voucher to the trainee for independent assessment and certification. Based on learning outcomes, language instructors could identify those candidates with the best chance of passing the tests and issue vouchers to them. The cost of the certification exam will be covered by OAED. OAED KPA Monitoring during The employment counselor maintains contact with the trainee at regular intervals to the program refer to any job vacancies, ATPs, vocational training programs that are suitable. If necessary, arrangements should be made for language training to continue on a part-time basis. OAED KPA Post-training action The employment counselor recalls the beneficiary to update IAP and explore next steps. The skills acquired in the program and the outcome of the certification exam will be recorded in e-portfolio or/and OPS. To facilitate the activities involved in language training, both OPS and other existing OAED systems (such as the DRTP MIS and the CRM system) may be further customized and extended to support the respective business processes effectively. These systems should: • Support the referral process to language training (OPS) by enabling the employment counselors to issue and print a training voucher for the beneficiaries (DRTP MIS). If DRTP MIS is used to administer the language training, the respective information should be acquired from OPS using existing or new interoperability mechanisms. • Provide the necessary functionality for the OAED’s training center (KEK) to be able to activate a beneficiary’s language training voucher (DRTP MIS). • Facilitate the OAED KEKs in the organization of language training, including the time plan, the composition of the classes, and the assignment of instructors per class (DRTP MIS). • Notify the language training participants by e-mail and/or SMS with the logistical information. The system should also cater for a follow-up reminder (OPS, DRTP MIS, or CRM). • Support the KEK’s language experts in recording the assessment of competence and literacy level of those referred for training and determine the nature of training required (DRTP MIS). [120] • Support the instructors in recording a short commentary on participation, identifying any issues for follow-up by the employment counselor (DRTP MIS). • Support the instructors in recording attendance at each class. In case of issues (for example, absence), the system should also facilitate the instructors in informing the employment counselor. Also, the instructors should have the ability to record the participant’s attendance performance (DRTP MIS)152. • Inform the instructors of the daily schedule for the week together with basic information for each refugee participating in the classes (DRTP MIS). • Facilitate the administration of the payment and reconciliation processes153 (OPS and DRTP MIS). The whole process should take into account the number of absences or other agreement breaches that might affect the receipt of the allowance (DRTP MIS). • Support the employment counselors in providing a certificate of attendance to the beneficiaries upon successfully completing the language training. The certificates of attendance should be available in electronic (pdf format) and printed forms (OPS, or DRTP MIS). Suppose independent assessment and certification are arranged at the end of the training. In that case, OAED language teachers or counselors should be facilitated by the system/s (OPS, and/or DRTP MIS) to issue a voucher to the trainee for independent assessment and certification. • Support the employment counselors in recording the skills acquired in the program by the beneficiary and the outcome of the certification exam (OPS). Regarding the ability of the OAED KEKs to deliver online, remote learning the following options may be considered for adoption: • The use of well-known video conferencing solutions (e.g., Microsoft Teams, Cisco Webex, Google Meet, Zoom, etc.)154 to support the online training process. • The deployment of an open-source Learning Management System (LMS)155 to complement the online training process by hosting the language training material and providing online access to the material for the beneficiaries. • As a more advanced scenario, a mobile phone app customized to the refugees' needs can be developed. This should make online learning much more accessible as most refugees have internet connectivity, but some participants, especially older ones, may need some training to benefit from it. 152 A more advanced version of this functionality would involve the update of the beneficiary IAP through the realization of interoperability between OPS and the DRTP MIS. 153 The training allowance for each beneficiary is currently planned for 2-euros per hour (240 euro per month). 154 All these solutions have mature mobile versions. 155 A very good example of such a solution is Moodle. [121] Group counseling: Job Search and Active Vocational Guidance The figure visually summarizes the business processes involved in this activity. Figure 18 – Summary of Business process for Group counseling Table 21 - Business processes for Group counseling Process Main responsible/Description Employment counselor Identify participants interested in Job Counselor refers participant to job search group counseling and/or AVG after any Search Counseling and counseling session according to interest as well as criteria (recommended prior to AVG job or ATP interview or for those needing reinforcement of soft skills, with or without work experience in Greece, interested in training). Organization of session [122] Employment Counselor and OAED HQ List participants to be invited to session Counselor sends the names of those interested to OAED HQ. OAED HQ/KPA2 Schedule Course Once there is a sufficient number, a date, location and the moderators for the session are determined. OAED KPA2 Notify Participants Participants would be notified by email or phone and/or SMS at least one week before the date of the workshop with the logistical information. Send follow-up reminder. Participant Participant Confirmation Participant sends an e-mail using a standard form (or phones) to KPA2 or to counselor confirming their participation. Employment Counselor Follow-up KPA2 informs counselor of any invitee who has not responded for follow-up. Counselor then contacts invitee. Delivery of Session Session Moderator Record Attendance Session Moderator records attendance at each session Session Moderator Follow-up (moderator) In case of issues (for example, absence), session moderator informs employment counselor Employment Counselor Follow-up As needed, employment counselor follows up with participant on any issues and also to inform on job placement or ATP opportunities Session Moderator Record Results of Sends information recording the attendance of the refugee in the workshop Session together with a short commentary on participation, identifying any issues for follow-up by employment counselor. Onward referral Employment Counselor [123] Counselor updates IAP and refers beneficiary to job/ATP/technical training/further language training To facilitate the activities involved in group counseling, both OPS and other existing OAED systems may be further customized and extended to support the respective business processes effectively. Other existing OAED systems, include, for example, the Demand-Responsive Training Programs (DRTP) MIS developed to facilitate the Elefsina pilot training programs. These systems should: • Support the referral process to job search group counseling and active Vocational Guidance (OPS). If DRTP MIS is used to administer the group counseling sessions, the respective information should be acquired from OPS using existing or new interoperability mechanisms. • Facilitate the OAED HQ and/or KPA2 staff in the organization of group sessions, including the time plan, the composition of the classes, and the assignment of session moderators per class (DRTP MIS). • Notify the participants by e-mail and/or SMS at least one week before the date of the workshop with the logistical information. The system should also cater for a follow-up reminder (OPS, DRTP MIS, or CRM). • Enable the participants to confirm their participation through a standard form (DRTP MIS). An alternative would be sending an e-mail using a standard form (or phone) to KPA2 or the counselor. • Support the session moderators in recording a short commentary on participation, identifying any issues for follow-up by the employment counselor (DRTP MIS). • Support the session moderators in recording attendance at each session. In case of issues (for example, absence), the system should also facilitate the moderators in informing the employment counselor. Also, the moderators should have the ability to record the participant’s attendance performance and the results of a self-assessment (i.e., what are the existing or new skills that were developed) (DRTP MIS)156. • Inform the session moderators of the daily schedule for the week together with basic information for each refugee participating in the sessions (DRTP MIS). • Support the employment counselors in providing testimonials concerning refugees’ participation in group settings in both job search counseling and AVG, as well as a certificate of attendance. Both testimonials and certificates of attendance should be available in electronic (pdf format) and printed forms (OPS, or DRTP MIS). 