Terms of Reference For Development of A Labor Market Information System and Career Guidance Services in Mongolia

Transcription

1 Terms of Reference Millennium Challenge Account- Mongolia Technical and Vocational Education and Training Project Terms of Reference For Development of A Labor Market Information System and Career Guidance Services in Mongolia 82

2 List of Abbreviations AVET Agency for Vocational Education and Training CGS Career Guidance Services ICT Information and Communication Technology ILO International Labor Organization LECO Labor Exchange Center Office LMIS Labor Market Information System LMS Labor Market Study LSWD Labor and Social Welfare Divisions LSWSO Labor and Social Welfare Service Office MCA-M Millennium Challenge Account Mongolia MCC Millennium Challenge Corporation MSWL Ministry of Social Welfare and Labor NCVET National Council for Vocational Education and Training NSO National Statistics Office PIU Project Implementation Unit RMC Regional Methodological Center SIDA Swedish International Development Agency TOR Terms of Reference TVET Technical and vocational education and training UNDP United Nations Development Program 83

3 Contents I. Background II. III. IV. Objective Project Context Tasks V. Expected Outcomes VI. VII. VIII. I. BACKGROUND Deliverables and Reporting Location and Time Commitment Personnel Requirements The Compact between the Government of the United States of America and the Government of Mongolia was signed in September MCA-M is the Mongolian Government agency tasked to implement the MCC Compact, which aims to achieve key objectives in the areas of economic growth and poverty reduction in Mongolia. A central component of the Compact is a major program in the development and reform of the nation s TVET system. The TVET Project is designed to increase the wages of poor Mongolians by improving their technical skills and productivity to meet labor market demand. This goal will be accomplished by (i) strengthening the institutional framework needed to support a demand-driven vocational education and training system; (ii) defining industry-led skills standards for priority trades and occupations and translating occupational standards into modern curricula supported by new instructional materials and equipment; (iii) improving teacher training and professional development of a wide range of TVET staff and agencies; and (iv) establishment of a career guidance services and a labor market information system. The Project will support measures to upgrade and modernize vocational schools and technical colleges to support a demand driven TVET system. The MCA-M TVET Project will improve the quality of vocational education and training by making the nation s TVET system more relevant and responsive to labor market demand and employer requirements. II. OBJECTIVE MCA-M, TVET PIU is seeking technical advisory and consulting services for an assignment to assist with the implementation of a TVET Project Activity aimed to establish an integrated Labor Market Information System and Career Guidance Services in Mongolia. The overall objective of the required consultancy services is to design LMIS and CGS and conduct related capacity building activities to run LMIS and CGS implementation smoothly. III. PROJECT CONTEXT (a) Labor Market Information System (LMIS) Several Mongolian laws and regulations, for instance the Law on Statistics, the Employment Promotion Law, the Law of Mongolia on Professional Education and Training, the Law of Mongolia Labor Code as well as the Joint order of the head of National Statistics Office and Minister of Social Welfare and Labor, have relevance for labor market information. Currently, labor market information is collected and administered by different organizations in Mongolia, such as MSWL, NSO etc. LSWDs under LSWSO and MSWL collect and process administrative and labor-market information and provide employment related training services 84

