Human Resource Supply Labour Market Demand (Afghanistan - 2007)

Islamic Republic of Afghanistan

Ministry of Labour, Social Affairs, Martyrs and Disabled

Conducted by: The Labour Market Information and Analysis Unit. Supported by: The National Skills Development Programme. July 2007

A Study of

Human Resource Supply and Labour Market Demand

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It would be nice if the poor were to get even half of the money

that is spent in studying them.

William Vaughan

Manpower planning makes a fool of itself when over-ambitious; but labour market information is still an indispensable basis for plans of many kinds.

UK Overseas Development Agency


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Table of Contents Page

Abbreviations and Acronyms 5 Executive summary 6 1.0 Introduction 10

1.1 Background to the review 10 1.2 Rationale 10 1.3 Employment & Training Policy formulation 11 1.4 Bottom up approach 11 1.5 Skills development 12 1.6 Labour market information(LMI) 13 1.7 Human Resource Development (HRD) 13 1.8 Interim Afghanistan National Development Strategy (I-ANDS) 14 1.9 Definitions 14 1.10 Capacity building 15 1.11 Labour market information and analysis unit (LMIAU) 16 1.12 Existing capacity 17 1.13 Bench marks 17 1.14 Project Phases 17

2.0 Review methodology 19 2.1 Preparatory research 19 2.2 Desk study 19 2.3 Reports reviewed 22

3.0 Secondary Supply Sources 32 3.1 General population Data 32 3.2 General education picture 32 3.3 Higher education 37 3.4 Access to University 39 3.5 Non Formal/Informal 39 3.6 Non Government 40 3.7 Private sector 40

4.0 Secondary demand data 41 4.1 Government employment potential 41 4.2 Employer's demand information and data 42 4.3 NSDP demand information and data 43 4.4 Other sources of demand information 49

5.0 Gaps in data reviewed 51 5.1 Informal sector 51 5.2 Instructor training 51 5.3 Skill level 52 5.4 Skill standards/testing 52 5.5 Standard Occupational Classification 52

6.0 LMIA The way forward 53 6.1 Policy issues 53 6.2 Employment and training issues. 54 6.3 Labour Market Policy body (LMPB) 55 6.4 Restructure of the DME 55 6.5 Strengthen the Employment and Training function. 56 6.6 Intended beneficiaries 57


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6.7 Institutional Framework 57 6.8 LMIA network 57 6.9 Employment Service Centres 60

7.0 Recommendations 61 7.1 Labour market policy board 61 7.2 Labour market information and analysis unit 61 7.3 Labour market surveys 61 7.4 Staffing policy 61 7.5 Staff development 62 7.6 Staff career planning 62 7.7 Accession planning system 62 7.8 Capacity building across the MOLSA 62

8.0 Action Plan: 63 8.1 Setting the agenda 63 8.2 Alternatives 63

9.0 Draft proposal to strengthen the LMIA Unit 65 9.1 Establish a Labour market Policy Board 65 9.2 Strengthen Department of manpower & Employment 66 9.3 Establish and staff a Research and development cell 68

10. Bibliography & Related documents reviewed 70 11. Figure One: MoLSA Organogram 73 12. Figure Two: Suggested LMIA Unit Structure 74 13. Annex list 75

Annex A: Selected modern (formal)-sector enterprise listings

Annex B: Demand data from NSDP partners and other agencies

Annex C: International Standard Classification of Occupations listing


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Abbreviations and Acronyms ACBAR Agency Coordination Body for Afghan Relief ACEG Afghan Carpet Exporter’s Guild ADB Asian Development Bank AGEF Association of Expert in the Fields of Migration & Development Cooperation AICC Afghanistan International Chamber of Commerce ALTAI Altai Consulting AREU Afghanistan Research and Evaluation Unit ARDS Afghanistan Reconstruction and Development Services ASMED Afghanistan Small & Medium Enterprise Development AWBF Afghanistan Women’s Business Federation CIPE Centre of International Private Enterprise CSIS Centre for Strategic & International Studies CSO Central Statistics Office ESC Employment Service Centre GTZ Deutsche Gesellschaft für Technische Zusammenarbeit ILO International Labour Organization IRC International Rescue Committee ISAF International Security Assistance Force ISCO International Standard Classification of Occupations JICA Japanese International Cooperation Agency KOICA Korean International Cooperation Agency LMIAU Labour Market Information and Analysis Unit MOC Ministry of Commerce MOEd Ministry of Education MOEc Ministry of Economics MOHE Ministry of Higher Education MOLSAMD Ministry of Labour, Social Affairs, Martyrs & Disabled MOPW Ministry of Public Works MRRD Ministry of Rural Rehabilitation MOWA Ministry of Women’s Affairs NRVA National Risk & Vulnerability Assessment NSDP National Skills Development & Market Linkages Project NSS National Surveillance System PDT Peace Dividend Trust PRT Provincial Reconstruction Team RI Relief International RFP Request for proposal SAB Solidarite Afghanistan Belgique SDO Sanayee Development Organization UNDP United Nations Development Programme USAID United States Agency for International Development WB World Bank WFP World Food Programme


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Executive Summary This study is submitted in response to the requirement to support the Afghanistan National Development Strategy (ANDS) and to meet the benchmark: “A human resource study will be completed by Jaddi 1385 (end-2006)” Although the benchmark statement does not include a clause which defines the scope of such a ‘human resource study’, discussions with representatives of the ANDS and the Ministry of Finance led to an acknowledgment that it would take the form of a labour market supply and demand study. It was also agreed that given the huge effort and expense required to undertake such studies, and the fact that there was no Government agency technically and financially equipped to do this, therefore the Ministry of labour and Social Affairs, Martyrs and Disabled (MoLSAMD), through the National Skills Development Program (NSDP), would commission the study whilst simultaneously developing some foundation capacity at the MoLSAMD in order to undertake such investigations and reporting on a sustainable basis in the future. Overall, the intention is to contribute to a better understanding of the labour (‘human resource’) supply and demand situation in Afghanistan. However, it has to be appreciated that even in developed countries, which have almost a 100% formal-sector economy; it is difficult to provide an absolute degree of precision in predicting the required numbers of workers at a national level – particularly in the non-public sector. In other words, no national report relating to a mixed and free economy is likely be able to predict, with certainty, how many construction workers, accountants, horticulturalists etc., are needed in a particular city or district. In practice, national data is compiled from a wide range of sources and is used to inform general trends related to the economy – with those analysing the data having specialist knowledge of certain sectors and presenting that to key decision makers. At the local level, and particularly in connection with training, it is largely the responsibility of local training institutions themselves to become tuned to the needs of their local economies, and to respond to those needs - with national authorities providing key statistics and information relating to general trends and complementing the local institutions’ efforts. In other words it is the combined efforts of many local and national institutions which provides us with the complete labour market picture – and with a 90% informal and unregistered free economy, such as that now existing in Afghanistan, a combined but coordinated approach is likely to work best. The study was carried out in a series of stages commencing with a desk review of issues at the policy level with regard to, mainly, employment and training. It then presents a summary of the most recent data on labour supply and demand – much detail being provided in the annexes. It concludes with recommendations regarding what provision of labour market information collection and analysis might work best for Afghanistan at present, and in the near future. In Section One, the position taken is that the development of present capacities of the public service, and MOLSAMD in particular for labour market enquiry and reporting, should be tempered by the reality that there are serious deficiencies in ‘baseline’ human capacity that can only be overcome by a phased and longer-term, ‘organic’ approach to agency development.


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The report suggests that, among others, policies are required that promote a bottom up approach to enable the majority of the population, the semi-skilled and rural people, to be mobilized through locally initiated schemes and provided with support for vocational training, micro and small enterprise development, business development services, value chain analysis and credit. Labour based technologies must be used to generate income. The formulation of such policies requires those involved to conceptualize and carefully consider the economic and social realities of the country at this stage of its development, and in more detail than is probably being considered at present. Section Two contains a short review of international sources, with one key document alerting readers to the fact that often, in countries like Afghanistan, the approaches needed to inform employment and training interventions, and especially labour market enquiries, need to be pragmatic, demand–driven and adequately resourced. Potential sources of Labour Market Information (LMI) are then described, and followed by reviews of eleven significant documents. In each case conclusions were reached that focus on the implications for any future labour market information and analysis activity, the level of experience of the designers, the problems of data consistency and, in most instances, the lack of any statistical frame. However, the value of the reports is acknowledged, as is the fact that the reasons for their commissioning were not necessarily as a means of generating generic LMI. The report which, to date, is most informative in terms of providing data linked to indicators of the market was the International Rescue Committee’s (IRC’s) report of September 2003. Lessons learned, strategies used, methodologies followed and the structure of the documents were noted for future reference for the capacity-building of the Labour Market Information and Analysis Unit proposed. Section Three looks at the available data on the supply side from available sources within Government, selected Non Government agencies and key ‘modern (formal) sector’ employer organizations. The total numbers of students currently being prepared for technical careers in relation to the actual demand for such students is in urgent need of review by policy makers. The ratio of technician and skilled worker-level graduates, when compared to the tertiary/higher education output, appears to be out of proportion to the needs of the country. The private proprietary training sector was not assessed as no documentation has been found. Section Four considers secondary demand data by looking first at the employment figures of the Government, private sector business community and reports containing some demand data. Although there is a lack of information on the informal sector, in-roads are being made by the National Skills Development Program (NSDP). This requires that Implementing Partner (IP) Training providers (TPs) provide substantial employment demand data as a condition of entering into contract negotiations. The NSDP also requires that contracted TPs collect local demand data, based on the International Standard Codes for Occupations, from the localities in which they work. (This being good practice for any training provider anywhere.) Data from previous NSDP contracts, where they were substantial, are also summarized. The efforts of the Employment Service Centres (ESCs) of the MOLSAMD to balance supply with demand, is also recorded. However it is felt that the large numbers of semi-skilled and rural people in need of income earning opportunities are somewhat overlooked by the existing network. Alternatives to the ESCs that recognize the informal coping mechanisms that have traditionally found employment should be investigated as a means of gathering real time labour market data. Privatization of some segments of the employment service should also be


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assessed, especially for foreign worker placement, and as a means of tracing expatriate worker numbers internally. Section Five addresses the gaps in data, the paucity of ‘comparable’ data and the difficulty of drawing correlated conclusions and obtaining reliable information. Where available information did refer to the links between the education and training being provided, but there was virtually no mention made of size or the complexity of determining the demand for skills in the informal sector. The report concludes that the typical approaches to determining employment status, and assessing demand based on statistical frames, is inappropriate at given the present stage of the country’s development. Section Six looks at policy issues as they relate to employment and training and suggests ways of moving forward from a single and narrowly based model to something straight forward, standardized and more likely to be sustainable. The strategy proposed at the central level would involve a range of potential stakeholders and beneficiaries in a series of discussions that would lead to the establishment of a multi-agency/ministry body to be responsible for labour market policies. These policies would in turn be the framework within which future regulations, strategies and implementation mechanisms would be developed. This section also suggests that the implementation be driven by a Labour Market Information and Analysis Unit (LMIAU) within MOLSAMD. The intention is to identify a network of key sources of information in each province, the sources providing intelligence at provincial, district and local level. The development of the provincial network by the LMIAU is advocated as a means of empowering those who are best placed to provide feedback based on actual supply and demand needs. The mandate of the LMIAU must be based on the expectations of the labour market policy body who should determine the scope of such a network’s activities. To ensure that the LMIAU can provide the level and quality of services expected, requires posts for database development and data entry, plus professional staff with economics and statistical qualifications – as shown in a proposed organizational structure. Detailed data analysis and reporting capacity is a very specialised and crucial element and provision within the structure requires very careful consideration. Section Seven contains a set of recommendations that would inform any future employment and training policies in a manner that would promote efficient, effective, relevant and practical solutions suited to the prevailing situation in the country. The key recommendations are:

• The formation of a National Labour Market Policy Board made up of key stakeholders, with provincial ad-hoc advisory committees formed to provide local intelligence.

