TORs – individual consultancy assignment “RFQ- Individual Consultancy/Policy Expert” At

BACKGROUND

Lebanon’s socio-economic landscape is marked with interconnected and often devastating shocks. The economic and financial crisis that erupted in late 2019 profoundly undermined the nation’s economic stability and social cohesion and for nearly five years now, Lebanon has been witnessing its repercussions, that were further exacerbated by the COVID-19 outbreak, the massive Beirut blast in August 2020, chronic political paralysis and lately an armed conflict resulting in forced internal displacement.

The economic and financial crisis only exacerbated existing structural gaps in the social protection system and labour market in Lebanon. These include a fragmented and weak social protection system, providing low and unequal coverage as well as inadequate and limited benefits, in addition to rising rates of unemployment, underemployment and labour market inequalities. The labour market recovery from this massive shock had taken time and risks being uneven and affected by individuals’ detachment from the labour market as well as skill mismatches between the jobs lost during the crisis and those created as economic growth resumes. All these challenges arose amid inadequate and weak social protection schemes intended to alleviate hardships in times of crisis.

With the recent escalations, repercussions of the conflict on employment in both private and public sectors are clear but will only fully unfold over time. Job security, hiring rates, and overall economic stability are likely to face even greater challenges, deepening the strain on Lebanon’s workforce. In the private sector, businesses across industries are facing closures, decreased consumer demand, and disrupted supply chains, forcing some of them to downsize or halt operations entirely especially in the affected geographical areas. In November 2024, the World Bank estimated the damage in agriculture at US$124 million, with losses over US$1.1 billion, driven by lost harvest caused by destruction of crops and livestock and displacement of farmers. Commerce accounts for US$178 million in damage with losses estimated at US$1.7 billion, primarily driven by the displacement of employees and business owners, supply chain disruptions, and shifts in consumption towards essential goods. In the education sector, losses are estimated at US$215 million based on lost private school tuition payments and the costs of temporary schooling. Environment, through natural resource degradation and the impact on solid waste management, has incurred US$221 million in damage with losses estimated at US$214 million. The health sector has suffered damage valued at US$74 million, with losses estimated at US$338 million. Tourism and hospitality account for US$18 million of damage, but have losses estimated at US$1.1 billion, driven by reductions in tourist arrivals and inbound travel, affecting revenues of hotels, restaurants and other businesses reliant on tourist spending. Additionally and according to the NSSF, 107,913 individuals and 18,587 institutions are registered in the nine branches that were temporarily and forcibly closed due to the conflict, offering a tangible sense of the issue’s magnitude. Meanwhile, the public sector is also under strain as government resources are expected to decrease significantly, further worsening the situation and delaying further adjustment of salaries. To respond to the crisis, MOSA and partners have leveraged existing social assistance programs to provide emergency cash assistance to a larger population group, mainly expanding horizontally and vertically the coverage of such programs.

Today, Lebanon stands at a critical crossroad where maintaining the status quo could lead to further deterioration of the social situation or alternatively pursuing structural transformation of its social protection schemes. Fortunately, the first step towards this transition was taken with the adoption of a National Social Protection Strategy, grounded in human rights principles, and designed to be shock responsive. The Strategy includes a key pillar on Economic Inclusion and Labour Activation, intended to reform such policies within the framework of establishing a more robust, sustainable and employment-friendly social protection system. The aim of the Pillar is on ‘reducing labor market imbalances and introducing supply side measures that can sustainably address unemployment and underemployment and ensure worker retention in the labor market amongst most vulnerable segments of the population.’ However, the implementation of the Strategy requires concerted efforts, particularly at the level of policy design, where thorough and evidence-based deliberation is crucial.

In light of the above and as part of its continuous effort and commitment towards reforming the social protection landscape in the country, the ILO office for the Arab States, under the framework of the ILO-EU partnership through the ENABLE Program, is now seeking to engage a policy expert to develop a policy note on key priority policies and measures for labour activation in the country and establishing linkages with shock-responsive social protection schemes, in the current context of conflict and fragility.