156A more advanced version of this functionality would involve the update of the beneficiary IAP through the realization of interoperability between OPS and the DRTP MIS. [124] Job placement The figure below visually summarizes the business processes involved in this activity. Figure 19 – Summary of Business process for Job placement Table 22 - Business processes for Job Placement Process Main responsible/Description Key Account Unit staff/Employer Counselors; employers Vacancies are posted using standard job description – either online direct by Collecting/posting job employers according to process for mainstream vacancies, or by employer vacancies counselors/key account managers on the main portal or on a separate, private xls file maintained centrally by the Key Account Unit and accessed also by Employer counselors Employment counselors Preselection of candidates for specific Counselors share job details with candidates who are interested and have vacancies relevant skills and experience and compile the referral list. CVs of short-listed candidates are then shared with employers. Employment counselors; employers Individuals referred Counselors explain job vacancy to identified beneficiaries and refer them. for interview Employers select the successful candidate and notify OAED. IAP is updated accordingly. Hiring procedure Employment counselors; employer counselors [125] Job counselor records hiring details and notes date for a follow up monitoring call to the individual, and follow-up call to the employer. The latter date should be passed to the employer counselor Employer counselors Post-interview follow- up with employers Counselors follow up with each employer who conducts interviews to get feedback on the whole process (even if the employer end up not hiring) Employment counselors Post-interview follow- up with beneficiaries Counselors follow up with interviewees to update IAP and inform future referrals and potential training needs Employer counselors Ongoing monitoring of Counselors maintain contact with employers to monitor labor integration process, employers against exploitation, deal with any queries and receive feedback on the whole process Employment counselors Ongoing monitoring of Counselors should keep in touch regularly with beneficiaries in work settings beneficiaries (one month after starting work and at 6 months), to monitor the labor integration process, take feedback and deal with any issues arising, updating the IAP as necessary Employer counselors Post-employment actions Counselors contact employers to seek feedback on their experience of hiring a refugee and check whether they would be willing to hire again. A large part of the IT infrastructure that may efficiently serve all the business processes related to job placements builds on the IT requirements described in the previous sections of this section (Employer outreach and Counseling, profiling and referrals). As analyzed in the corresponding sections: • For an effective employer outreach and communication strategy: o OAED’s Web Portal (or the project’s mini-site) should advertise the program and be a repository for useful and accessible information for employers in a clearly signposted section, especially for them; o All OAED’s Social Media accounts should promote information related to the employers' engagement with the project; and o The newly developed CRM System should manage all the communications and outreach activities to enable tracking of actions and dates and avoiding confusion and duplication. [126] • To achieve an efficient job matching process, the necessary beneficiary profiling and counseling infrastructure must be in place. OAED OPS should: o Facilitate the recording of important information related to the counseling meetings and the profiling of the beneficiaries. The system should also provide a facility for recording the characteristics of the refugee (socio-demographic, language skills, education, prior experience, occupational interests, motivation, etc.) based on a 'checklist' of topics157 to ensure that the necessary content is covered. o Support the creation and update of Individual Action Plans (IAPs) for the beneficiaries. The IAPs should record all referrals and be updated upon completion of an intervention or based on the beneficiary’s progress. o Support the generation (and export in pdf or other formats) of the beneficiary's CV based on the information recorded during the counseling sessions158. o Provide access to the counselor for up-to-date information on recent job placements of refugees, and information on referral options, including description, schedule, location, prerequisites, and enrollment procedures. On top of the above functionalities, the involved information systems and tools (OAED OPS, e-services, Web Portal, CRM, etc.) should: • Support the appointments management between the employers and the refugees regarding the job placement interview. In the case of virtual meetings, the system should facilitate the appointments through myOAEDlive or another video conferencing system (e.g., Skype, MS Teams, Google Meet, etc.). The system should also cater for notifications to the beneficiaries and the employers (SMS and email) regarding the appointment details (CRM). • Support the employment counselors in the referral process for job placements and the necessary update of the IAP. • Facilitate the employment counselors in recording the hiring details and the date for a follow-up monitoring call to the individual and follow-up call to the employer. The latter date should be passed to the employer counselor. Reminders regarding the follow-up calls should be automated by the system (OPS, or CRM). • Support the counselors in recording the feedback provided by each employer and interviewee regarding the whole interview process. The information should be recorded regardless of the outcome (hiring or not) (OPS, or CRM). • Facilitate the counselors to maintain contact with employers to monitor the labor integration process, guard against exploitation, deal with any queries and receive and record feedback on the whole process (OPS, or CRM). The system should provide the respective reminders. • Facilitate the counselors to maintain contact with beneficiaries in work settings (one month after starting work and at 6 months), monitor the labor integration process, take and record feedback and deal with any issues arising, updating the IAP as necessary (OPS, or CRM). The system should provide the respective reminders. 157 The topics include results of previous counseling sessions, language, obstacles and barriers, education and training, professional experience, soft (horizontal) skills, digital skills, and driving licenses and other skills. 