• That the scope and limitations of the LMIAU should be determined by the above Board so as to inform any decisions on staffing levels and qualifications, procedures, standards and quality criteria.

• That the responsibility for labour market enquiries commissioned by the Government be vested in this Unit.

• Outsourcing of selected surveys would also be encouraged, as would working closely with the Central Statistics Office for particular types of enquiries and sample frames – with privatization of some activities as and when appropriate.

• Policies, strategies and practices concerning staffing the LMIA Unit posts need to be developed and reviewed, and acceptable, minimum qualifications set. Transparent selection is essential, and career planning that includes inter-ministry transfers to provide promotion and cross fertilization of experience and ideas, ought to be


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adopted. An accession plan must be in place to ensure that institutional capacity is steadily built and institutional memory is retained as staff develop, move, are promoted and separate.

• An incremental approach to the strengthening of MoLSAMD, that matches the existing capacity, be implemented based on an agreed strategy over a five year period. (Any expectation that wholesale and overnight restructuring of the Ministry is possible at this stage is probably unrealistic. The natural and deep rooted resistance to change can only be overcome with a sensitive and carefully managed programme operating over the longer term – and that has serious cost implications for the TA support required.)

Section Eight proposes an action plan that would provide an opportunity for those other than the MoLSAMD staff to enter into a dialogue. The intention is to allow as wide a spectrum as possible of those who have specific labour market data needs to express them clearly. The objectives of the existing LMIA project are considered and modifications to the existing project strategy are explored. The proposition that the project would undertake to conduct a truly national labour market survey within its relatively short project life and, at the same time staff, train and establish a sustainable Labour Market Information and Analysis Unit is questioned. Alternatives are proposed and include a systematic and realistically timed staff development process. The proposal is that there is a clear separation of the one-off ANDS benchmark requirement of a ‘Human Resource Study’ (which has never been defined), from the capacity building responsibility. If this is adopted, and a more realistic timeline agreed, it should be possible to have the LMIAU retain responsibility for surveys. This would be undertaken, in collaboration with the Central Statistics Office (CSO), to set the frame, design the instruments, set the focus and, depending on capacity, decide to outsource activities such as data collection and quantitative analysis. The agency contracted to undertake this work would be required to mentor LMIA staff in the outsourced activities as a contribution to capacity building. Section Nine provides a draft proposal and structure for further development of the LMIAU. This proposal assumes that the Unit is to be further strengthened, located in MoLSAMD’s Department of Manpower and Employment and is sufficiently resourced. This draws together conclusions from the reviews, observations and comments from the key informants met - some having extensive international experience in the field of employment and training. Annexes have been compiled and include the data collected from different sources: Annex A: Selected ‘modern (formal) sector’ enterprise listings are included but limited to businesses. Ministries assuming responsibility for registration of these businesses varies widely. The CSO advised that statistical frames were difficult to draw up for both the modern and informal economy and agreed that data gathered at this time by non-statistical methods was probably an acceptable solution. Annex B: Demand data from various sources, including the NSDP Implementing Partners, is provided and is in a variety of formats. Here there is some data actual numbers of jobs available and some tracer information on employed trainees. (The LMIAU will develop a series of guidelines as a basis to build reliable labour market information as the NSDP and other networks becomes more sophisticated and expand.) Annex C: The International Standard Classification of Occupations (ISCO) listing is provided as there needs to be a clear and unambiguous understanding of job tiles when gathering labour market data. The LMIAU project will need to liaise with the Central Statistics Office to ensure data compatibility.


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1.0 Introduction

1.1 Background to the review This review report is submitted in response to the requirement in the MOLSAMD's strategy document written in support of the Afghanistan National Development Strategy. The Ministry of Labour and Social Affairs, Martyrs and Disabled (MOLSAMD) is committed to provide, among other things, " a sustainable system for on-going collection, analysis and dissemination of labour market information" and to "Building the capacity of the MOLSAMD staff in collecting and analyzing labour market information". 1 To achieve these components key strategic directions were formulated that refer to the development of the linkages between the labour force and labour requirements. 2 Within the overall Ministry strategy priority results expect to be enhanced by: • Implementing a review of existing data as a basis for a comprehensive labour market

study. The review, the focus of this report is scheduled for completion by July 31st, 2007 (5/1386)

• Completing a comprehensive study of human resources by August 31st, 2008 (6/1387)

• Building the capacity of national staff to sustain the LMIA Unit's on-going collection, analysis and dissemination of LMI. 3

As a first step in providing more focused data a Labour Market Information and Analysis (LMIA) Unit is being established within MOLSAMD. The Unit has the responsibility to provide a service that will continuously deliver useful and accurate data on supply and demand of workers in Afghanistan to a wide range of stakeholders throughout the country. This Unit is staffed by Afghans and headed by a national manager. As part of the initial activities the LMIA Unit will conduct a review of known data and texts to contribute to a better understanding of the labour supply and demand situation through out the country. To accomplish this aspect of the Unit's work a team of national staff is being assembled. Within the team a number of data entry and field enumerators will be recruited on short term contracts to provide support for an initial assessment of the supply and demand requirements throughout the country.

1.2 Rationale The decision to embark on any labour market information and analysis exercise in Afghanistan must be tempered by the realities found in terms of existing capacity within MOLSAMD. Knowledge of the tools to be used, the priorities to be focused on and the scope of any labour market survey exercise must be made based on staff and resources capacity that does not currently exist.

1 Ministry strategy for Afghanistan National Development Strategy, (with focus on

prioritization), MOLSAMD, Kabul, March 2007. 2 Op.cit., p16 3 Op. cit., p3


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The situation with respect to the quality of infrastructure, the security aspects in some provinces and the lack of baseline information in Afghanistan at this time is poor by international standards for such an ambitious exercise. This has resulted in some instances of less than rigorous approaches being used in the immediate past for data collection and subsequent analysis.

1.3 Employment & Training (E&T) Policy formulation It is generally agreed that a national E&T policy is a crucial element within any national economic and social development plan. E&T policy must be formulated in a manner that complements those of other national objectives. To make such decisions in isolation without some form of consensus is to court disaster. National policies must be clear to all concerned parties and defined in such a way that there is little opportunity for ambiguity on the part of the decision-makers, stakeholders and intended beneficiaries in the labour market. Government planners charged with the responsibility to respond with supporting legislation, regulations and strategies for implementation, must all have a common understanding of the reasons for and the political economic and social implications of these policies. This is a national responsibility and each ministry must be involved. From the perspective of this review, the linkages between population growth, the distribution of the population in terms of location, sex and age and, in the case of Afghanistan, the unique characteristics of a labour force emerging from protracted war, need to be understood when seeking solutions to labour market imbalances. The Government enters a period of post conflict peace having never had to conduct any type of labour market survey activity. As a result of this vacuum traditional coping mechanisms have evolved and a large proportion of unskilled and semi-skilled labour is sourced through traditional linkages with family, through word of mouth and by other forms of informal contact. Many people have multiple ways to cope and earn a livelihood in such an environment. Employment Service Centers (ESCs) as a means of finding work or sourcing labour is, as yet, relatively new as a concept in Afghanistan. It is not incumbent upon private employers to register vacancies nor is mandatory for the unemployed to register – and with such a large proportion (perhaps more than 90%) of the economy being informal in nature, it is questionable as to whether an ESC approach is cost effective, equitable and relevant at this stage. This aspect of MOLSAMD’s work focuses on a very small sector of the population and has limited value at this stage of the country's development. Policies are required to enable the semi-skilled and rural population to be mobilized through locally initiated schemes such as micro and small enterprise development, business development services, value chain analysis and credit, and labour based technologies must be used to generate income.

1.4 Bottom up approach Issues arising out of such policies requires that those promoting them conceptualize and carefully consider the economic and social realities of the country. This conceptualization can come from any quarter. In some instances what is known as a green paper is presented. It can be the result disaffection on the part of pressure groups within the private sector; in others, it is the result of sector-specific research and conclusions reached having studied a variety of


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government sources. The content of such papers, if sufficiently robust and demonstrates that there is adequate support, is usually discussed in the public arena. Such papers are the acknowledged vehicle used to stimulate debate on important issues. Debate and discussion usually extends across as wide a spectrum of the population as is possible and a variety of media are used to stimulate public involvement. The results of such discussion can lead to the review of existing policies and legislation and the resulting white paper, often providing the government’s view of the original green paper may then become the basis for the formulation of future policies. Given the current situation in respect of Afghanistan the processes followed to formulate the current strategy for MOLSA appear to have by-passed these essential earlier stages of public debate and policy formulation. Benchmarks could, in some instances, been set without the benefit of such deliberations. The present situation, with respect to MOLSAMD's draft strategy, is that it is both vague and inconclusive – probably because the vital stage of careful policy review and re-formulation has not been undertaken.

1.5 Skills development The National Skills Development Program (NSDP), currently led by the MOLSAMD, is one of a number of new National Priority Programmes (NPPs) announced in 2004. The NSDP, as one of its skills sector capacity development strands of activity, has introduced an innovative and transparent process of skills development throughout the country that is aimed at using a variety of implementing partners, both Government and Non-Government, to deliver courses linked to known local labour market needs. However, the NSDP has faced some constraints in terms of the absence of quantitative and qualitative LMI data and poor coordination among certain stakeholders. Although more and more information is being collected, and training providers are being registered, there remains inadequate local-level intelligence relating to employment opportunities and training potential available. There is reference in the MOLSAMD strategy to the NSDP being expected to provide training for the range of market forces jobs found in different economic sectors but in fact the NSDP’s main role, as clearly described in its strategy document, is to build the overarching management system for skills development. The strand which facilitates training through partner agencies will diminish as the agencies themselves adopt good practice, become accredited through the NSDP-developed accreditation system and achieve high levels of employment placement and thus win fees and other grant funding for themselves, based on good performance. One of the strategies the NSDP is using at the moment is to ensure that training providers are required to have identified employment opportunities, before contracts awarded, but given that there has been little data upon which to make decisions NSDSP has elected to use rapid assessments of employment demand based on local and focused needs. Priorities for NSDP include the responsibility to develop policy strategies and skilled personnel for national and international labour markets. 4 Such policies need to be conceived, developed, debated, legislated and provided with appropriate enabling regulations as soon as possible and it is hoped that the forthcoming World Bank Project, which is addressing TVET policy and

4 op. cit., p3


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qualification level and framework issues, will assist in moving forward on this as soon as possible. Clear policies will impact the way the LMI is collected, determine its application and inform those undertaking the surveys.

1.6 Labour market information The initial LMI review study being implemented in collaboration with the NSDP faces similar conundrums. What level of LM review is useful and to whom is it to be directed? Who needs this review and what value has it other than recording the past attempts to provide specific data for particular purposes? Is the review a preliminary activity that is intended to provide a base-line for a more comprehensive labour market survey? In fact the review can only record what has happened in the past in an anecdotal form as the reports and related documentation included in this document have been prepared for somewhat different purposes. The capacity building aspect of the LMIA Unit needs to be addressed and decisions made regarding staffing for data collection, entry and analysis, and how this links to the role of the Central Statistics Office. If there is to be any sustainability this needs careful attention and, among other, the following questions need to be addressed.