4 for unemployed people. Labor and social welfare divisions exist in all 21 provinces (aimags) of Mongolia and all 9 districts of UB. On the county-level (332 sums) social workers are obliged to collect employment related information and to provide service and training for job seekers. The quality of their services, however, is inconsistent. In January 2009, the Mongolian Ministry of Social Welfare and Labor (MSWL) established the Labor Exchange Central Office (LECO) in Ulaanbaatar which will be responsible for managing an LMIS. Currently, LECO has implemented an online platform on which job seekers input their personal data and employers can input information about vacancies. Software is in place to synthesize demand and supply information and produces advice for the users. The system is also capable of informing users about relevant training opportunities. LECO has cooperated with the Korean Employment Information Service. The Metropolitan Employment Department of Ulaanbaatar City also collects labor market data, develops rankings of jobs with future potential, publishes newspapers with job adverts, organizes job fairs etc. This organization has cooperated with the ILO on several projects. Moreover, as a result of the willingness and effort of the Government of Mongolia seeking to develop a TVET system in line with market demand driven institutional arrangement, the National Council for Vocational Education and Training (NCVET) was established in July The council is the top level decision making body which oversees the entire TVET system activities. NCVET has 16 members, 8 of which come from government organizations and 8 from private business. There are currently three sector councils (for mining, construction and agriculture) in charge of sector specific TVET administration. Like NCVET, the councils have a parity of government and private members. As a newly established government implementing agency, the agency for vocational education and training (AVET), was established in August 2009 and acts a secretariat for NCVET. According to the Law of Mongolia on Professional Education and Training, AVET should study and advertise the demand and supply of the labor market. However, these different agents on the labor market currently do not collect and use this information effectively. The agents comprise the supply side (job seekers), the demand side (employers) and interfaces between these two sides (labor and social welfare divisions, social workers, TVET schools etc.). Some of the reasons for these inefficiencies include: Tasks and responsibilities are not clearly defined. Whereas some data is not collected at all, other information is collected by several institutions. Incentives for job seekers and employers to disclose information may be insufficient. Data is not compatible, incomplete, inaccessible, inconsistent as well as outdated and not used effectively for the employment and education policy planning. Data needed for labor market forecasts is lacking. Therefore, there is not enough effective communication between the supply side, the demand side and the interfaces on the labor market. The different agents know too little about each others' needs. This is a source of serious inefficiencies on the labor market. In addition, there is no system yet in place that allows forecasting labor market information. Forecasts are necessary for education policy, particularly for the planning of TVET supply. In 2008 UNDP and a consultant from the Swedish International Development Agency (SIDA) assessed the existing labor statistics and recommended: "strengthening capacity for analysis and policy-relevant reporting, both for the NSO and the MSWL, and the establishment at the MSWL of a statistical unit for the coordination and supervision of data collection at the Ministry and associated agencies, data processing, data management, production of statistics, and liaison with the National Statistics Office. In addition, it could be considered to establish an Institute for Labor Studies with the particular task to analyze labor market information for monitoring labor market trends and conducting labor market and employment analyses for policy purposes." As a result of this assessment the National Statistical Office has started to improve labor statistics in accordance with ILO international standards. 85

5 Currently, a network of fiber-optics is in place in Mongolia which covers almost the entire country and reaches most of the sums. Meritoriously, this infrastructure can be used for the LMIS purpose free of charge. Moreover, the MCA-M TVET project plans to procure the necessary ICT equipment and included standard software for the LMIS with a separate tender. (b) Career Guidance Services (CGS) There is currently no institution or agency which is able to provide young people, including those in employment and the unemployed with sound information on job and training opportunities in Mongolia. Students completing secondary schooling do not have opportunities to receive guidance in relation to technical and further education (outside of higher education). Presently, LSWSO and LSWD provide some basic employment related service and training for the job seekers. However, there are indications that neither job seekers nor employers are fully satisfied with their services and expect more customer orientation. Teachers and other staff at TVET institutions face demand for job guidance from their students and graduates. However, they are normally not trained professionally how to provide this service, or do they have access to this kind of training. This target group needs a wide spectrum of related competencies. They not only need to know the mechanisms of the labor market, job requirements and a profound understanding of relevant professions, but also psychological skills (e.g. the ability to assess the personal suitability of a graduate for a certain job) and the ability to prepare their graduates for job applications and professional life (resume writing, job interview preparation, social behavior at the workplace etc.). Many Mongolian job seekers are not well prepared for the challenges of finding and keeping a job. They are insecure about how to prepare for a job interview and how to behave during that interview. Moreover, many of them are not familiar with the social skills and the discipline required from an employee in a business organization. Consequently, employers often complain about a lack of work discipline among Mongolian workers. Therefore there is an urgent need to establish effective career guidance system, career information, organize service delivery, staff development and improve governance and coordination. This task will have been achieved through implementing the following objectives. IV. TASKS (a) LMIS The LMIS should be tailored to the actual needs in Mongolia but flexible enough for adjustment to possible future needs. Preference should be given to a straightforward user-friendly LMIS rather than a sophisticated system that is too complicated for its users. The consultant will implement the following tasks: 1. Analysis of current situation: Which kind of relevant information is currently available and where? Who is responsible for collecting and managing this data? How reliable and relevant is it? Who is using it? Are there inefficiencies? Where are the bottlenecks (data, software, hardware, organizations, staff, skills etc.)? What is needed? 2. Define architecture of the LMIS: Data formats, data structure, definition of user rights (who will be able to access which information? who will be authorized to input and change data? who will be authorized to change the structure of the LMIS etc.), data security (firewalls, backups etc.), use of the nationwide fiber-optics network etc; 3. Develop instruments and mechanisms of data collection, data analysis, data maintenance and user-specific data retrieval. This includes the definition of responsibilities, procedures, methods, frequency of updates and backups as well as the 86