158 The I.Ref.Sos E-portfolio may be used as an alternative for the CV generation functionality. [127] • Support the counselors in recording the feedback on employers’ experience of hiring a refugee and check whether they would be willing to hire again (OPS, or CRM). • Support the firms to express their interest in participating in the project by submitting an application for registration in OAED’s registry for firms (e-services). • Support the firms to post job vacancies online (e-services). The system should also provide the available functionality if these vacancies are decided to be treated by the counselors separately from the mainstream vacancies. • Facilitate the OAED employer counselors to compile lists of approved firms identified as hiring companies. These lists should be available for export in various formats (e.g., MS Excel, pdf, etc.) • Facilitate the employers to give a digital testimonial or reference at the end of the term outlining the skills and experience obtained, thereby giving the beneficiary a better chance of finding work elsewhere. The testimonials should be available in digital (pdf format) and printing forms. [128] Wage subsidies The figure below visually summarizes the business processes involved in this activity. Figure 20 – Summary of Business process for Wage subsidies [129] Table 23 - Business processes for Wage subsidies Process Main responsible/Description Key Account Unit staff/Employer Counselors; employers Outreach strategy to stimulate vacancies and raise awareness of I.Ref.Job before Collecting/posting job project start-up and throughout the project. Vacancies are posted using standard vacancies job description – either online directly by employers according to process for mainstream vacancies, or by employer counselors/key account managers on the main portal or on a separate, private xls file maintained centrally by the Key Account Unit and accessed also by Employer counselors Employment counselors Identification of beneficiaries ready to Job ready project participants can be identified either after the 1st or 2nd be referred to work individual session or from ATPs, language or vocational training (proactive approach) Employment counselors; employer counselors Determination of eligibility of posting for Counselors review job and employer details to determine if firm is eligible for subsidy subsidy, if participant selected. Counselor informs employer if firm is eligible for subsidy and explains next steps Employment counselors Preselection of candidates for specific Counselors share job details with candidates who are interested and have vacancies relevant skills and experience and compile the referral list. CVs of short-listed candidates are then shared with employers. Employment counselors Job ready participants referred for interview Counselors refer those who are job ready to group sessions for guidance on preparation job/interview preparation etc. Employment counselors; employers Individuals referred for Counselors explain job vacancy to identified beneficiaries and refer them. interview Employers select and hire the successful candidate and notify OAED. IAP is updated accordingly. Employment counselors; employer counselors Hiring procedure Job counselor records hiring details, including subsidy details, and notes date for a follow up monitoring call to the individual, and follow-up call to the employer. The latter date should be passed to the employer counselor. Application for wage Employer; employer counselor [130] subsidy Following hiring and provided that the employer is eligible for subsidy, application for entering the program made by employer with supporting documentation. Employer also selects duration option (if options are available) Employment counselors; employer counselors; employer Counselors review final terms of employment. Eligibility for subsidy confirmed. Approval of subsidy Based on salary offered and employer choice re length of subsidy, amount and duration of subsidy confirmed. Communication of approval with terms to employer. Wage subsidy agreement signed. Employer counselors Post-interview follow- Counselors follow up with each employer who conducts interviews to get up with employers feedback on the whole process (even if the employer end up not hiring). Final details of subsidy program explained. Employment counselors Post-interview follow- up with beneficiaries Counselors follow up with interviewees to update IAP and inform future referrals and potential training needs Employer; employment counselors Firm submits request Subsidy starts on first day of employment. Every two months, employer submits for subsidy payment request electronically through OAED e-services for subsidy payment along with supporting documents (salary paid, social contributions paid, attestation of no layoffs, etc.).159 Employer counselor Review of documents submitted by employer (with confirmation from EFKA, SEPE) to confirm employment of subsidized worker and wages paid and social Verification of subsidy insurance contributions made. Confirmation through ERGANI that employment request levels have not been reduced during subsidy period. While verification is document-based, visits to firm can be made on a random basis or where non- compliance is suspected. Where firm has met the conditions of the subsidy program, the next step is skipped. Employer counselor Payment of subsidy request Electronic transfer of subsidy to employer bank account. Notification of subsidy Employer counselor 159Until now, the documents that the firm needs to provide in order to receive the subsidy reimbursement are still submitted manually by visiting the KPA. [131] ineligibility (in relevant If employer has not met eligibility conditions, they are required to return the cases) subsidy or a percentage thereof based on an established formula. Procedures are available for employers to appeal if they choose to. Employer counselor Ongoing monitoring of Counselors maintain contact with employers to monitor labor integration employers process, against exploitation, deal with any queries and receive feedback on the whole process. Employment counselors Ongoing monitoring of Counselors should keep in touch regularly with beneficiaries in work settings beneficiaries (one month after starting work and at 6 months), to monitor the labor integration process, take feedback and deal with any issues arising, updating the IAP as necessary. Employer counselors Post-employment Counselors contact employers to seek feedback on their experience of hiring a actions refugee through a wage subsidy and check whether they would be willing to participate in a wage subsidy program again. Information System support to streamline some procedures, and especially the electronic submission of documentation by firms instead of visiting the KPA2 would make wage subsidies more attractive to employers. This becomes even more prominent due to the restrictions imposed by COVID-19. In addition, in order to improve the referral process, both employers and unemployed refugees should have access to the databases of potential employees and vacancies, respectively. Several IT requirements presented in earlier sections of this report (0-Employer outreach and 0-Counseling, profiling and referrals) are a prerequisite for the effective introduction of wage subsidies. More specifically: • An effective employer outreach strategy has to be in place. To this end: o OAED’s Web Portal (or the project’s mini-site) should advertise the wage subsidy component of the program and be a repository for useful and accessible information for employers in a clearly signposted section, especially for them; o All OAED’s Social Media accounts should promote information related to the wage subsidies and the employers' engagement with the project; and o The newly developed CRM System should manage all the communications and outreach activities related to wage subsidies to enable tracking of actions and dates and avoiding confusion and duplication. • In parallel, to achieve an efficient job matching process, the necessary beneficiary profiling and counseling infrastructure must be in place. OAED OPS should: o Facilitate the recording of important information related to the counseling meetings and the profiling of the beneficiaries. The system should also provide a facility for [132] recording the characteristics of the refugee (socio-demographic, language skills, education, prior experience, occupational interests, motivation, etc.) based on a 'checklist' of topics160 to ensure that the necessary content is covered. o Support the creation and update of Individual Action Plans (IAPs) for the beneficiaries. The IAPs should record all referrals and be updated upon completion of an intervention or based on the beneficiary’s progress. o Support the generation (and export in pdf or other formats) of the beneficiary's CV based on the information recorded during the counseling sessions161. o Provide access to the counselor for up-to-date information on recent job placements of refugees, and information on referral options, including description, schedule, location, prerequisites, and enrollment procedures. • On top of the above functionalities, the involved information systems and tools (OAED OPS, e-services, Web Portal, CRM, etc.) should: o Support the firms to express their interest in participating in the