• Who will provide focus and direction to MOLSAMD's LMIA Unit as it evolves over time?

• What is the responsibility and scope of the MOLSAMD with respect to LMI in the broader context?

• What is the most appropriate level of intervention for the LMIA Unit at this stage of the country’s development?

Answers to these questions are expected to emerge during the mid-stages of building the LMIA Unit. 5

1.7 Human Resource Development (HRD) HRD planning, assuming it is based on a policy/strategy that is understood by those affected or impacted, requires that Government make HRD policy decisions based on an agreed national development strategy. Subsequent analysis is then required by a wide range of relevant ministries prior to determining amount and quantum of resources each requires prior to the formulation of a strategy to implement the policy. The private sector is also a party to any agreed HRD policies. This, it is assumed, equates to the processes being applied in the implementation of the I-ANDS. A national approach to HRD could benefit by using, as a model, the strategy adopted by the NSDP. Training is crosscutting, provides linkages with each level of the education system and allows for vertical and horizontal mobility of workers. Delivery is provided by public and private implementing partners. Training is offered to anyone wishing to attend as there are very few courses that have prerequisites. A gender balance is ought to ensure equitable distribution of economic opportunity. An accredited certification system that extends across the formal, non formal and informal sectors of the economy is also being developed. Any HRD plans should consider this approach. 5 ILO Convention 122, Article 1, papa, 2 suggests that “ The said policy shall take account of the

stage and level of economic development and the mutual relationships between employment opportunities and other economic and social objectives, and shall be perused by methods that are appropriate to national conditions and practices.


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1.8 Interim Afghanistan National Development Strategy (I-ANDS) A review of several individual ministry strategy documents for I-ANDS with respect to HRD plans provides a clear example of different approaches each is taking to ensure there is sufficient capacity within their individual structures to provide the various public services. 6 The strategic document of the Ministry of Women's Affairs explains that sustaining mechanisms and support systems " will largely draw support from non-state entities, such as the international community, NGOs and other sectors of civil society" The document quotes the I-ANDS political vision which states that "the Government of Afghanistan continues to see Non-government Organizations (NGOs) as essential partners in our development efforts and will continue to support their work in Afghanistan". This reliance on external support is also referred to in the "The Afghanistan Compact” which embodies a commitment from the international community to support the Government". 7 Similarly the Ministry of Agriculture and Irrigation's programmes, acknowledging capacity short falls, are heavily reliant upon foreign technical assistance. It is likely that other Ministries are addressing the HRD needs in a similar manner. In each case it must be remembered that the withdrawal of international expertise is inevitable. International experience suggests that NGOs should not be expected to assume responsibility for, or be considered alternatives to Government. 8 Any HRD programme, whether at national or Ministry level must be prepared for such contingencies?

1.9 Definitions

As a guide to describing the terms used in this review related to the labour market in Afghanistan this review draws heavily on the definitions provided by the United Kingdom's Overseas Development Association. 9 Labour market information: The total set of documents that contain labour market signals,

indicators and intelligence. Labour market signals: Discrete pieces of raw evidence in any format. Labour market indicators: The various signals that when processed and linked with

other data can assist in identifying trends or directions in the labour market.

Labour market intelligence: The types of information that is gleaned from conversations, meetings, professional seminars, workshops the media and compared with statistically based data and research.

Labour market analysis: The processes used to review, statistically manipulate and compare with other sources to determine trends directions and sector needs.

Human resource planning: Activities that utilize the findings of LM analysis plus other sources to influence future decisions concerning policies and

6 See Agency Coordinating Body for Afghan Relief (ACBAR), www.acbar.org/display 7 See Strategy for the Ministry of Women’s Affairs for the Afghan National Development

Strategy, (Draft), March 2007, p10. 8 This conclusion, whilst considered to be an unfair criticism of NGOs is in fact the fault of

governments who surrender responsibility to NGOs without insisting on a timeline for capacity building national staff for activities that should always be managed by Government. This is especially relevant to the development of the LMIA unit where capacity is being developed, albeit slowly.

9 Gray et. al., (1996), p6.


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practices. Labour market information system: Information relating to all levels of human resources

regardless of formal qualifications skill level or economic sector.

Skills assessment survey: The collection of available skills within the labour force Training & employment needs assessment: The collection of data on the availability of trained labour to

match employer's skill requirements. Data: A representation of facts, concepts, or instructions in a

formalized manner suitable for communication, interpretation, or processing by humans or by automated means. 10

The lack of a common set of terminology when identifying and describing economic sectors and occupations has been noted in some reports and information reviewed and as such will be a major constraint when quantitative analysis is required. The descriptive narrative and level of disaggregating of some data in reports varies as does the description of economic sectors throughout the various sources referred to in this review. Not only does the terminology used lack precision, there are varying professional differences of opinion as to what commonly used terms are appropriate. Advice and guidelines on the nomenclature that is preferred should be developed and assistance provided to direct those responsible for future studies, if commissioned by the Government, so that a common set of terms can be used. The definition of data is also biased toward the search for quantitative data rather than the more qualitative information n needed to make sensible judgements.

1.10 Capacity building This report, a labour market supply and demand study based on selected secondary sources, was also intended as a contribution to the capacity building of a viable and sustainable Labour Market Information and Analysis (LMIA) Unit within the MOLSAMD. The report is also a requirement under the I-ANDS as noted in Section four (education) of Pillar three within Volume 1. This document indicates that the education programme will have four strands, one of which is to “develop an effective skills development system that is responsive to labour market needs''. 11 This is to be supported in part from information to be provided by the LMIA Unit. Reference to the need for such information is noted when mention was made to the key characteristics of the Afghan economy highlighting that there" ... continues to be serious deficiencies in the data availability and coverage, in particular with regard. labour market statistics and employment in particular”. 12 What appears to be a serious deficiency is the lack of capacity, not just within MOLSA but in most government ministries. LMI data from several agencies were simply not available and the Central Statistics Office, whilst most willing to share their work, have yet to complete the national census so that subsequent surveys can be conducted based on suitable statistical frames. Without such frames the basis for any sampling that would sufficiently rigorous to be statistically analyzed, is absent. Therefore the basis for gathering data on the labour market demand and supply will continue for the foreseeable future, to be a pragmatic and limited to

10 See sam.dgs.ca.gov/TOC/4800/4819.2.htm 11 See I-ANDS, Executive summary, p9, para. 2 12 See I-ANDS, Vol. I, p 43, para3.


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location or sector based activity focused on selected economic activities. MOLSAMD’s capacity will take several years to establish and additional time to mature. Such data gathering approaches, whilst adequate for the purposes of supporting the work of the NSDP and other stakeholders, will be limited to short term objectives and be project and/or sub-economic sector based. The sectors within NSDP currently being focused on cover (i) agriculture, (ii) services, (iii) construction (iv) business & commerce and (v) industry. The range of courses being delivered by NSDP and the expectation that there will be additional demand based courses suggests that there will be additional sectors of the economy included in the near future. 13

1.11 Labour market information and analysis unit (LMIAU ) The current organization of the Ministry does not include an LMIA Unit. As a recommendation this Unit is seen best located in Department of Manpower and Employment. The structure of the LMIA Unit at present consists of a manager, an assistant manager and three staff. None have any background in labour market information and analysis. Further staff is being recruited. The expectation is that the LMIA Unit will be able to define the scope and purpose of any LMI by ensuring that the potential users have data and analysis that can inform decisions that positively impact individual, corporate and government ministries in a form that will have a positive impact on various sectors of the economy. The recognition and involvement of potential users in the construction and maintenance of the LMI system's network of information sources is also an essential ingredient in ensuring sustainability. These sources are found in both the public and private sector and often in international organizations having economic ties to the country. For the LMIS to be useful to as many beneficiaries as is practical it is necessary to identify who it is that requires the information, in what form they require it when it is needed and how often this infol111ation is to be updated. The following components are required assuming there is a set of user's criteria clearly defined:

• Clearly identified sources of reliable LM signals, indicators and intelligence, • LMI that describes supply and demand data in a form that can be manipulated to

respond to a variety of queries and questions, • A sound set of procedures resulting in LM data that, when collected and analyzed can,

if necessary can be replicated, • For the system to function properly suitable ICT hardware and software is

required. The extent of the ICT will be determined by the Government in accordance with the priorities given to the needs as decided by the l-ANDS.

Typically this would require:

• Sufficient and suitable financial allocations to maintain an ICT network of offices,

13 Training in the skills required for the power, water and transportation sectors for the basic

infrastructure mentioned in I-ANDS, Vol. I, Section 5.4.3, p 76, and the needs of the mining and extractive industry, see Sect. 5.4.4, p 91, will also need to be addressed at specific sector level. These sectors are mentioned again and in more detail in Vol. I, Chapter 8 of I-ANDS,


17 17

• Suitably located offices and associated staff positions to sustain a critical mass within the DOL network of offices

• Adequate transportation and ancillary office equipment, • Appropriate financial allocations to promote and publicize the role and

expanded of the LM office network • Capacity building of staff through targeted staff development and accession planning

for all key posts in the DOL's LM network.

1.12 Existing capacity Assuming there is no significant increase in resources, both human and financial, and assessing the existing capacity of staff allocated to the LMIA Unit within the MOL SAMD it is unlikely that the present incumbents will be able to provide adequate analysis leading to future and substantive policy formulation. Given this limitation the work to be implemented in the current project may need to restrict the focus to sub-sector based demand and supply surveys linked to existing known and certified training provider assessments of demand under NSDP.

1.13 Bench marks The particular bench mark that is driving the rush to complete this report is found at Chapter 8, Economic and Social Development, Sector 4, Education, Culture, Media and Sport Programme 3, Skills Development. It states that: "A human resource study will be complied by Jaddi 1385 (2006) and 150,000 men and women will be trained in marketable skills through public and private means by Jaddi 1389 (end-2010)" 14

1.14 Project Phases The LM study will be undertaken in two phases. The first phase will provide a review of available information on the supply and demand for skilled labour. 14 The second phase will commence to build capacity within the MOLSAMD's LMIA Unit. As mentioned earlier a series of sub-sector and pragmatically designed surveys of demand will be conducted. 15 The explanatory passage following the bench mark explains that the "Government will conduct a national skills assessment survey, establish advisory committees to oversea the development of the VET programme and accelerate the NSDP". 16 There are a number of Ministries which have training programs to suit their own particular needs. Many of these are specific to their mandate. For example police, essential services, para- medical staff, power generation & distribution, road building, maintenance and repair

14 This requirement was discussed with Mr. Nematullah Bizhan of I-ANDS. This expectation was

unrealistic given the current capacity of the staff provided from within MOLSAMD. It was agreed that an outline of an action plan could be submitted as part of this report on secondary sources. If those concepts are agreed then a meeting of the key stakeholders would be convened to advise on revisions to the strategy currently in place.

15 See the Terms of Reference for this project supported by the NSDP project . p4. 16 See I-ANDS, p138. The call for a national skills assessment survey within the LMIA project is

just one of several references to a “survey”. The scope of the survey being proposed needs to be set by whom-ever requests it. At this point in time it is not clear to the LMIA Unit just exactly who will be covered.