CONTEXT AND RATIONALE

While the integration of labour activation programs[1] within broader social protection measures is generally considered the most effective approach to improving socio-economic outcomes, it becomes even more crucial in the context of crises and emergency response. In fact, employment-friendly social protection systems play a key role in creating enabling conditions and overcoming barriers for individuals to be active in the labour market and reduce risks of labour market exclusion over the life-course, particularly for those in vulnerable situations. Interventions that combine social protection schemes with active labour market policies support key life-course transitions. Indeed, job seekers might be unwilling or unable to join labour activation programs if they need to bear the implicit cost of participation in terms of foregone labour income. Carefully planning the combination and sequencing of such interventions will help bridge the gap between short-term goals, such as sustaining income with the objective of retraining workers for jobs that might emerge in the future.

In response to the current crisis, the government and development partners, including the ILO, have mobilized to provide adequate income support to displaced and affected populations. While these immediate and short-term measures are vital for addressing shocks, it is equally important for the government and partners to support individuals in retaining and accessing quality jobs through active labor market interventions. This twin-track and integrated approach helps mitigate vulnerabilities and poverty stemming from the compounded crises while laying the groundwork for a swift and sustained return to employment.

Drawing on international best practices, including in the context of the response to the recent global pandemic, this policy document aims to provide practical guidance on how to establish effective linkages between social protection systems and labor activation measures in the context of compounded crises and conflict. The note will focus on actionable strategies for integrating income support with employment initiatives, including at the level of policy and institutional frameworks, coordination mechanisms, and service delivery infrastructure, and that enable a comprehensive response to both immediate vulnerabilities and long-term labor market recovery.

The note should be tailored to the unique context of Lebanon and fits the country’s needs, institutional set-up, legal framework and governance structure, in the current state and within the framework of a potential future recovery. This policy note will serve as guidance to both policymakers and development partners to design, support and implement comprehensive packages of active labour market polices in tandem with social protection programs.

SCOPE OF WORK AND ACTIVITIES

Under the supervision of the Enable Project Manager and the Lebanon Social Protection Specialist, and the overall coordination of the National Social Security Officer in Lebanon, the policy expert is expected to deliver the below scope of work:

Definitions and Contextual Framework:

• Define key concepts and terms related to social protection schemes and labor activation policies to establish a common language for the policy paper with emphasis on critical terms such as social protection, labor activation policies, labor market integration, economic inclusion, income-support programs and other relevant concepts.
• Identify local definitions of above-mentioned concepts as outlined in national laws, policies, and programs, with a particular focus on the recently adopted National Social Protection Strategy.

Literature Review and Analysis:

• Perform an in-depth review of existing literature on labour activation programs and their linkages with social protection schemes, including, but not limited to, publications by the ILO, World Bank, OECD, and other relevant organizations.
• Pinpoint leading global best practices for integrating labor activation policies within Social Protection Schemes, including in the context of the recent global pandemic.
• Identify successful integration models implemented in other countries with a particular emphasis on regional countries or countries with similar socio-economic conditions and highlighting lessons learnt.

Diagnosis of the current landscape:

• Compile and review past and existing public Labor Activation programs and initiatives, spanning across various industries, sectors and beneficiaries’ groups, in addition to interventions supported by development partners, including donors, UN, NGOs, financial institutions, and private sector.

This review should represent the scope and key features of each program, highlighting overlaps, synergies, and gaps as well as perceived results and impact.

Institutional Analysis:

• Explore the past and current structure of the National Employment Office, focusing on the range of services provided (or that should be provided), operational efficiency, and governance mechanisms. Evaluate the potential role this office can play in establishing linkages with Social Protection schemes.
• Analyze MOSA’s service delivery infrastructure, such as the Rights and Access Program and Social Services, including the functioning and organizational set-up of their regional and local centers (R&A centers and SDCs). The analysis should emphasize their capabilities and operational capacity (based on existing assessments), services delivered, the efficiency of their operations, and the governance practices in place. Determine how these aspects can contribute to the centers’ role in facilitating labor activation.
• Review the role of the Civil Service Council in public employment and examine their recruitment and HR processes with the goal to explore potential linkages with Labour Activation and Social Protection schemes.
• Identify other relevant institutions and structures and evaluate their potential role in different labour activation measures and policies.
• Undertake a thorough review of the Labour Law and other related legislation and strategies, with particular attention to Law 220 on the “Rights of People with Disabilities,” as well as any relevant draft laws currently under discussion or approved strategies (for example gender strategies or plans with a focus on women’s economic empowerment). Evaluate key provisions and assess their potential impact on labor activation policies and initiatives.
• The policy note can be structured around the following themes:
• State of employment activation schemes in the country, and any existing or potential synergies with social protection programs
• An evaluation of the role of the public and private sectors and existing institutions in supporting labour activation measures.
• Overarching recommendations and strategic priorities in the establishment of a coherent set of labour activation policies and programs that are integrated with social protection policies, both existing ones and those envisioned under the NSPS.
• Practical recommendations with regards to policy framework, coordination and governance mechanism, as well as service delivery infrastructure needed to support establish labour activation programs and link them to the social protection system, particularly non-contributory income-support programs.

Report Writing and Policy Recommendation:

• Develop actionable policy recommendations to improve the integration of labour activation and social protection programs.
• Propose strategies for better institutional coordination, targeting, and service delivery.
• Suggest mechanisms for monitoring and assessing the impact of proposed reforms.
• Prepare a comprehensive policy note summarizing findings, analyses, and recommendations.
• Ensure the report is clear, concise, and accessible to policymakers and stakeholders.

The expert is expected to develop a full detailed methodology for the development of the policy note, including any data collection tools. We expect the methodology to include:

1. Literature review
2. Key informant interviews
3. Stakeholder Consultation, including government ministries, social partners, International Organizations, NGOs, syndicates, employers’ organizations, labor unions, organizations of people with disabilities (OPDs), women’s rights organizations, and beneficiaries to gather insights, feedback and ideas on proposed linkages mechanisms.
4. Validation sessions or dialogue around key recommendations.

OUTPUTS AND DELIVERABLES

The deliverable outputs of the assignment under the scope of these terms of reference will include:

1. Literature review report on labour activation policies and programs and linkages with social protection, as detailed above.
2. Detailed outline for the policy note, covering the list of activities mentioned above, including with respect to work plan, detailed methodology and data collection tools/guides.
3. Draft policy note, detailing key findings, lessons and recommendations, including practical steps and strategies for integrating labor activation programs with social protection schemes. The report will be submitted for feedback and comments. At least two rounds of feedback are expected.
4. Final policy note, incorporating the feedback and comments, to the satisfaction of the ILO. This includes validation session/dialogue conducted and takeaways incorporated into the report.

TIMELINE AND PAYMENT SCHEDULE

The consultancy will commence on February 10, 2025, and conclude on April 20, 2025 for a maximum of 35 working days.

Deliverable

Timeline/Deadline

Due Payment

Literature Review Report

February 20, 2025

10%

Inception Report, including workplan, detailed methodology, data collection tools and guides, and outline of the report

March 1, 2025

10%

Draft Policy Note

April 1, 2025

20%

Final Policy Note

April 10, 2025

60%

QUALIFICATIONS AND SELECTION CRITERIA

The ILO is seeking a policy expert with expertise in social protection and employment programs and initiatives.

The external collaborator is expected to have the following qualifications, experience and competencies:

• Advanced academic degree (Master or PhD) in the field of law, sociology, economics or any other relevant field or combinations of fields.
• Minimum of ten (10) years of professional experience in research, policy design and program implementation.
• Understanding of employment and social protection systems, including contributory and non-contributory approaches and economic inclusion initiatives and strategies.
• Proven experience working on assignments related to social protection and employment.
• Experience working in international contexts including in the Arab region is an asset.
• Familiarity and exposure to rights-based approaches to social protection.
• Ability to work proactively while keeping ILO officials engaged and informed.
• Excellent command written English. Arabic would be an advantage.

[1] These include job search assistance, up-skilling, and retraining programs such as employment incentives. Please refer to the National Social Protection Strategy for an overview of key policy initiatives under Labour Activation.