project by submitting an application for registration in OAED’s registry for firms (e-services). o Support the firms to post job vacancies online (e-services). The system should also provide the available functionality if these vacancies are decided to be treated by the counselors separately from the mainstream vacancies. o Facilitate the OAED employer counselors to compile lists of approved firms identified as hiring companies. These lists should be available for export in various formats (e.g., MS Excel, pdf, etc.). o Facilitate the counselors to informs the employer if a posting is eligible for a subsidy and explain the process if the employer chooses to apply for a subsidy. o Facilitate the firms to apply online for a subsidy through e-services and upload the supporting documentation. The necessary verifications and eligibility controls (e.g., being in an eligible sector, prior episodes of non-compliance, exceeding the EU de minimis limits for state aid to individual enterprises, no-layoff conditions, etc.) should be realized online by cross-referencing the information provided by the applicants with the official records through interoperability mechanisms. o Facilitate the sharing of refugee CVs with the employers. (e-services). o Support the employment counselors in the referral process for wage subsidies and the necessary update of the IAP. o Support the appointments management between the employers and the refugees regarding the job placement interview. In the case of virtual meetings, the system should facilitate the appointments through myOAEDlive or another video conferencing system (e.g., Skype, MS Teams, Google Meet, etc.). The system should also cater for notifications to the beneficiaries and the employers (SMS and email) regarding the appointment details (CRM). 160 The topics include results of previous counseling sessions, language, obstacles and barriers, education and training, professional experience, soft (horizontal) skills, digital skills, and driving licenses and other skills. 161 The I.Ref.Sos E-portfolio may be used as an alternative for the CV generation functionality. [133] o Enable the employment counselors to associate a beneficiary with a firm offering a wage subsidy position and generate and print a wage subsidy agreement (beneficiary, firm, OAED). A signed copy of the agreement should be uploaded to the system (OPS). o Facilitate the employment counselors in recording the hiring details, including subsidy details and the date for a follow-up monitoring call to the individual and follow-up call to the employer. The latter date should be passed to the employer counselor. Reminders regarding the follow-up calls should be automated by the system (OPS, or CRM). o Support the counselors in recording the feedback provided by each employer and interviewee regarding the whole interview process. The information should be recorded regardless of the outcome (hiring or not) (OPS, or CRM). o Facilitate the counselors to maintain contact with employers to monitor the labor integration process, guard against exploitation, deal with any queries and receive and record feedback on the whole process (OPS, or CRM). The system should provide the respective reminders. o Facilitate the counselors to maintain contact with beneficiaries in work settings (one month after starting work and at 6 months), monitor the labor integration process, take and record feedback and deal with any issues arising, and updating the IAP as necessary (OPS, or CRM). The system should provide the respective reminders. o Support the counselors in recording the feedback on employers’ experience of hiring a refugee and check whether they would be willing to hire again (OPS, or CRM). o Facilitate the administration of the payment and reconciliation processes, including the electronic transfer of the subsidy to the employer’s bank account (e-services). Every two months, the employer submits a request electronically through OAED e- services for subsidy payment along with the supporting documents (salary paid, social contributions paid, attestation of no layoffs, etc.). The whole process should be automated through interoperability mechanisms, if possible, and facilitate the following steps: a) Review of the documents submitted by the employer (with confirmation from EFKA, SEPE) to confirm the employment of the subsidized worker, the wages paid, and the social insurance contributions made. b) Confirmation through ERGANI that the employment levels have not been reduced during the subsidy period. While verification is document-based at the moment, visits to the firm can be made on a random basis or where non- compliance is suspected. To this end, the system should support the necessary M&E spot checks and the recording of actions. Where the firm has met the conditions of the subsidy program, the next step is skipped. c) If the employer has not met eligibility conditions, they are required to return the subsidy or a percentage thereof based on an established formula. The system should support this process, the necessary calculations, and the procedures for employers to appeal if they choose to. [134] o Facilitate the employers to give a digital testimonial or reference at the end of the term outlining the skills and experience obtained, thereby giving the beneficiary a better chance of finding work elsewhere. The testimonials should be available in digital (pdf format) and printing forms. [135] Applied training program The figure below visually summarizes the business processes involved in this activity. Figure 21 – Summary of Business process for Applied training program Table 24 - Business process for Applied training program Process Main responsible/Description Key Account Unit staff/Employer Counselors; employers Collecting/posting ATPs are posted using standard role description – either online direct by ATPs employers using template designed by OAED - or by employer counselors/key account managers on the main portal or on a separate, private .xls file maintained centrally by the Key Account Unit and accessed also by Employer counselors. Visiting interested Key Account Unit staff/Employer Counselors [136] companies Outreach staff visit companies posting ATPs to explain the ATP rules, including tri- partite agreement, monitoring arrangements and employer reference, and approve them for participation in I.Ref.Job. Employment counselors Preselection of candidates for specific Counselors share ATP details with candidates who have relevant skills and ATPs experience, explain the ATP terms and conditions and compile the referral list. CVs of short-listed candidates are then shared with employers. Employment counselors; employers Individuals referred for interview Counselors prepare beneficiaries for interview. Employers select the successful candidate and notify OAED. Employment counselors; employer counselors Starting procedure and tri-partite Employer counselor facilitates the signing of the tri-partite agreement, records agreement start details and notes date for first follow-up monitoring call to the employer. Employment counselor logs start details on IAP and notes date for first follow-up call to the individual. Employer counselors Post-interview follow- up with employers Employer counselors follow up with each employer who conducts interviews to get feedback on the whole process (even if the employer does not take anyone). Employment counselors Post-interview follow- up with beneficiaries Employment counselors follow up with interviewees to update IAP and inform future referrals and potential training needs. Employer counselors Ongoing monitoring of employers Employer counselors maintain contact with employers at regular intervals to monitor progress, guard against exploitation, deal with any queries and receive feedback on the whole process. Employment counselors/Beneficiaries Proactive ongoing Employment counselors proactively and regularly contact beneficiaries to alert monitoring of them to job vacancies, monitor progress, take feedback and deal with any issues beneficiaries arising, updating the IAP as necessary. Beneficiaries should also search for jobs themselves while on an ATP and discuss actions and outcomes with the counselor. Completing the ATP Employment counselor [137] On completion, employment counselor makes appointment with beneficiary to update IAP and discuss next steps – whether s/he is hired or not. Employer/Employment counselor/Beneficiary If the beneficiary is not hired, the employer