18 18

etc., are all needed to support the Government’s policies. From the perspective of the LMIA Unit and its scope, these are considered as separate. The structure of the I-ANDS document, especially Pillar Three, suggests that the authors did not appreciate the significance of employment and skills development within the overall national development strategy. The issue of ownership within the Government and responsibility between ministries and within departments, for employment and skills development, is also one that will continue to cause complications in the future. This is evident within Chapter 8 on Economic & Social Development where the sector strategy for Social Protection contains benchmarks for vulnerable groups. 17 A separate and distinct section devoted to the issues related to employment and skills development, would have the added benefit of focusing in a holistic manner on sustainability issues and make the best use of the human capital available across all ministries. This would be more likely to provide the depth and breadth required to promote the expectations of I-ANDS. The fact that the I-ANDS Volume I document has determined that the function of skills development and labour market information and analysis, both of which are components of any established a national employment and training system, are relegated to a sub-level within Pillar three is also disconcerting. By doing so it is viewed as a subset of "education” and the ministries with responsibility for the formal education system, namely the Ministry of Education (MOE) and Ministry of Higher education (MOHE), would not traditionally wish to assume this overall responsibility for coordination of LMI. Afghanistan will be no exception.

17 See Vol. I, Chapter *, Section 8.6, programmes 1 to 5, pp 152-154.


19 19

2 Review methodology

2.1 Preparatory research As a means of clarifying what was the current thinking in the labour market information field, a document search was made to find a methodology which was considered suitable for developing countries such as Afghanistan. One which is thought appropriate was prepared by a five-man team of experienced professionals for the Overseas Development Association (Gray, et.aI., 1996). The document highlighted three main concerns in establishing LMI systems in developing countries.

• First was the fact that there is considerable support from labour economists for the use of signalling methods designed to produce indicators more related to quality issues than for use in quantitative forecasting". The emphasis in some more developed countries was to focus on statistical methods based on sampling etc as the only means of forecasting

• Second was the continued use of supply--dominated approaches used to determine enrolments, rather than a more balanced approach that ret1ects the realities of the labour market and one that acknowledges social expectations.

• The third concern was the revelation that in developing countries there vas a serious lack of sufficiently trained staff at each level of the LMI &A system.

The conclusions drawn were that the capacity of staff and the Government systems already in place, to absorb the nuances, develop the expertise and sustain a realistic and dynamic LMI system that would provide micro, meso and macro level analysis, takes years to accomplish. Staff needs to be continuously maintaining and sustaining networks with the range of sources from which data and intelligence can be gleaned. Resources to accomplish this are rarely sufficiently allocated in developing countries. Afghanistan and in particular the MOLSAMD, having never had to resource such a function, must acknowledge this and institutionalize the costs of establishing the Unit. The MOLSAMD must then plan to identify and retain suitably qualified and sufficient numbers of LMI&A staff when developing the ministry's overall strategic plan. Budget requirements, if not available internally must be provided for from donors until the national budget for an LMIA Unit can be institutionalized.

2.2 Desk study This in-country review is based on a wide variety of documentation produced by various Government ministries, United Nations agencies, bilateral donors, non government and private sector organizations and development banks. Each contributor/author/agency, when commissioning the work or producing the information themselves, have specific goals, objectives and target audiences. Although most of the qualitative information is useful to a wider audience, the quantitative data gleaned was not always in a form that could be utilized or be of direct relevance to the needs of the LMIA Unit. The source of the information reviewed on each of the main training providers shown in ANNEX-A. 18 As part of the preliminary activities of the LMIA Unit's activities the extent to which existing and separate data was available was first explored. The results clearly demonstrate that whilst

18 The information is a synthesis of a number of other sources compiled by NSDP and ACBAR

and also as a result of interviews with key implementing partners of NSDP.


20 20

the key documents and data are a valuable resource, the coverage of most was focused on specific target groups, particular needs and a set number of locations. With the exception of the National Risk and Vulnerability Assessment of 2005, none cover the nation for reasons which are well documented. Typically the sources of this information and data could come from any of the following and/or additional sources. 19

19 Covering this many possibilities has not been possible in the time made available to compile

this report. It should also be noted that the process of collecting data is a continuous one. The revised structure of the LMIA unit will have personnel specifically assigned to that task,


21 21

Sources of LM intelligence and data TABLE One

No General type Produced by 1.0 Demographic data 1.1 Census data Central Statistics Office (CSO) 1.2 Registrations of births death and marriage Ministry of Justice (MOJ) 2.0 Labour force supply 2.1 Graduate records of the education system MOE 2.2 Graduate records of the University system MOHE 2.3 Drop-out data from the various levels of formal

and non formal education MOEd, MOHE,

2.4 Foreign work permits MOLSAMD 2.5 Household surveys CSO 2.6 Establishment surveys CSO 2.7 Economic sector surveys Various 2.8 Benefits records Government, Army, private

sector, etc. 2.9 Refugees returning & internally displaced

people. UNHCR, MRR

2.10 Private proprietary training providers Ministry of Commerce (MOC) 2.11 Skill development training records National Skills development

Project 2.12 Non Government Training providers Various 2.13 Vacancy notices ACBAR NGO 3.0 Labour market demand 3.1 Public employment service centre records Employment Service Centres of

MOLSA 3.2 Private employment service centre records Private sources 3.3 Vacancy notices, newspapers, other media Various media outlets 3.4 Migrant & alien registration records MOFA, 3.5 Entering and departing working foreign

nationals MOFA, MOI. MOLSAMD

3.6 Immigration and emigration records Ministry of Refugees & Returnees (MRR)

4.0 Professional bodies 4.1 Registration of members Professional level organizations 4.2 Registration of members Special interest groups 4.3 Registration of members Employer’s organizations 4.4 Registration of members Worker’s organizations 4.5 Research from Universities Various, MOHE, MOFA. 5.0 Other statutory/International bodies 5.1 Project development activities Bilateral donors/embassies 5.2 Project development activities Development Banks 5.3 Project development activities United Nations Organizations 5.4 Project development activities Non Government Organizations 5.5 Project development activities International Security Force

Afghanistan, Provincial Reconstruction Teams, Provincial Development Committees

5.6 Project development activities Private consultants, International aid agencies. Philanthropic organizations.


22 22

This list is not exhaustive. The networking required to keep abreast of these, and other potential sources of information and data, and deciding which should be prioritized, is a judgment that must be made depending on the focus of the survey to be undertaken. This will be a central and on-gong function of the LMIA Unit.

2.3 Reports reviewed • Agnew, M, (2003). Afghanistan Labour Market Information Survey, prepared by the

International Rescue Committee in association with the Ministry of Labour and Social Affairs.

Purpose: To provide (skills development) programmes" ... with reliable and

valid data on which to base (IRC) decisions regarding supporting appropriate kinds of training ...”

Survey methodology Multi stage sampling based on market linkages between urban and

rural locations taking account of the demographics, geographic location and economic variances.

Sample Locations Thirteen provinces having forty-two districts. IRC supported activities

in the central, eastern, northern and western regions. Analysis This report is the first available and substantial set of LMI. It

provided an insight into the situation facing NGOs wishing to deliver a sound demand driven programme. It pointed out that whilst the data may not be "statistically robust" the intention was to provide information that would be sufficiently detailed enough to allow training providers to focus on skills needed in the local market.

Conclusions This report by IRC is quoted in all subsequent documents and,

assuming that there is no national census data available, is considered a suitable model for the conduct of future LM surveys. A number of institutions within the Government and in the private sector are now able to contribute with additional advice and expertise and in any future surveys including AICC, ALTAl, CSO, MOC, PDT and USAID.

Supply & Demand The information is extensive and the various factors impacting supply

and demand employment opportunities were described in detail. The data is presented as percentages based on the samples of those surveyed. Labour demand was also generally described by level of skill with no specific numbers being provided. Specific self employment opportunities for each of the four regions were based on families surveyed. Supply side data was treated in the same way.

• Afghanistan International Chamber of Commerce, (2006) National Business Agenda,

Kabul


23 23

Purpose: To put forward a public statement of the most important policy

issues affecting the country's business community. Survey methodology & Sample NA Locations National. Covers the position of the business community

throughout the Country. Analysis This is in fact what could be classified as a green paper. 20 It provided

the Government with a series of issues that are of concern to the business community. The role of the AICC in preparing this document was to " ... ensure that the Government will follow through on its commitments". The report suggests that the emphasis in terms of employable skills should include training for agriculture, health care, plus road related construction skills such as the building of bridges, culverts, rural electrification and irrigation.

Conclusion There are a number of similar organizations representing the business community. The Afghanistan Investment Support Agency (AISA), The Afghanistan Women’s Business Federation (AWBF), Peace Dividend Trust (PDT), all have member lists. Many of them would conduct training of some sort or other. Whether the training adds to the skills bank of the country or the profitability of the enterprise is not an issue at this time. However when competition between companies increases good workers tend to become more mobile. The staffing levels of some of these companies clearly indicate the gender distribution; they do not show additional demand figures. These would need to be part of any future survey. Whilst some are in close collaboration with AICC others appear to be in competition. As the business community is a major employer. The LMIA Unit needs to align itself with these various bodies and involve them in the discussions on the future benefits and experience that this group can offer to improve the efficiency and operation.

Supply & Demand Data NA

ALTAI Consulting (2004): USAID Strategy: Private Sector Needs Assessment. Purpose: An evaluation of needs of the informal sector and entrepreneurs

as a means of strengthening the urban private sector Scope: Informal sector businesses in five major urban areas. Survey Methodology & Sample In-depth personal interviews, 20 focus group discussions. Small (0-9)

medium (10-40) and large enterprises (40+) totaling 448 enterprises. 20 Green papers are those prepared to alert the Government that there are issues, concerns or

problems in the community. The source could be from a Ministry research unit, an employer’s organization, a community pressure group, an NGO etc. In the case of AICC they are flagging the concerns of the business community to government.


24 24

Location Jalalabad Mazar-e- Sharif Kabul. Herat Kandahar Analysis The report reflected the views at that time on banking, access to credit,

the role of Government, the impact of the international community on business, corruption and taxation. The discussions on skills development revealed that whilst most were confident that their workers were competent they would encourage additional training if available. The report also stressed that the core skills of reliability, intelligence, obedience far outweigh the education qualifications when selecting staff.

Conclusion The informal sector and even those who would register as SMEs are

not seeking to hire skilled workers but prefer to train on the job through apprenticeships. It is acknowledged that a number of NSDP implementing partners use this approach supported by off job training. 21

Supply & Demand NA Data

• Altai Consulting, (2006). Integration of Returnees in the Afghan Labour Market, study

commissioned by ILO and UNHCR, funded by the EC.

Purpose: To provide profiles of the refugees who have returned, to gauge the impact they have on the labour market and the effectiveness of past and current support programmes and to recommend policy options to facilitate reintegration into the labour market.

Survey methodology Household surveys (600), & sample enterprise/household surveys

(100), case studies (25), focus group discussions (15) and key informant interviews (15). In percentage terms there was a 65 urban to 35 rural distribution for the household surveys. These were conducted in locations were it was known refugees were predominant.

Location Herat. Kabul Jalalabad. Analysis A large amount of general data was provided related to the socio-

economic situation of sampled refugees. Household data: Education was seen as a major factor contributing to lack of resources with 80 percent of those surveyed having no more than lower secondary level. Employment data suggested that approximately one third were engaged in economic activity and of that number twenty percent were unpaid. Integration was constrained by lack of income and personal or professional networks were preferred when finding a job. The report disputes the unemployment percentages quoted in the IRC

21 The definition of apprenticeship in the Afghan context differs considerably from the European

model. In Pakistan it is known as Ustard-Shagird or master –learner where a young person is placed with a skilled worker to learn a skill. This is often the only way of receiving practical training from a master. This is appropriate at this stage of the country’s development but it can lead to exploitation of young people, many of whom may be under the legal working age.