6 production of practical tools (templates, standard forms, questionnaires, websites, portals etc.); 4. Develop relevant manuals; 5. The Consultant will provide training for staff responsible for the running of the LMIS defining relevant target groups for the training and learning objectives. The consultant will develop curricula and training materials for this training. The training will cover participants mainly from the following organizations (but is not limited to) LECO, MSWL, AVET, LSWSO, LSWD. The duration of the training will be one week. The training activities should have at least the following learning objectives: o Staff of LECO and other institutions that will be involved with the LMIS are able to provide, maintain and update the LMIS and ensure data safety. o Mongolian labor market specialists and LMIS organizers are able to make market projections and forecasts, analyze the labor market to develop policies that match demand and supply, and are able to collect and maintain labor market information data. o Technicians, operators, developers, professionals and research teams are able to use and maintain the software and to utilize the LMIS according to users' needs. The consultant will also coach the staff responsible for the management of the LMIS at their workplace to consolidate the learning objectives. 6. The Consultant will develop specifications for the software and hardware that are needed to run the LMIS. Hardware and software should be designed with sufficient capacity for peak seasons. However, procurement of hardware to run the LMIS is not a task of the consultant. The consultant will cooperate closely with the procurement of the hardware and software needed for the LMIS and will test it after it has been installed. It is expected that the Consultant has defined specifications for this hard- and software at least 4 months after the commencement of the assignment. Applicants are encouraged to further specify these tasks and add more tasks as necessary for the methodology suggested in their proposals. (b) CGS The career guidance service will help students to obtain information to plan an appropriate career. A career information system will consist of school preparation for the career choice process to learn to work with information and use it to make responsible decisions, to have a basic knowledge about the world of labor and education, to draw a basic picture about relevant professional and educational opportunities, to know possible obstacles in the labor market, and to gradually recognize their own interests and abilities. 1. Analysis of current situation: Which kind of relevant services are currently available and where? Who is responsible for providing these services? How reliable and relevant are they? Who is using them? Are there inefficiencies? Where are the bottlenecks? What is needed? 2. Define functions, institutions, responsibilities, procedures, tasks and tools of the CGS. This also includes quality standards, frequency of services and the identification of training needs for current and potential job counselors; 3. Develop the on-line career guidance information services; 4. Develop relevant manuals; 5. The Consultant will provide training for job counselors and other staff responsible for the CGS. The consultant will define relevant target groups for the training, relevant 87