provides a reference at the end of the Recognizing the ATP program outlining skills and experience acquired. The employment counselor should check this at completion interview above and log in the IAP. The beneficiary retains the reference and uploads to e-portfolio if this is used in I.Ref.Job The information systems and tools (OAED OPS, e-services, Web Portal, CRM, DRTP MIS, etc.) underpinning all the client servicing business processes of OAED, should: • Facilitate the posting of brief ‘pen portraits’ of work-ready I.Ref.Job beneficiaries on the OAED Web Portal as a way of promoting them to employers. • Support the firms to post ATPs online using a template designed by OAED (e-services). • Facilitate the OAED employer counselors to compile lists of firms offering ATPs. These lists should be available for export in various formats (e.g., MS Excel, pdf, etc.) • Support the employment counselors in the referral process for ATPs and the necessary update of the IAP (OPS). • Facilitate the sharing of refugee CVs with the employers (e-services). • Support the appointments management between the employers and the refugees regarding the interview. In the case of virtual meetings, the system should facilitate the appointments through myOAEDlive or another video conferencing system (e.g., Skype, MS Teams, Google Meet, etc.). The system should also cater for notifications to the beneficiaries and the employers (SMS and email) regarding the appointment details (CRM). • Enable the employment counselors to associate a beneficiary with a firm offering an ATP and generate and print a tripartite agreement (beneficiary, firm, OAED). A signed copy of the agreement should be uploaded to the system (OPS or DRTP MIS – Internship Functionalities). • Facilitate the employment counselors in recording the start details in the IAP and the date for a follow-up monitoring call to the individual and follow-up call to the employer. Reminders regarding the follow-up calls should be automated by the system (OPS, or CRM). • Support the counselors in recording the feedback provided by each employer and interviewee regarding the whole interview process. The information should be recorded regardless of the outcome (even if the employer does not take anyone) (OPS, or CRM). • Facilitate the counselors to maintain contact with employers to monitor progress, guard against exploitation, deal with any queries and receive and record feedback on the whole process (OPS, or CRM). The system should provide the respective reminders. • Facilitate the counselors to maintain contact with beneficiaries in ATPs, monitor the progress made, take and record feedback and deal with any issues arising, updating the IAP as necessary (OPS, or CRM). The system should provide the respective reminders. [138] • Facilitate the employers to give a digital reference at the end of the program outlining skills and experience acquired. The references should be available in digital (pdf format) and printing forms (OPS, or e-services, or DRTP MIS). • Facilitate the administration of the payment and reconciliation processes162 (OPS). The whole process should take into account any agreement breaches that might affect the receipt of the allowance (OPS, or DRTP MIS). Technical skills training The figure below visually summarizes the business processes involved in this activity. Figure 22 – Summary of Business process for Technical skills training 162In order that ATPs mimic workplace conditions as closely as possible, OAED could consider paying participants the equivalent of the national minimum wage while on an ATP. [139] Table 25 - Business processes for Technical skills training Process Main responsible/Description Training Directorate Analysis of ERGANI microdata and online vacancy postings to identify occupations Identification of in high demand critical occupations Refer to ESCO to identify the skills and knowledge for these occupations and skills Consider profile of target group; educational level; language skills; digital skills; professional experience Produce initial list of critical occupations and skills and validate through consultation with employers and employer representative organizations Training Directorate Selection of training specialties Finalize and adapt the training offer depending on profile of beneficiaries, employer feedback and changes in labor market demand Training Directorate/OAED teachers Development of Map the critical occupations/skills list against existing training provision; adapt training modules and and develop new provision as necessary learning materials Adapt/develop modules for digital skills Incorporate soft skills Employment counselors Participants identified at 3rd counseling session (or from language training) are referred to active vocational guidance session to select a training specialty Beneficiaries access (discussion based on the list of specialties available and the outline curriculum theoretical training (modules with learning outcomes) for each specialty). Beneficiaries are issued with a voucher for the appropriate number of training hours (depending on chosen specialty) to be redeemed at an OAED KEK. Counselor accesses information on the system on when beneficiaries redeem voucher and start theoretical training. Employer counselors/Key Account Unit staff Sourcing of ATPs for beneficiaries on Employer facing staff to ensure that ATPs are available for all beneficiaries on training theoretical training in case they do not find jobs. If no suitable ATPs exist in the specialty concerned, Employer counselors should be informed that an ATP Employment counselors Ongoing monitoring of trainees on Counselors should monitor refugees when they are on theoretical training and theoretical training proactively look for job vacancies or ATPs to refer trainees to. [140] Employment/employer counselors Completing theoretical training Employment counselors refer trainees to a suitable ATP or job sourced by Employer counselor. OAED KEK/Independent assessment center Recognizing Depending on nature of certification chosen, either OAED KEK issues certificate of theoretical training attendance to participants, or they return to Employment counselor for a voucher to redeem at an independent assessment center. A part of the IT infrastructure that may serve the business processes related to technical skills training builds on the IT requirements described in the previous sections of this report (C.f. Group counseling: Job Search and Active Vocational Guidance and Applied training program). Once this infrastructure is in place, both OPS and other existing OAED systems (such as the DRTP MIS and the CRM system) may be further customized and extended to support the respective business processes effectively. These systems should: • Support the referral process to technical skills training (OPS) by enabling the employment counselors to issue and print a training voucher for the beneficiaries (DRTP MIS). If DRTP MIS is used to administer the technical skills training, the respective information should be acquired from OPS using existing or new interoperability mechanisms. • Provide the necessary functionality for the OAED’s training center (KEK) to be able to activate a beneficiary’s technical skills training voucher (DRTP MIS). • Facilitate the OAED KEKs in the organization of technical skills training, including the time plan, the composition of the classes, and the assignment of instructors per class (DRTP MIS). • Notify the technical skills training participants by e-mail and/or SMS with the logistical information. The system should also cater for a follow-up reminder (OPS, DRTP MIS, or CRM). • Support the KEK’s instructors in recording the assessment of competence and literacy level of those referred for training and determine the nature of training required (DRTP MIS). • Support the instructors in recording a short commentary on participation, identifying any issues for follow-up by the employment counselor (DRTP MIS). • Support the instructors in recording attendance at each class. In case of issues (for example, absence), the system should also facilitate the instructors in informing the employment counselor. Also, the instructors should have the ability to record the participant’s attendance performance (DRTP MIS)163. • Inform the instructors of the daily schedule for the week together with basic information for each refugee participating in the classes (DRTP MIS). 