25 25

report preferring to support a lower figure. Establishment data: though acknowledged as limited, i.e. not able to be generalized across the country, the report does provide insights into the way enterprises operate. The report suggests that employers were not able to articulate the needs adequately and that most would probably be seeking to recruit fully skilled people. Caution was urged in the use of numbers quoted in the report for future recruitment.

Conclusion The report is a useful document for the UNHCR and ILO as it provides insights on how best to integrate refugees. The household survey to be conducted by the CSO in 2008 will hopefully capture the data needed to put the data in its proper perspective.

Supply & Demand There are obviously large numbers of refugees requiring work and

similarly data on those without skills are high. Predictions on the numbers returning were not specified.

• Beall, J & Schutte. S, (June 2006). Dwindling industry: Growing poverty:

Urban Livelihoods in Afghanistan, a report for the Afghan Research and Evaluation Unit, Kabul, funded by the EC.

Scope: The report draws on the findings of five (5) individual studies

conducted earlier that same year in the main urban population centers. Survey methodology A series of longitudinal studies in three cities, using a sample of 40 & Sample households, over the period to observe poverty related issues and how

communities cope, adapt and change over a period of a year in three locations. Short term studies in the remaining two used group discussions with representatives of local communities

Location Hera1- Jalalabad, Kabul, Mazar-e-Sharif & Pul-e Khumri. Analysis: The focus of the report is on the plight of the urban poor and presents a

clear, if somewhat gloomy picture of the impact of urbanization in the country. Land tenure, housing and security of tenure/ownership are described as being a key component in stabilizing the urban population. Public services are described as weak or non-existent, among them education, or lack of it due to (i) the availability of school places (ii) the discrimination against girls and (iii) the need, in many instances for children to work The diversity of occupations found resulted in a general grouping of livelihood activities for those studied into three groups, namely self-employment, casual wage labour and home-based work. It is entirely feasible that one family and individuals within it could be engaged in all three.

Conclusion LM surveys will need to be very clear and (i) acknowledge the

problem of working children (ii) and hence identifying the occupation(s) of respondents multiple sources of employment (iii)


26 26

decide on an acceptable and agreed national definition and making the distinction between employed and unemployed and (iv) distinguish the differences resulting from insufficient education and poor health, especially with the poor, in generating sufficient income to lift themselves out of poverty.

Supply & Demand The report, and those from which it draws it's material, provide data in

considerable detail on the types of employment predominant in the communities studied. Actual number is not provided nor are there any demand side projections.

• International Security Assistance Force, (2007). Provincial reconstruction Team

Handbook, Kabul. 22 Purpose: To consolidate information available from the Government, ISAF,

CFC-A, UNAMA, and international development agencies and to outline guiding principles and proven best practices that Provincial Reconstruction Teams (PRTs) should draw upon in designing and implementing its various local strategies.

Survey Methodology NA & sample Location Twenty-five (25) PRTs cover (31) provinces Analysis The ISAF team responsible for the compilation of their database have

collected and provided a massive amount of information in electronic format. The information is extremely detailed and will continue to expand. In addition ISAF is introducing standard operating procedures that will provide data on any training that is to be part of all ISAF procurement contracts. This is to support the Afghan First policy that focuses on the utilization of local services, purchases of local goods and services, development of local skills and encourages competition. Such data will add to the supply side of the equation.

Conclusion The work of the PRTs in collaboration with the Provincial

Development Committees provides a link at the provincial level to key informants mentioned in this report who would supply the information and data collection required by the LMIA Unit. The benefit to the LMIA Unit is that this information and data is in MS -Excel format and the intention is to eventually offer this to CSO. This is another reason to insist that the LMIA Unit's maintains linkages with a range of potential partners. However once it is passed over to Government it will need to be maintained.

Supply & Demand Numerical data, along with the existing broad range of data

22 Whilst not strictly a demand and supply study it is included because it is an important source of information. The linkages found in the electronic data base are extensive. It will greatly enhance the gathering of local intelligence on the labour market.


27 27

information and training provided by ISAF, to skills available in the various communities, will be available in the near future. This quantitative information will be a valuable source of data.

• Ministry of Women’s Affairs (2007). Women and men in Afghanistan: A handbook

on Baseline Statistics on Gender, Kabul. Purpose: To establish a statistical data base that would help strengthen

advocacy, planning and policy making from a gender perspective, especially within government.

Survey Methodology & Sample Inter-Ministerial working group meetings, review of 56 studies and

publications as a basis for developing a gender policy framework. Location National Analysis: The tabulations mentioned below are sourced from the CSO, 2006

Afghanistan Statistical Yearbook. The emphasis is on gender balance. The report provides an overview of the population of 23.6 million. The sex ratio between females and males across the settled population demonstrates the impact of the war with males being less than females between 24 and 44 years of age. A separate table displays the distribution of the total population by 5 year age groups and sex. It demonstrates that between 15 and 34 years there are 6.4 million people in that age range. The literacy rate of the population was estimated at 15.8 percent for females and 31 percent for males. Tables generated on female participation rates in the public service are less than twenty (20) percent except in the Ministries of Public Health (22.7), Education (37.3), Labour & Social Affairs (50.2) and Women's Affairs at (99.2). Other participation rates vary as widely in favour of males. Assessment of the information on education subsequent tables shows the imbalance in favour of males at every level. Technical & Vocational figures for 2005 were equally skewed toward males.

Conclusion: The document is a useful tool to remind those engaged in data

collection that disagreggation of data to reflect gender balance is an important statistic. The proposed LM survey must ensure that the data collected reflects these differences.

Supply & Demand: Data was generated from the CSO Statistics Yearbook and does not provide specific numbers.

ο (NSS) National Surveillance System). 2007. The National Risk & Vulnerability

Assessment, 2005, Afghanistan, Ministry of Rural Rehabilitation and Development and the Central Statistics Office, Kabul


28 28

Purpose: At the macro level to gather information to update and guide policy- making decisions in development programmes and to improve the efficacy of sector level interventions. A further operational objective was " ... To collect information at community and household level to better understand livelihoods of Kuchi, rural and urban households throughout the country, and to determine the types of risks and vulnerabilities they face...”

Survey Methodology Sample of 30,882 households across all provinces adjusted & Sample using Jawzjan as a base analytical domain to account for wide

variations in the number of households in each province. Administration of a household questionnaire having 18 sections, 14 of which were addressed exclusively to males. This was applied in 12 households per community. Information was also gathered at community level with separate discussions outside the house.

Location National Analysis This is national in scope. The content and the time taken to

undertake the assessment is extensive and points out a wide range of issues of relevance to the proposed labour market a survey. The data collected is extensive, especially as it relates to the socio-economic situation of households. Education rates, literacy and school attendance numbers are provided. The data mentioned in earlier reports is again provided here and varies, possibly because it is from a statistically based sample, marginally. The differences in estimates based on different sources at different times from the perspective of employment demand and supply of skilled workers is, at this stage should not be a detriment to proceeding with any LM survey.

Conclusion The depth and detail of this assessment is beyond the capacity of the

MOLSA LMIA Unit at this time. Where the report is valuable from the MOLSAMD's point of view is that the rural areas of the country and the astonishing lack of even the most basic services means that the level of skills required in these areas must be pitched to the correct level within the appropriate economic sector, and must take account of the local livelihood needs of the beneficiaries.

Supply & demand data Specific data is available on the NSS website: http://www.nss-

afghanistan.com/index. php

• Patel, S. & Ross. S, (2007). Breaking Point: Measuring progress in Afghanistan.

Centre for Strategic and International Studies, Washington. Purpose: To provide a balanced perspective incorporating local voices to obtain

a measure of those elements that matter most, not what is most easily quantifiable or collectable and the presentation of large an mounts of


29 29

data in a digestible form Survey Methodology Use of structured conversations in 17 Provinces; thirteen surveys, polls

and & Sample focus groups, 200 expert interviews and monitoring of 70 media

sources and 182 organizations. Locations National and international locations. Analysis The document is a second in a series that assesses progress of the

government's overall comprehensive development strategy by measuring improvements in five areas: security, governance and participation, justice and accountability economic conditions and social services and infrastructure. The thesis proposed is that the current centralized control over these development activities would be better served if the process could be devolved to the local communities and justifies this by suggesting that when these issues were discussed with the participants the response was that " .the needs were still too great, the state too weak, and the modalities of international aid too static and slow".

Conclusion The concept of decentralizing the responsibility for development to the

appropriate level has some parallels with the methods used by some NGOs, and especially donors such as USAID who have implemented successful projects at local level with minimal interference from the Government or the UN. By going to the source of the information and collecting both local qualitative and quantitative data, the impact, or lack of it, can be measured at that level. Examples of the types of questions used to determine the employment of respondents were comprehensive but not quantified. The parallels for MOLSAMD is that the most efficient and effective way to gather LMI is to adopt a similar strategy and to quantify it based on adequate statistical frames and samples.

Supply &Demand There are no figures on supply or demand. Percentages of

unemployed data and rates of under-employment were mentioned.

• USAID, (2007). Labour Market, Livelihood Strategies and Food security in

Afghanistan,: a special report by the Famine Early Warning Systems Network Purpose: To gain a better understanding of labour markets and labour-

based livelihood strategies. Survey Methodology Review of existing literature and data sets Sample: Population-wide on those affected by issues related to food security

across the country, Location: Five southern provinces and eight in the central region.


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Analysis: The report provides useful insights into the pressures facing the people

living in the different locations in respect of food security, It points out that whilst the supply of food is a critical issue, the coping mechanisms of the population in various provinces on income earning/livelihoods has lead to migration of workers, illegal crops and exploitation by land owners.

Conclusion The report suggests that the people affected are also unaware of any

mechanisms in place to assist them to alleviate the situation with respect to livelihoods. The establishment of network consisting of a variety of actors interested improving the LMI is needed at the local level.

Supply & Demand A useful model for the monitoring: the labour market was Data: developed and this has direct implications proposed

LM study being developed by the MOLSA,

• Wickramasekara, P., Segal, J., Mehran, F., Noroozi, L., & Eisazadeh, S., (2006).

Afghan Households in Iran, Profile & Impact, commissioned by ILO from UNHCR and funded by the EC.

Purpose: To gain greater insight into the dynamics of the Afghan

population and their impact in Iran, especially in the Iranian labour market.

Survey methodology: Survey of households, establishments, case studies of selected

households in Tehran and a review of secondary sources. Sample: Households: 1540 households in 10 cities from seven (7)

provinces using a "snowballing" approach was adopted, Establishments: A total of 4,600 questionnaires were distributed as follows: Employers 1049, Iranian workers 1,261, Afghan workers 2,102, 248 were discarded as they were considered unreliable or incomplete, Case studies in 25 households in Tehran

Location: Four major population centers workers were known to

congregate, Analysis: The report indicates that the numbers of Afghans officially in Iran as

refuges has declined steadily over the last six (6) years. As of January 2006 over 920,000 are thought to have remained. Of that number is estimated that some 400,000 are economically active and about ten (10) percent are women. Those working are concentrated in construction, manufacturing and trading, each requiring a low skills set. Agriculture is not a preferred occupation among population. If the sampling is considered sufficiently robust the data in this report may be generalized across the Afghan refugee community. The issue for the MOLSA is the need to have a returnee profile, if and when they return, to monitor them so they can be counseled on potential local job


31 31

locations. Conclusion: The majority of refugees are concentrated in a major group ISCO

group headed "craft and related trade workers". The need to be clear when using ISCO is essential. It raises again the point that the training of enumerators is not to be taken lightly, and those inputting the data must also be carefully monitored as mistakes in classifying workers reduces the quality and hence the value of analysis.