7 learning objectives and develop curricula and training materials for this training. The training will cover participants mainly from the following organizations (but is not limited to): TVET institutions, LSWSO, LSWD, LECO, and other career guidance providers. The training will last for weeks. The training activities should have at least the following learning objectives: CGS consultants, CGS organizers and job counselors are able to provide flexible and adequate job counseling services to job seekers and students They have a profound understanding of the labor market and of relevant job requirements. They are able to assess the personal suitability of job seekers for certain jobs. They are able to prepare job seekers for the challenges of job application (resumé writing, preparation for job interviews, appropriate behavior at job interviews etc.) and professional life (work discipline, safety awareness, hygiene, respect of colleagues, work ethics, responsibility etc.) through training, coaching and counseling Staff of LECO is able to provide training that enables staff of TVET colleges and Labor and Social Welfare Departments (on the aimag level) as well as RMCs to provide job counseling services based on the CGS (train the trainers). The Consultant will also coach job counselors and other staff responsible for the CGS at their workplace to consolidate the learning objectives. Applicants are encouraged to further specify these tasks and add more tasks as necessary for the methodology suggested in their proposals. V. EXPECTED OUTCOMES (a) LMIS A complete architecture of the LMIS has been defined. The structure of the LMIS is suitable to the needs of Mongolia and flexible enough to be extended when further needs arise in the future. Data formats and database structures are, as far as practicable, internationally compatible. Inputs of the LMIS include data about job seekers, job vacancies, training services etc. Outputs include the identification of discrepancies between labor market demand and supply, forecasts of labor market developments, training needs etc. Responsibilities and procedures for data collection are clearly defined. Tools for data collection, such as templates and questionnaires have been developed. There are clear procedures defining which data should be collected by whom, how often and in which way. Procedures and legal conditions are in place to assure the continuous and consistent delivery of up-to-date information without data loss and without delay. Responsibilities and procedures for data input are clearly defined, including the definition of coding procedures. Responsibilities and procedures for data analysis as well as for the management of the LMIS are clearly defined. Authorities responsible for these tasks are aware of their responsibilities and agree to fulfill the related duties. This includes authorities on the national, aimag and sum level countrywide. The responsible authorities have the competencies required to fulfill their intended functions. Labor market data, which is relevant and comprehensive with respect to the needs of Mongolia, is available in a systematic way and up-to-date. User-friendly software helps to access and manage this data effectively. 88

8 VI. The information in the LMIS is safe against abuse, unauthorized manipulation and data loss. The privacy of users is guaranteed. The intended target groups are aware of the existence, the functions and the accessibility of the LMIS. They use the LMIS appropriately. The LMIS contributes substantially to the skills-specific placement of job seekers countrywide. (b) CGS A consistent countrywide Career Guidance System (CGS) is in place. User-friendly career guidance services are supplied by a countrywide network of providers (e.g. LSWD, TVET institutions and others) with designated staff that is qualified to provide these services. Responsibilities and procedures for the CGS are clearly defined. (This may include the definition of institutions and functions of an effective CGS). Responsibilities and related duties of authorities (LECO, LSWDs, 6 RMCs) at national, aimag, sum and district levels are defined. On the aimag-level staff of LSWDs and 6 RMCs and/or other career guidance providers are able to deliver professional and tailor-made face-to-face job counseling services for individual job seekers and to organize guidance sessions for selected groups of job seekers. Competent job counselors provide face-to-face services to applicants, students and graduates at selected TVET institutions. In addition, these selected TVET institutions also provide job counseling expertise on selected key industrial sectors (such as mining, construction, heavy machinery etc.). Ideally this latter service will be provided by 5 to 10 trained industry-specific counselors in each of the selected TVET institutions. Staff of career guidance providers (LECO, LSWDs and 6 RMCs) is able to use the LMIS, have access to relevant LMIS data and use it appropriately. In addition to the face-to-face career guidance, on-line career guidance services are available for job seekers. These may include information about occupations (job descriptions, video clips etc.), on-line psychological tests, updated and relevant labor market information (based on the LMIS) etc. The on-line services are attractive for job-seekers and easy to use. Job seekers are aware that the CGS exists and use it appropriately. The CGS contributes substantially to the skills-specific placement of job seekers countrywide. DELIVERABLES and REPORTING Deliverable/Activities Report Due Date Payment Schedule Inception workshop Agree format for the reports between PIU and Inception Report including detailed work plan, Within 30 days of contract commencement 20% consultant schedule, staffing Analysis of the current and analysis situation of LMIS and results CGS Complete LMIS and CGS designs Specifications for software First Progress Report Within 4 months of contract commencement 20% 89