163A more advanced version of this functionality would involve the update of the beneficiary IAP through the realization of interoperability between OPS and the DRTP MIS. [141] • Facilitate the administration of the payment and reconciliation processes164 (OPS and DRTP MIS) regarding the training and the respective certification165. The whole process should take into account the number of absences or other agreement breaches that might affect the receipt of the allowance (DRTP MIS). • Support the KEKs in providing a certificate of attendance to the beneficiaries upon successfully completing the technical skills training. The certificates of attendance should be available in electronic (pdf format) and printed forms (OPS, or DRTP MIS). Suppose independent assessment and certification are arranged at the end of the training. In that case, OAED counselors (or the KEKs) should be facilitated by the system/s (OPS, and/or DRTP MIS) to issue a voucher to the trainee for independent assessment and certification. • Support the employment counselors in recording the skills acquired in the program by the beneficiary and the outcome of the certification exam (OPS). • Inform the employer counselors that an ATP is required in case the trainee cannot be referred to a job at the end of training (if no suitable ATPs exist in the specialty concerned). Regarding the ability of the OAED KEKs to deliver online, remote learning the following options may be considered for adoption: • The use of well-known video conferencing solutions (e.g., Microsoft Teams, Cisco Webex, Google Meet, Zoom, etc.)166 to support the online training process. • The deployment of an open-source Learning Management System (LMS)167 to complement the online training process by hosting the technical skills training material and providing online access to the material for the beneficiaries. • As a more advanced scenario, a mobile phone app customized to the refugees' needs can be developed. This should make online learning much more accessible as most refugees have internet connectivity, but some participants, especially older ones, may need some training to benefit from it. It is important to note that, since the DRTP MIS was successfully used during the Elefsina pilot, it would be beneficial for OAED to use the same infrastructure to support OAED KEKs under I.Ref.Job. At the beginning of 2020, the OAED Training Department selected an initial set of extra recommendations (see separate document as Appendix I - Options for the gradual development of the DRTP MIS) and features that should be integrated into the DRTP MIS during the Elefsina pilot. This selection was based on the external IT contractor (CTI Diophantus) estimates regarding the development effort needed and the time plan for all of the recommendations in Output A.3 (pages 11-24) of the Elefsina pilot168. As the Elefsina pilot came to an end, these features were not implemented, but the OAED Training Department may consider them for implementation under I.Ref.Job. 164 OAED is proposing to offer a 2 Euro per hour training allowance (240 euro per month) which should help cover meals and expenses but not disincentivize trainees from seeking work. 165 In case independent assessment and certification are arranged at the end of the training. 166 All these solutions have mature mobile versions. 167 A very good example of such a solution is Moodle. 168 Output A.3: Functional and technical specifications for an MIS of training programs, GREECE: IMPROVING THE DESIGN AND DELIVERY OF ALMPS, Administrative Agreement of November 27, 2017, EC Contract No SRSS/S2017/029, World Bank project number P164835-TF0A6602 [142] 5. Monitoring and Evaluation Arrangements This section of the report outlines the monitoring and evaluation arrangements for the refugee pilot. The section starts with a review of the rationale for monitoring. The main part of this section presents results chains and proposed monitoring indicators for the Pilot by activity. A list of indicators for which targets should be set is then proposed and the need for a feedback mechanism is discussed. The section ends with a brief review of evaluation. Building on what is presented here, Output 3169 will contain a proposed more detailed monitoring and evaluation plan for the Pilot. 5.1. Rationale for monitoring Monitoring is the continuous process of collecting and analyzing information collected at different stages of program implementation, enabling those involved to track progress and compare how well an intervention is performing against the expected results. It is important to monitor program performance and efficiency in order to use the evidence to identify problem areas and if needed, modify practices or policies. In addition, strong monitoring and evaluation arrangements for the refugee pilot are critical to ensure that any lessons are captured to inform the plan of the Ministry of Labor and OAED to mainstream interventions for refugees into the ongoing active labor market policy (ALMP) reform. Finally, the Pilot will be implemented in different locations and monitoring data will make it possible to compare progress in each area. 5.2. Program Results Chain and Selected Monitoring Indicators The proposed monitoring framework includes results chains for different pilot activities and selected indicators. This section introduces the proposed monitoring framework for: the Pilot overall; classroom-based training; wage subsidies; and on the job applied training. For each area a results chain summarizes the understanding of the objectives of the Pilot, its related activities and selected indicators. The framework covers inputs, progress on implementation (activities and outputs) and outcomes. The aim of the monitoring indicators is to be able to track what the Pilot overall as well as the main activities are doing (and not doing) relative to the objectives of the program; to identify problem areas and modify practices within the Pilot, as needed; and to identify and disseminate successful practices. As discussed in the previous section of this document, the information system of OAED (OPS and DRTP MIS and other mechanisms and tools) will support the business processes of the refugee pilot and be the main source of data for the indicators. In addition, ERGANI is the source of data for the outcome indicators for employment and wages. Output 3 contains a set of detailed tables with all proposed indicators, provisions for data collection and reporting as well as some preliminary factors to be used to analyze the monitoring data., for example disaggregation by gender. Overall Pilot: This section of the monitoring framework covers the following aspects of the refugee pilot: outreach, eligibility determination and enrollment, the provision of counseling including skills recognition and the IAP, job search group counseling, the generation of job vacancies and hiring. The first two aspects are the important initial steps in the delivery chain for the Pilot. Outreach activities need to ensure that the intended population is reached. The proposed indicators drawn from the information system of OAED would be supplemented by an excel tracker to be used for planning events and activities and recording the inputs required. In addition, qualitative analysis could be used to gauge the effectiveness of communications material with specific groups including those not already registered with OAED and women. Counseling is a key pilot service for all 169Ouput 3: “Development and Implementation of a Monitoring and Evaluation Framework for I.Ref.Job”. Forthcoming [143] participants with the main purpose skills recognition and referrals, as reflected in the IAP. Job search group counseling is also included in this section as the activity would be open broadly to all participants, in addition to being a specific referral. Job placement is at the top of hierarchy of objectives of the Pilot. The indicators are intended to track how fast people are referred to interviews and from which activities, including among different age groups and the performance of women vs. men. The generation of sufficient job vacancies will be crucial, involving the activities of both the Key Account Unit Staff in the OAED HQ and employment counselors in the KPAs which are part of the Pilot. Figure 23 - Results Chain – Overall Refugee Pilot Training Activities: This section of the monitoring plan cover the set of activities in the Pilot related to classroom training: language training, active vocational guidance, digital and technical skills