Supply & Demand The returnee numbers are not clearly stated as the timing is not known. Data The LMIA Unit must be in contact with UHCR to follow up on returnees..


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3 Secondary Supply Sources

3.1 General population Data Given that the estimated number of people was 23.5 million in 2005, and that half were under 25 years of age, mechanisms must be, put in place to provide gainful employment, not just over the near term, but the medium and long-term future. 23 The essential first step in any LM study is to analyze the characteristics, structure, size, distribution and peculiarities of the population. This is conditional upon the availability of a census, or in the case of the LMI for the NSDP, a labour force survey using a stratified sample of households, neither of which will be available in Afghanistan for at least two or possibly three years.24 The number of economically active is not known. Nor is it likely that there are there any reliable and comprehensive data from organizations purporting to be responsible for the registration of businesses. 25

3.2 General education picture In attempting to track the new entrants to the work force it is essential to have data on the outputs of public institutions. This stretches from primary through the secondary and eventually to the tertiary level. General education students exceeded 6 million in 1386. General education schools totaled 6218, general secondary 1745, general high schools 1259; a total of 9222 establishments. The main suppliers of new entrants to the labour market with a qualification are the MOE. Human Development Indicator's however suggest that there are large numbers, some 66 percent of youth, (i.e. those between 15 and 24) who are illiterate. Drop outs are also a major source of new entrants and no doubt the numbers and percentages for both merge and overlap. It is this group and the larger number of adults who are seeking income, when combined that presents the largest challenge for establishing any balanced labour force supply and demand structure. The ratios of male to female averaged 64/36. The number of dropouts showed similar ratios with a total of 134,486 leaving in 1385. Of that number approximately 89,000 did not get past grade five. 26 In the provinces of Helmond, Uruzgan and Zabul the ratio of females attending school was below 10 percent. The following tables provide more detail and are self explanatory.

23 See CSO’s Afghanistan Statistical Yearbook, (2006), p 10 24 Discussion with the CSO director in June 2007. 25 Summary of discussions with AICC, PDT, AISI, MOC etc 26 Source: Ministry of Education tables provided by the EMIS unit June 2007.


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TABLE Two General Education Students 1386 (Projected)

Province Name

Male Students

Female Students

F/M Gender Ratio

% Boys in

Province

% Girls in

Province Total

Students

% Province Students in

Afg Badakhshan 138,407 121,739 0.88 53.20% 46.80% 260,146 4.28% Badghis 54,903 16,098 0.29 77.33% 22.67% 71,001 1.17% Baghlan 175,892 115,808 0.66 60.30% 39.70% 291,700 4.80% Balkh 198,899 141,770 0.71 58.38% 41.62% 340,669 5.60% Bamyan 57,508 44,215 0.77 56.53% 43.47% 101,722 1.67% Daikondi 47,878 28,033 0.59 63.07% 36.93% 75,911 1.25% Farah 72,505 32,840 0.45 68.83% 31.17% 105,345 1.73% Faryab 136,005 100,115 0.74 57.60% 42.40% 236,121 3.88% Ghazni 176,096 82,610 0.47 68.07% 31.93% 258,705 4.25% Ghor 80,947 30,450 0.38 72.66% 27.34% 111,397 1.83% Herat 289,527 233,607 0.81 55.34% 44.66% 523,134 8.60% Hilmand 103,424 7,534 0.07 93.21% 6.79% 110,957 1.82% Jawzjan 77,975 49,821 0.64 61.02% 38.98% 127,796 2.10% Kabul 484,920 356,950 0.74 57.60% 42.40% 841,870 13.85% Kandahar 160,351 40,049 0.25 80.02% 19.98% 200,400 3.30% Kapisa 69,145 25,598 0.37 72.98% 27.02% 94,744 1.56% Khost 112,524 29,007 0.26 79.50% 20.50% 141,530 2.33% Kunar 74,172 41,291 0.56 64.24% 35.76% 115,462 1.90% Kunduz 158,582 104,648 0.66 60.24% 39.76% 263,230 4.33% Laghman 85,675 49,590 0.58 63.34% 36.66% 135,265 2.22% Logar 73,581 25,879 0.35 73.98% 26.02% 99,460 1.64% Nangarhar 261,475 155,664 0.60 62.68% 37.32% 417,139 6.86% Nimroz 29,090 17,973 0.62 61.81% 38.19% 47,063 0.77% Nuristan 23,577 14,211 0.60 62.39% 37.61% 37,788 0.62% Paktika 101,389 20,935 0.21 82.89% 17.11% 122,323 2.01% Paktya 87,690 30,194 0.34 74.39% 25.61% 117,884 1.94% Panjshir 21,294 10,918 0.51 66.10% 33.90% 32,212 0.53% Parwan 107,830 57,440 0.53 65.24% 34.76% 165,271 2.72% Samangan 49,012 24,183 0.49 66.96% 33.04% 73,195 1.20% Sari Pul 67,115 34,198 0.51 66.25% 33.75% 101,313 1.67% Takhar 141,454 94,009 0.66 60.07% 39.93% 235,463 3.87% Uruzgan 43,723 3,556 0.08 92.48% 7.52% 47,279 0.78% Wardak 94,425 29,775 0.32 76.03% 23.97% 124,200 2.04% Zabul 47,231 5,332 0.11 89.86% 10.14% 52,563 0.86% Total 3,904,221 2,176,038 0.56 64.21% 35.79% 6,080,259 100.00%


34 34

TABLE Three Number of Schools by Type, Aggregated at Province Level

1384 Province Primary

School Sec

Schools High

Schools Total

General Education

Avg. Students

Per School

TTC Schools

Islamic Schools

Voc Schools

Total Schools

Badakhshan 180 123 92 395 540 1 11 1 408 Badghis 147 13 6 166 280 0 1 0 167 Baghlan 143 76 70 289 851 1 11 2 303 Balkh 192 77 51 320 950 0 2 4 326 Bamyan 173 54 20 247 311 0 1 0 248 Daikondi 214 25 6 245 206 0 0 0 245 Farah 153 20 17 190 417 1 6 1 198 Faryab 272 39 20 331 554 1 16 1 349 Ghazni 189 113 95 397 529 1 12 0 410 Ghor 307 37 30 374 216 0 0 0 374 Herat 357 81 54 492 856 0 16 3 511 Hilmand 151 35 18 204 392 1 3 1 209 Jawzjan 120 28 37 185 565 1 6 2 194 Kabul 96 127 116 339 2,255 1 7 17 364 Kandahar 206 52 43 301 511 1 2 1 305 Kapisa 77 38 29 144 582 1 5 1 151 Khost 91 18 23 132 760 0 3 1 136 Kunar 241 24 22 287 295 0 13 0 300 Kunduz 158 64 38 260 824 2 12 1 275 Laghman 83 58 31 172 638 1 6 1 180 Logar 104 40 21 165 486 0 4 0 169 Nangarhar 170 59 57 286 1,122 0 25 3 314 Nimroz 57 4 5 66 514 0 0 0 66 Nuristan 127 10 3 140 169 0 10 0 150 Paktika 251 23 15 289 269 0 19 0 308 Paktya 139 35 23 197 421 2 4 0 203 Panjshir 40 19 14 73 375 0 14 0 87 Parwan 141 78 52 271 536 1 21 1 294 Samangan 138 31 10 179 333 1 1 0 181 Sari Pul 265 19 7 291 261 1 2 0 294 Takhar 181 48 48 277 675 1 14 0 292 Uruzgan 95 19 8 122 258 0 0 0 122 Wardak 156 51 35 242 428 0 9 0 251 Zabul 138 20 8 166 231 0 1 0 167 Total 5552 1558 1124 8234 594 19 257 41 8551

The table above represents 88% of total schools in Afghanistan. 12% school data was not reported.


35 35

TABLE Four

Number of Technical and Vocational Students by Province 1384

Province Male

Students Female

Students

F/M Gender Ratio

% Boys in

Province

% Girls in

Province Total

Students

% Total Students

in Afg Badakhshan 74 0 0.00 100.00% 0.00% 74 1.37% Baghlan 117 0 0.00 100.00% 0.00% 117 2.17% Balkh 123 0 0.00 100.00% 0.00% 123 2.28% Farah 113 0 0.00 100.00% 0.00% 113 2.10% Faryab 224 0 0.00 100.00% 0.00% 224 4.16% Herat 304 148 0.49 67.26% 32.74% 452 8.39% Hilmand 129 0 0.00 100.00% 0.00% 129 2.39% Jawzjan 211 0 0.00 100.00% 0.00% 211 3.92% Kabul 2,586 469 0.18 84.65% 15.35% 3,055 56.70% Kandahar 0 0 0 0.00% Kapisa 246 0 0.00 100.00% 0.00% 246 4.57% Khost 81 0 0.00 100.00% 0.00% 81 1.50% Kunduz 76 0 0.00 100.00% 0.00% 76 1.41% Laghman 129 0 0.00 100.00% 0.00% 129 2.39% Nangarhar 226 0 0.00 100.00% 0.00% 226 4.19% Parwan 132 0 0.00 100.00% 0.00% 132 2.45%

Total 4,771 617 0.13 5,388


36 36

TABLE Five

General Education Dropouts (Grades 1 to 12) Grades End of

year

Dropout Rate 1384

Dropout Rate 1385

(Projection)

Dropout 1384

Dropout 1385

(Projection)

Number of

Students 1384

Number of Students

1385 (Projection)

grade 1 Boys 2% 2% 10,991 11,033 549,533 551,652

Girls 3% 3% 10,415 10,662 347,181 355,402

All 2% 2% 21,406 21,695 896,714 907,054 grade 2 Boys 1% 1% 5,333 5,300 533,273 530,023

Girls 2% 2% 6,787 6,847 339,360 342,333

Total 1% 1% 12,120 12,147 872,633 872,355 grade 3 Boys 2% 2% 11,282 10,222 564,111 511,112

Girls 2% 2% 6,688 6,367 334,418 318,326

Total 2% 2% 17,971 16,589 898,529 829,438

grade 4 Boys 2% 2% 11,714 12,525 585,710 626,267

Girls 4% 4% 12,929 13,953 323,218 348,832

Total 3% 3% 24,643 26,479 908,928 975,099 grade 5 Boys 3% 3% 8,572 14,483 285,732 482,772

Girls 3% 3% 3,397 7,943 113,240 264,769

Total 3% 3% 11,969 22,426 398,972 747,541 grade 6 Boys 2% 2% 4,300 5,267 215,012 263,327

Girls 3% 3% 2,225 3,055 74,169 101,834

Total 2% 2% 6,525 8,322 289,181 365,161

grade 7 Boys 2% 2% 3,083 4,112 154,136 205,593

Girls 3% 3% 1,535 2,098 51,183 69,946

Total 2% 2% 4,618 6,210 205,319 275,539

grade 8 Boys 3% 3% 3,151 3,970 105,043 132,320 Girls 3% 3% 990 1,352 33,005 45,061

Total 3% 3% 4,141 5,321 138,048 177,381

grade 9 Boys 3% 3% 2,466 2,783 82,191 92,754 Girls 5% 5% 1,459 1,519 29,177 30,389

Total 4% 3% 3,925 4,302 111,368 123,143

grade 10 Boys 4% 4% 2,508 3,021 62,707 75,517

Girls 7% 7% 1,365 1,841 19,493 26,306

Total 5% 5% 3,873 4,862 82,200 101,822

grade 11 Boys 4% 4% 1,764 2,212 44,090 55,296 Girls 1% 1% 107 165 10,746 16,482

Total 3% 3% 1,871 2,377 54,836 71,777

grade 12 Boys 2% 2% 605 756 30,256 37,800 Girls 0% 0% 0 0 7,731 10,061

Total 2% 2% 605 756 37,987 47,860 Total Boys 1.32% 1.31% 65,769 75,683 3,211,794 3,564,432 Girls 2.04% 2.12% 47,898 55,802 1,682,921 1,929,739

Total 2.32% 2.39% 113,667 131,486 4,894,715 5,494,172


37 37

3.3 Higher education Similar and possibly increasing numbers to those who entered University in 2003, estimated at 54,400 will enter the labour market four years later. 27 They must have alternatives in different private economic sectors and/or the informal sector if the investment in their education is to be maximized. Policies need to be put in place now that are both practical and pragmatic. These enabling policies need to be both t1exible and innovative, especially in the informal sector of the economy. The projected annual output of all universities of 30,000 presents a real challenge to policy makers. See TABLE Six TABLE Six

27 This number does not take into account the drop outs, repeating students and those who return

home after receiving international qualifications and are looking for work.