9 Deliverable/Activities Report Due Date Payment Schedule and hardware of LMIS Curricula and content of the LMIS and CGS training Design of on-line career guidance services Second Progress Report Within 6 months of contract commencement 20% Training implemented Online career guidance information services Third Progress Report Within 9 months of contract commencement 20 % User manuals and recommendations Draft Final Report Within 11 months of contract commencement Closing workshop Final Report Within 12 months of contract commencement or within 2 weeks of receipt of comments from MCA-M on the Draft Final Report Note: The PIU will issue an acceptance letter and transfer scheduled payment within 14 days of the receipt of reports. All reports, namely, inception, progress, draft final and final report, are to be submitted in English and Mongolian in hard and electronic copies (in MS Word) with all relevant annexes. The Consultant will liaise with MCA-Mongolia staff and work closely with the TVET Project Director and relevant TVET PIU staff. Meetings with senior government officers will be coordinated through the TVET PIU and may require the involvement of the TVET Director. VII. Location and Time Commitment The technical assistance activity will be completed within 12 months. All technical assistance activity will be carried out in Mongolia and will involve project implementation locations including 21 aimags. VIII. Personnel Requirements The Consultant will provide the following personnel having the expertise, qualifications and experience: Team Leader and LMIS Specialist (12 person/months) N/A 20% A university degree in economics or labor market policy or a closely related field. A minimum of 10 years of relevant professional experience with the establishment and management of an LMIS. A minimum of 5 years of professional experience as a team leader in a complex international project. Significant practical experience in the application of labor market information for education or labor policy/administration. International experience is required. Experience in providing consultancy services to ministry-level staff and officials. 90

10 Excellent analytical skills. Excellent oral and written communication skills in English, including reporting and presentation skills. Proven ability to facilitate and coordinate timely and effectively among multiple agencies and stakeholders. Ability to work as leader of a team in an international environment with people from diverse backgrounds and cultures. Labor Market Specialist (12 person/months) A university degree in economics or labor market policy or a closely related field. A minimum of 5 years of relevant professional experience in labor market policies. Professional experience in the use of labor market information for administration and planning. Professional experience in working with skills standards, preferably skills standards development. A proven understanding of the mechanisms of the labor market (supply side, demand side, interfaces between supply and demand). Oral and written communication skills in Mongolian and English, including reporting and presentation skills. Fluency in Mongolian language is required. Ability to facilitate and coordinate timely and effectively among multiple agencies and stakeholders. Ability to work as part of a team in an international environment with people from diverse backgrounds and cultures. Training Specialist (6 person/months) A university degree in pedagogy or a closely related field. A minimum of 10 years of relevant professional experience in the organization and delivery of training related to LMIS, career guidance, labor market policy or similar fields. Relevant professional experience with the identification of target groups for training activities, the definition of learning objectives (in co-operation with teams of experts) curriculum development, development of learning materials and visualization, participant-oriented training methods, training of trainers, moderation of workshops and discussions, coaching on-the-job as well as evaluation of training. Excellent communication skills in Mongolian and English. Fluency in Mongolian language is required. Ability to work as part of a team in an international environment with people from diverse backgrounds and cultures. Career Guidance Specialist 1 (8 person/months) A university degree in labor market policy or a closely related field. Minimum of 5 years professional experience in career guidance or career information systems. Professional experience in the use of labor market information for career guidance. International experience is required. 91

11 Excellent oral and written communication skills in English, including reporting and presentation skills. Ability to work as part of a team in an international environment with people from diverse backgrounds and cultures. Career Guidance Specialist 2 (12 person/months) A university degree in labor market policy or a closely related field. Minimum of 5 years professional experience in career guidance or career information systems. Professional experience in the use of labor market information for career guidance. Excellent oral and written communication skills in Mongolian and English, including reporting and presentation skills. Fluency in Mongolian language is required. Ability to work as member of a team in the international environment with people from diverse backgrounds and cultures. IT Specialist (8 person/months) A university degree in IT, computer science or a closely related field. A minimum of 5 years of relevant professional experience in database management, preferably in the management of labor market data. Relevant professional experience in developing user-friendly software for data input and retrieval, tailor-made for different users (including users without IT expertise). Relevant professional experience in the establishment and management of a LMIS or a similarly complex system. Good communication skills in Mongolian and English. Fluency in Mongolian language is required. Ability to work as part of a team in an international environment with people from diverse backgrounds and cultures. Overview of estimated inputs Position Number of person Person/month 1 Team Leader and LMIS Specialist Labor Market Specialist Training Specialist Career Guidance specialists IT specialist 1 8 Total