training, as well as the subsequent certification process. While a basic level of competence in Greek is an eligibility requirement, it is expected that many participants will need and desire to improve their language skills. Active vocational guidance is a series of short group counseling sessions aimed to assist a refugee in choosing a specialty for technical training, if needed. It will be important to monitor if there are drop outs from training and for which reason and to follow what happens post completion of training. Data from the Information Systems of OAED may be supplemented by qualitative inputs from employers and trainees. [144] Figure 24 - Results Chain – Training Activities of the Refugee Pilot Wage Subsidies: The framework for wage subsidies draws from the experience of use of this ALMP in the Elefsina pilot. It includes activities related to the posting of wage subsidy vacancies by employers, including OAED approval, and subsequent supervision by OAED of compliance with the applicable regulations. Also covered is the referral process for potential candidates for the positions and post-completion monitoring of results. Figure 25 - Results Chain – Wage Subsidy Activities of the Refugee Pilot Applied Training Program (ATP): The final section covers the activities related to the applied training program, including the generation of offers, related referrals and interviews, placements, and firm monitoring. OAED has not yet decided whether ATP will be a referral option for the Pilot. Thus the framework is tentative: the indicators reflect the proposal made by Bank based on international evidence, experience from the ALMP reform project and consultations with OAED. If used, it will be important to monitor what happens post completion of the ATP. Again, the data from the monitor indicators could be supplemented by qualitative inputs from employees and ATP participants. [145] Figure 26 - Results Chain – Applied Training Program (ATP) of the Refugee Pilot 5.3. Targets for indicators A good practice in the use of monitoring indicators is to set targets for selected indicators, providing a benchmark against which comparisons can be made during implementation. Targets embed both the objectives of the program and the best estimates of program managers and implementers regarding activities as well as outcomes. The set of targets can also be useful for program planning and budgeting purposes. A proposed list of indicators for which targets should be set include the following: • Orientation Sessions • Refugees enrolled, with indicative benchmarks for both women and men • Employers participating in Program • Job Vacancies • Maximum time between Job posting and interview with employer • Wage subsidies and ATPs posted • % of Wage subsidy/ATP participants hired by host employer • Maximum time between Wage subsidy/ATP posted and employer interview • Number of Job Search Workshops • No. of Refugees attending Job Search Workshops • Maximum time between each of first 3 sessions with counselor 5.4. Feedback Loop Managers and staff need to use the information provided by the monitoring indicators and related analysis in order to make program improvements. It is crucial to consider how the crucial feedback loop between monitoring information and program staff can be promoted, for example, by organizing “how are we doing?” meetings to review and discuss monitoring reports. Managers should expect staff to search and explain the reasons for unexpected findings, results that fall short of targets, or outliers. A plan for how the monitoring data will be reviewed and discussed should be decided early on. [146] 5.5. Evaluation Program evaluation refers to a systematic objective assessment of a program or policy, its design, implementation and/or results. While monitoring is an ongoing activity, evaluations are carried out at particular points in time. There are different types. An implementation or process evaluation investigates whether the program is operating as planned. An impact evaluation estimates the quantitative program effect on key outcomes such as poverty and employment. A process evaluation documents, assesses and explains how the operating procedures of a program are being implemented. Understanding how and how well an intervention is actually being implemented and delivered is critical to explain program’s results (or lack thereof) and to decide whether to keep or modify a program. Good monitoring is essential to good evaluation by providing continuous information on program implementation. Output 3 includes a proposal for the design of an impact evaluation for the Pilot. Other outputs envisaged under this technical assistance include process evaluations. Process Evaluation A process evaluation is the most common type of evaluations and is planned for the I.Ref.Job pilot. The process evaluation will document, assess, and explain how the operating procedures of the pilot are implemented. Understanding how and how well an intervention is actually being implemented and delivered is critical to explain the program’s results (or lack thereof) and to decide whether to keep or modify a program. The process evaluation is expected to describe the main activities associated with I.Ref.Job, analyze possible differences between the actual implemented processes and the ones described in various documents such as the Design Document and OAED operational guidance; assess strengths and weaknesses of the operation; document lessons learned; and provide recommendations to improve the operational processes of I.Ref.Job. Data collection tools include interviews, direct observation of business processes and operations, focus groups and an examination of records and documents. Monitoring data is also an important input for the analysis. This type of evaluation has a very practical objective: its main value rests on offering well substantiated recommendations that can contribute to adjustments in the operation of the program in preparation for its roll out. Impact Evaluation Rigorous impact evaluations are necessary for policymakers to make sound decisions about whether pilot programs are promising interventions worth scaling up or mainstreaming. Impact evaluations can be time-and resource-intensive, so they are typically carried out on a selective basis - for example, when new approaches are being introduced through a pilot program. This is particularly important in an area such as the labor market integration of refugees where there has been little experience and little evaluation. Such kind of evaluations aim to identify whether the program had an impact on the outcomes it was initially designed to improve, such as the post-program employment of participants, their post-program wage levels etc. Impact evaluations need to be built into the design of programs from the very beginning in order to establish a sound methodology. The methodology and data required to implement a valid impact evaluation need to be identified at the outset of the program. This is especially important for ensuring that the true effect of the intervention on program beneficiaries can be estimated. A rigorous evaluation involves constructing a valid comparison group which will be as identical as possible to the group of beneficiaries except that the comparison group members have not participated in the program. Conducting this assignment randomly, ensures that every selected participant has the same chance of receiving the program and that the program is not being [147] assigned using arbitrary or subjective criteria. Data on programs and services received by participants, and on key outcome variables, need to be collected from both participants and non- participants at various points in time. Ideally, cost data can be collected as well so that the impact evaluation includes cost-effectiveness, i.e., an analysis of resources used in order to estimate the costs of achieving impacts. Even though a larger sample size would provide greater assurance that an impact evaluation could detect the true benefits of a pilot program (mainly due to the likely high attrition rates), policymakers could still be able to draw some important conclusions even from relatively smaller samples (e.g., of 1,000 participants). Implementing impact evaluations even with smaller sample sizes is still possible if the evaluation is well and carefully designed from the beginning. Assuming that the program under evaluation is truly effective, there are analytical strategies to mitigate smaller than-expected sample sizes and increase the power of an impact analysis. 