Afghanistan Universities Enrolled Students Figures (2003, 2004 & 2005)

Sex S/no Universities Years Boys Girls

Total

2005 30546 8808 39354 2004 31224 8290 39514 1 Kabul University 2003 24470 6069 30539 2005 2448 71 2519 2004 2298 67 2365

2 Kabul Polytechnic University

2003 2079 56 2135 2005 2104 1641 3745 2004 2229 1619 3848 3 University of Education 2003 2259 552 2811 2005 2089 656 2745 2004 2400 718 3118 4 University of Kabul Medicine 2003 3006 830 3836 2005 2208 1087 3295 2004 1934 843 2777 5 University of Herat 2003 1691 719 2410 2005 1000 16 1016 2004 1769 184 1953 6 University of Alberoni 2003 660 645 1305 2005 604 114 718 2004 930 136 1066 7

University of Abdullah Ibn Masood Takhar

2003 276 43 319 2005 3980 349 4329 2004 3670 208 3878 8 University of Nangarhar 2003 3259 335 3594 2005 795 13 808 2004 1188 4 1192 9 University of Kandahar 2003 831 4 835


38 38

An interesting statistic is the male enrolment figure for each of these years. This was due to the lack of basic facilities in some of the provincial level universities. The policy of encouraging female students has resulted in a slow but steady increase. Employment opportunities will need to be sourced for these graduates in “modern (formal) sector” enterprises and the Government.

Total Enrolled Students at Universities

2003, 2004 & 2005

Year Male Female Total

2003 43033 11408 54441

2004 53076 14377 67453

2005 21914 15487 37401 Grand Total 159295

2005 3337 1686 5023 2004 3171 1602 4773 10 University of Balkh 2003 2289 1562 3851 2005 108 115 223 2004 360 167 527 11 Higher Education of Badakhshan 2003 53 185 238 2005 167 129 296 2004 40 30 70 12 Higher Education Institute of

Kundoz 2003 78 119 197 2005 653 160 813 2004 0 0 0 13 Higher Education Institute of

Parwan 2003 995 0 995 2005 557 402 959 2004 405 350 755 14 Higher Education of Jozjan 2003 204 53 257 2005 206 230 436 2004 139 152 291 15 Higher Education Institute of

Faryab 2003 196 236 432 2005 1205 0 1205 2004 1130 2 1132 16 University of Khost 2003 687 0 687 2005 293 10 303 2004 139 5 144 17 University of Bamyan 2003 0 0 0 2005 160 0 160 2004 50 0 50 18 University of Paktia 2003 0 0 0


39 39

LMI may go part way to assisting in such planning but the policies that are developed now and following the schedule of the I-ANDS will need to be carried out with sufficient care across all ministries, in collaboration with the private sector employers and also with other community stake-holders, if a significant number from this group of the population is to be gainfully employed. The drop out rate at each level of the general education system each year is also swelling the number of poorly prepared youth seeking some sort of income.

3.4 Access to University Acceptance to a place at a university can be achieved through different channels. This opportunity is available to Afghans inside and outside the country. The entrance requirements for public universities differ from those in the private sector. There is a nationally supervised entrance exam in public sector universities. Private universities tend to be more relaxed in their methods, preferring to assess an applicant's motivation to achieve. Providing admission to all candidates in the public sector is beyond the capacity of the Higher Education Ministry. Each year approximately 60,000 candidates are registered for the entry exam but only 45 percent gain admission. An estimated ten (10) percent of those who were not selected to public universities seek placement in tertiary institutions abroad. A further twenty (20) percent search for jobs in the private and public sector, the remaining twenty-five (25) percent wait for the next year's entry exam in the hope of succeeding a second time. Those who are accepted into Afghan universities receive scholarships from the government. It is also possible to be given international scholarships. 28 Some students are admitted to private universities abroad through the Ministry of Higher Education. The numbers in this category are not available. In the last three years in Afghanistan private universities have offered an alternative to public sector universities. However this is a small number and will not contribute significantly to the overall lack of public places for post grade 12 students. Afghan refugees in Pakistan and Iran have access to the Afghanistan education system in the host country. Afghans who have completed there secondary education in Pakistan and Iran are also eligible to enter public universities in Afghanistan. An estimated twenty-five (25) percent of Afghan refugees who qualify at year twelve outside the country are also joining Pakistan & Iranian universities for higher education.

3.5 Non Formal/Informal From the outset the international community and the Government has recognized the need to rebuild the skills of the work force to ensure that the best use can be made of the development opportunities being offered from a multitude of sources. Some NGOs too have been active for many years and more recently greater numbers have conducted a virtual smorgasbord of opportunities for training and development. UNHCR delivered massive amounts of training through NGOs both inside and outside Afghanistan and this has been a useful and in many cases beneficial activity for those who returned to the country. In most cases this training was locally designed and delivered as a bridge between protection and humanitarian assistance. Actual

28 For example in 2006 approximately 500 Afghan students were awarded scholarships for higher

studies in India.


40 40

demand was not foremost on their agenda at that time and very few tracer studies were carried out to evaluate these projects.

3.6 Non Government Because they play such an important role in Afghanistan, comprehensive output/achievement data of the NGO sector should be a condition of registration. Similarly, private training providers registered with the Ministry of Commerce should be obliged to provide data as a means of determining their taxable income. NGO data is difficult to assemble but addresses and contact information is available in general form from ACBAR. This information does not define in detail, the specific activities of NGOs. A further list of NGOs, and an indication of their potential to train, has been assembled by the NSDP. Ultimately, the NSDP will register all training agencies and hold key standards data on each so as to enable its accreditation role to commence.

3.7 Private sector Private proprietary training providers are concentrated in the English language and information and communications technology areas. Registration is required for business purposes with the Ministry of Commerce. Anecdotal evidence suggests that the numbers are increasing and around 600 are thought to exist. The number of businesses registered has not been followed up therefore no data on those who have passed through any form of training is available. It is also suspected that many are avoiding the legal requirement to register.


41 41

4 Secondary demand data

4.1 Government employment potential Government employment according to the data provided by the Ministry of Finance indicates that the total number of public servants is currently just below 466,300. 29 See TABLE Seven TABLE Seven Current Staff Levels by Govt Ministries 2007.

Location/Title Number of Employees

1.1 Security Sector Ministry of Interior Affairs 83271 Ministry of Defence 75259 Ministry of foreign affairs 1190 National security council and presidential guard 863 Directorate of National Security 13000 Total 173583 1.2 Governance, law enforcement and Human rights Presidential Office 2868 Lower House(senate) 675 Upper house(parliament) 1708 Supreme Court 4543 Ministry of Justice 6500 Royal House( office of the father of the nation) 40 Office of the a Administrative Affairs 971 ministry of government in parliamentary affairs 49 Ministry of Hajj and Islamic Affairs 7044 Office of the Attorney General 4500 Election Commission 218 Independent Administrative Reform and Civil Service Commission 449 Anticorruption Body 140 Total 29705 1.3 Infrastructure and Natural Resources Ministry of Public Works 2600 Ministry of Transportation 2104 Ministry of Communication 3200 Ministry of Energy and Water 2333 Ministry of Urban Development and Housing 565 Ministry of Mines and Industries 2532 Geography and Cartography Office 675 Independent Directorate of Environmental Protection Commission 390 Total 14399

29 Source: Ministry of Finance tables, July 2007.


42 42

2.3 Education Sector Ministry of Education 191603 Ministry of Higher Education 6137 Ministry of Information, Culture and Youth affairs 4100 Academy of Sciences 456 National Olympic Committee 360 Total 202656 3.3 Health Sector Ministry of Public Health 14500 Total 14500 3.4 Agriculture and Rural Development Sector Ministry of Agriculture Animal Husbandry and Food 9600 Ministry of counter narcotics 339 Ministry of Rural Rehabilitation and Development 2129 Total 12068 5.3.Social Support Sector Ministry of Border, Tribal and Ethnic Affairs 800 Ministry of Labour, Social Affairs, Martyrs and Disabled 7335 Ministry of Refugees Repatriation 1093 Ministry of Women Affairs 874 Department of Disaster Preparedness 170 Directorate of Nomads 198 Total 10470 3.6 Economical Management Sectors Ministry of Finance 5750 Ministry of Commerce 1142 Ministry of economy 900 Department of Inspection and Control 315 Central Statistic Office 800 Total 8907 Total of Ministries and Departments 466288 Note: All those who are working on contract basis with government ministries are not included. As a traditional source of employment, especially for post grade 12 school leavers, the public service will not be able to provide sufficient opportunities for the majority of them nor can it absorb the graduates from universities. The opportunities for will shrink even further given the decision to rationalize the number of posts in all ministries in the near future. The separation/retirement rate from the public service in 2005 was 12,360. It is most likely that these vacancies will be filled from within the public service where possible. There was no distinction made in the compilation of these figures for separations, resignations, early retirements or deaths.

4.2 Employer's demand information and data There are a number of national organizations both public involved in the business community. The peak body would appear to be the Afghanistan International Chamber of Commerce (AICC) which acts as an umbrella organization with a number affiliated sector-specific groups within it’s structure, The source for data on establishments at national level is spread across several key locations. The major source was the Peace Dividend Trust (PDT), a project funded by a consortium international (donors). Other sources of enterprise data in the modern (formal) sector of the economy include worker’s organizations, community based organizations and religious groups who may


43 43

be able to provide demand and supply data. They were not contacted during this exercise. The demand for specific types of labour or quantities of such is not recorded in the data reviewed, the exceptions being those implementing partners of NSDP and JICA. The overview and the profiles of the organizations does indicate that there are a range of enterprise sizes plus a variety of types and locations. This is very useful as a means of deciding with CSO where the enterprises at this level should be positioned in any future LM survey. Data on the types of company interested in doing business with suppliers both internally and internationally, i.e. focused on import/export, is extensive. The diversity of the enterprises, the staffing levels and in some cases, the gender distribution demonstrates that this sector is developing steadily. A summary is attached at ANNEX B. Other sources of private modern (formal) sector information have not been pursued to date although this is planned to continue during the second phase. The retail services sector, a major source of employment, was not assessed in any detail in the studies reviewed.