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World Bank. https://openknowledge.worldbank.org/handle/10986/30157 License: CC BY 3.0 IGO Youth Employment Funders Group. 2017. “What works in soft skills development for youth employment? A donors’ perspective.”. Available at: http://mastercardfdn.org/wp- content/uploads/2018/08/soft-skills-youth-employment-accessible2.pdf [153] Annex I. List of documents shared with OAED throughout this TA Deliverables i. Recommendation report to inform the Pilot design and implementation (present document). ii. 10 notes for all envisioned activities for the I.Ref.Job Pilot: 1. Eligibility, selection and enrollment 2. Population outreach 3. Employer outreach 4. Counseling, profiling, and referrals 5. Job Search Group counseling and Active Vocational Guidance (AVG) 6. Language training 7. Job placement 8. Applied training program (ATP) 9. Technical skills training 10. Wage subsidies (under Output 1.A) i. Employer Engagement Strategy. ii. Population outreach strategy and information material to support campaigns aiming to promote registration in the pilot with OAED. (under Output 1.B) List of firms interested in providing job opportunities to refugees. (under Output 2.A) i. Tool to assess the skills, prior experience and work readiness of the target refugee population (in excel format). ii. Expanded individual action plan for the target refugee population (in excel format). iii. Note reviewing the international and Greek experience and tools and recommendations on how to roll out the proposed tool. iv. Annexes with detailed information on international experience, and other technical information (IT, counsellor guidance, etc.). (under Output 2.B) Monitoring and Evaluation Framework for the I.Ref.Job Pilot (under Output 3) Supporting material for a Process Evaluation in the I.Ref.Job Pilot (under Output 4) Notes to inform the selection of training specialties: i. Employer consultation note including an employer questionnaire template. ii. Analysis-based list with occupations in demand. iii. Examples of employer reservations and OAED potential responses. (additional on-demand outputs) Note to inform the identification of pilot KPAs and related decisions. [154] (additional on-demand output) Notes for designing an impact evaluation for the OAED refugee pilot. (additional on-demand outputs) Notes with comments to OAED proposals submitted for ESF funding (October 2021 and October 2020) (additional on-demand outputs) Thematic presentations before meetings and discussion minutes after virtual meetings with OAED and DG REFORM (additional on-demand outputs) [155] II. Characteristics of training courses provided by NGOs to refugees in 2020-2021 in Athens Table 26 - Characteristics of training courses provided by NGOs to refugees in 2020-2021 in Athens Organizations/ Duration of Duration per Classes Training Testimonial Languages Certification Training Institutes training class per week allowance by employers Odyssea – Certification of 1 120 hours 3 hours 3 GR/EN No No info Programming Attendance Certification of 2 Odyssea - Plumbing 70 hours 3 hours 2-3 GR/EN No No info Attendance Odyssea – Barista / Certification of 3 40 hours 4 hours 2-3 GR/EN No No info Bartender Attendance Certification of 4 Odyssea – Electrician 40 hours 4 hours 2-3 GR/EN No No info Attendance Odyssea – Hotel Certification of 5 40 hours 4 hours 2-3 GR/EN No No info Employee Attendance Odyssea – IT Certification of 6 Networks and 40 hours 4 hours 2-3 GR/EN No No info Attendance Technician Odyssea – CNC Certification of 7 45 hours 4 hours 2-3 GR/EN No No info Machine Operator Attendance Odyssea – Basic Certification of 8 21 hours 2 hours 3 GR/EN No No info Computer skills Attendance Odyssea – Digital Certification of 9 6 hours 2 hours 2-3 GR/EN No No info Skills Attendance [156] Odyssea – Social Certification of 10 45 hours 3 hours 2 GR/EN No No info Media & Marketing Attendance Curing the Limbo – ECDL Certification 11 Open Courses 3 hours 2 GR/EN No No info ICT Classes after exams Curing the Limbo – 12 Logistics & E- 60 hours 3-4 hours 3-4 GR/EN No Not specify No info commerce Caritas Hellas - Certification of 13 50 hours 3 hours 3-4 GR/EN No No info Cooking Attendance [157] III. Comparison between training packages for the Language Training component The following table presents, in the first two columns, a comparison between two language training packages that have been developed for refugees. The Multilingual guide "Entaxei 2" was published by NGO Metadrasi in 2018 and the language and intercultural package was produced and used in 2019 by the I.Ref.Sos project. In the third column further improvements and potential updates for the I.Ref.Sos package are proposed, so it could be used in the Greek language courses of the Pilot “I.Ref.Job”. Table 27 - Comparison between training packages for the Language Training component ENTAXEI 2 – Multilingual Support Proposals for improvements – I.Ref.Sos - language & intercultural package Guide by NGO METADRASI Updates It focuses on refugees, children and It focuses on refugees 16-24 years old respecting the teenagers, who speak Arabic or Farsi and 1 needs and the characteristic of adult learners have elementary or basic communication skills in the Greek language. 2 Designed for 120 hours no info Participants acquire basic Greek Language skills A2 level: Participants acquire basic Greek Language skills A2 • reading, level: • writing, • reading, 3 • writing, • listening (audio files in Greek available online) • discussions • discussions • Greek language • languages: Greek, English, Arabic, Farsi It has sixteen (16) units - 240 pages. It has eight (8) units - 84 pages. New units or updates that cover: Three (3) units [11,12,13] cover topics related to • CV based in the new structure of working environments: The units cover the following topics: Europass 4 • Work: occupations and working conditions. • First day in the school • More vocabulary/ exercises relative • Looking for a job: classified ads, CV. • Everyday life with the specialties that will be • Job Search - describing skills and asking for • Life in the city included in the VET/ATPs of the Pilot [158] information • Market and shopping • Update on the job search techniques • The workplace: rights, obligations, organizations • Courses and lessons • Update on the rights and obligations in related to work • Section with Historical events a work setting • Finding a house • A new unit on work ethics One (1) unit [7] focuses on education and lifelong • Weekend learning system: • Education and training. • Training options and opportunities - skills development and certification It offers a wide range of tasks and exercises It offers a wide range of tasks and 5 encouraging communication among the participants. exercises. It integrates intercultural approach that focuses on It uses a short section for Greek 6 modern reality and the culture of everyday life. Historical events The expected results for the trainees are: • To understand small and simple texts about the workplace. • To be familiar with roles in a working environment. The expected results for the trainees are: • To understand basic obligations and rights in • To use friendly and formal language, working environments. both spoken and written. • To use a vocabulary and language appropriate for • To communicate everyday needs. 7 attending educational, • To support integration to Greek training program. school. • To have basic knowledge about CVs. • To write simple texts and keep notes • To be linguistically able in Greek. to follow the process of a job interview. • To be familiar with key elements of Greek and European history and culture. [159] It uses the following educational techniques: It uses the following educational • role-playing games techniques: • simulations • pictures and videos • pictures and videos • maps and timelines • study visits 8 • maps and timelines • authentic material (forms, schedules, tickets) • group projects and presentations • worksheets • worksheets • parallel translation in four different • authentic material (forms, schedules, tickets, fact languages sheets, applications) 9 Accompanied with trainer’s manual Accompanied with audio files in Greek Material available in hard copy and digital Participants were using tablets with all the 10 educational material uploaded Handbook format; possible use of smartphone or tablet [160]