4.3 NSDP demand information and data

With the introduction of the National Skills Development & Market Linkages Programme (NSDP) 30 it was agreed that a practical approach that built capacity within the various Government, non government and private institutions to implement a skills development programme linked to demand was the most suitable approach. The invitation letter of NSDP to identify expressions of interest from potential implementing partners explains the three main objectives of the programme and invites those interested institutions, both public and private, to respond to the first objective which is to reach a point where: " ... 150,000 unemployed and underemployed Afghans, of which at least 35 percent are women, have increased wage and self-employment opportunities through the provision of market oriented skills training, business training and linkages to micro credit and business development support services and skills for decent work" Those implementing partners (lP's) who are interested were expected to be able to establish and manage cost effective vocational education and training programmes/courses that: • Are targeted at a range of identified skills shortages. • Focus on unemployed and underemployed who are at least 14 years of age. • Result in the placement of at least 75 percent of graduates in waged or self-

employment, of which at least 35 percent are women and five (5) percent are disabled.

• Cover one or more of the following sectors; agriculture, business and commerce. building and construction, industry and services.

• Range in length from 4 to 18 months depending on the nature of the course and the level of prerequisite qualifications

30 The intention is that the NSDP will become a para-statal organization in the future capable of

providing skills development supporting all Government priority economic sectors.


44 44

• Incorporate a functional literacy and numeracy component, and other key life skills. • Range in cost from US$ 300 to US$900 depending on length and course

complexity . • In addition courses may include the following elements where considered relevant:

a. Training in English where appropriate. b. Training in entrepreneurship for those graduated who will use their skills to

pursue self-employment. c. Linking participants to micro-credit facilities and business development

service providers. 31 In 2006 NSDP embarked on a pilot to develop procedures that would in reality enable all those who had previously been delivering skills training, especially the NGOs and private sector establishments to access funds and, where necessary be offered technical assistance to improve the programmes they delivered. The pilot has been reviewed procedures refined and progress has been made with an estimated 9710 trained to date. See TABLE Eight TABLE Eight

Number of NSDP supported trainees for the 1385 / 2006 Province IRC SAB SDO AGEF ACEG MOE MoLSA Total

Kabul 778 435 1080 170 2463

Wardak 0 285 285

Logar 292 277 569

Parwan 0 248 380 628

Kapisa 0 220 120 340

Bamyan 0 209 209

Nangrahar 260 314 574

Lagman 0 223 223

Kunar 140 203 343

Nursitan 100 100

Hirat 262 296 558

Badgis 135 135

Faraha 125 125

Paktia 82 82

Paktika 124 124

Ghazni 147 223 370

Khost 162 162

Kudoz 528 528

Badakhshan 170 170

Takhar 440 440

Baghlan 362 362

Balkh 420 420

Jozjan 500 500

Total 2607 2414 519 1500 500 2000 170 9710

31 Extracted from the letter from Afghan Reconstruction and Development Services (ARDS)

reference NSDP /563.


45 45

Contracts are offered to implementing partners who can demonstrate that they have carefully assessed the labour market and are confident that the courses they offer are in demand. [preferably in the provinces of the trainees] Those IPs that are short listed receive a Request For Proposal (RFP) application from ARDS. 33 Of particular importance to this report is the stipulation that requires an IP to provide a recent study or conduct a rapid assessment of the current labour market to ensure that the skills development offered is required by the market. The following excerpt taken from the ARDS documentation explains this condition. 32

Consultants (Implementing Partners) are expected to give their proposal separately for each region indicated in the TOR. Points will be computed separately for each region for which a proposal has been given by the Consultant.

Criteria and point system for the evaluation of Full Technical Proposals are: 1. That the courses selected and the number of trainees to be trained in each course is based on an objective assessment of the labour market. (20 points) 2. That the courses reflect the type and skill level relevant to the demands the market and so

are likely to lead to sustainable waged or self employment for all trainees to be trained. (20 Points)

3. That there is objective evidence that the technical, pedagogical and financial management of the training agency is sound. (20 Points) 4. That the courses to be offered are equitable, and match the NSDP requirements in respect of: (40 Points)

a. availability of curricula (10 Points). b. quality of trainers (10 Points), c. equipment and facilities (10 Points), d. provision of common-core skills etc. (10 Points)

TOTAL: 100 Points The minimum technical score required to pass is (75 Points) 33 The data required by NSDP as a requirement for LMI from the initial set of contracts, i.e. numbers one and two, was in some cases not very descriptive, referring in one case to out-of-date reports and anecdotal information. However as ARDS and NDSP is embarking on a third set of contract negotiations and the demand requirement, i.e. Items 1 & 2, must be strictly adhered to LMI of this type will be welcome by the LMIA Unit of MOLSA as valuable demand-side data. This can be a source of up-to-date but localized information when made available to the LMIA Unit in the future for planning purposes. It will also be useful for NSDP as a means of assessing placement rates and the external efficiency of courses delivered. Available demand data from the recent second stage contracts is attached at ANNEX C. Each NSDP contractor has prepared information and data in a unique format which makes analysis across them impossible. Individually they are informative and can be commented on.

32 See Section 5.2 of the ARDS RFP, p23 33 These contract conditions numbers 1 &2, each having a 20 point allocation mean it is

impossible for an implementing partner to be awarded a contract if an assessment of the labour market that is related to the courses offered is not provided. This ensures that there is a supply-demand link.


46 46

Japanese International Cooperation Agency JICA has sub-contracted the gathering of data to NGOs in each of six provinces. The format is simple and clear. See TABLE Nine. Other data has been gathered on placement in Bamyan, Kabul and Mazar-e-Sharif with rates averaging 63 percent. The highest employment rate was in Welding at 100 percent and the lowest in Sheet Metal/Welding and Computing with 35 and 30 percent respectively. A further study was conducted on a class of females to determine if they were earning as a result of a sewing course. Approximately 60 percent were earing an income and the balance was planning to. TABLE Nine JICA supply, demand and trainee summary Mid 2007

Course Nangahar Paktia Heart Kunduz Jawzjan Kandahar

S D S D S D S D S D S D

Total

Auto

Mechanics

965 0 720 0 700 0 0 9 100 0 0 5

Trainees Beauty

Parlor

1361 28

Trainees Building

painting

25

Trainees Carpentry 1145 13 1580 17 855 34 2495 14 275 25 1100 Trainees 30 30 Carpet

weaving

1810 114

586 855 20 2890 20 2620 205

Trainees 30 30 60 Computer 1510 0 330 500 Trainees 20 20 Electrical

wiring

16 16 500 1085 1700

Trainees Electronic

repair

470

Trainees Embroide

ry

128

380 38 28 26 4000 3 1500

Trainees English

language

60

Trainees Masonry 850 725 3150 ? 1600 3200 Trainees 30 30 60 Plumbing 1215 16 235 8 900 1700 Trainees 35 35


47 47

Motor

cycle

repair

495

Trainees

Radio TV

Repair

925 770 22

Trainees 30 30

Sheet

metal

925

Trainees Refrig.

Air

condition.

37

Trainees Rug

Weaving

770

Trainees Shoe

making

30 2

Trainees Tailoring

male/fem

2260 69 1530 27 2490 26 3855 ? 435 17 4100

Trainees 35 30 30 30 125 Welding 1075 21 940 23 6 23 10 Trainees Welding

Sheet

metal

1315 26 1660 1370 2300

30 30 30 90 Other 2955 Totals for

supply

and

demand

15740 377

6350 133

10536 221 16035 75 11230 275 17900 15

Trainee

delivery

90 90 90 90 90 0 450

S = social demand for training D = estimated job vacancies Training delivery is the number trained in 2007 There is a limit to the capacity of JICA’s courses and the correlation between what is offered and what the demand is for actual jobs is reasonable over all. There are no doubt other NGOs offering course to meet part of the social demand in the same locations. However this not known. The issue for the LMIA Unit is how to gather and analyze the data of all training providers. This can only be considered as a snapshot. Other Implementing partners of NSDP have submitted similar reports with similar data.


48 48

Association of Experts in the fields of Migration and Development Cooperation (AGEF) The following tables summarize demand in AGEF supported provinces of the North East. The numbers are focused on the service and industrial sectors of the economy. There was a separate set of data for companies managed/owned by females. See Table Ten. The remaining estimates of demand are expressed collectively and do not distinguish between male and female. See Table Eleven. A further training need has been highlighted by AGEF in respect of the management skills of company owners. See TABLE Twelve.

TABLE Ten

AGEF - National Skills Development Program Surveyed Companies in Northeast Region ( lady companies)

Kunduz Baghlan Takhar Badakhshan Provinces

Kun

duz

city

Kha

naba

d

Imam

Sah

ib

Qal

ah Z

al

Total

Pul

-e-K

hum

ri

Khe

njan

Total

Tal

oqan

Das

hti Q

ala

Yan

gi Q

alah

cha

Aab

Far

khar

Bah

arak

Total

Fai

z A

bad

Jurm

Total

Grand Total

Tailoring 19 2 1 2 24 3 3 2 14 4 10 7 37 1 1 65

Required Trainees 89 16 4 8 117 11 11 6 65 19 45 34 169 4 4 301

Embroidery 10 10 2 2 0 1 1 13

Required Trainees 46 46 7 7 0 2 2 55

Total Company 29 2 1 2 34 0 5 5 2 14 4 10 7 0 37 0 2 2 78 Total Trainees Required 135 16 4 8 163 0 18 18 6 65 19 45 34 0 169 0 6 6 356

TABLE Eleven

Province Surveyed Companies Required Number of

Workers

Kundoz 636 1383

Takhar 719 1615

Badakhshan 250 560

Total 1605 3558


49 49

Tables 10, 11 & 12 provided by AGEF International Rescue Committee (IRC) In 2003 the IRC Vocational Training Program conducted a relatively extensive survey across eight provinces covering a mix of urban and rural areas. The enquiry sought the opinions of, among others, local “master craftsmen” and “daily paid workers” who are engaged in various business activities in different sectors. Of importance to this review was whether the survey information revealed the intention of employers to engage new workers. In an overwhelming number of cases the answer was yes. Unfortunately estimates were not requested indicating how many additional jobs were available now or in the near future. Other useful information on employment rates, the impact of seasonal work, the monthly income differences were provided. This approach, which took into account the logistical and cultural difficulties of undertaking such enquiries in Afghanistan, was noted and will be included in LMIA Unit instruments.

4.4 Other sources of demand information As NSDP is becoming a focal agency providing facilitation and funding of training for skills development. (Alongside its key role of building the management structure for TVET as a whole.) Training providers (Government, Private and Non-Government), submit Expressions of Interest (EoI) against regular calls from the NSDP in the hope of accessing this funding and becoming a contracted training provider. Training providers which, on the basis of an assessment of their EoI, are selected to submit proposals to the NSDP, are asked to carry out a rapid labour market study within the geographical area in which they are proposing to offer training, and submit this information to justify the types and levels of training they are proposing to deliver. This wide-ranging data is is being assembled by the NSDP along with other local area labour market demand assessments, again carried out as rapid surveys under guidance from the NSDP, but by existing NSDP training provider partners. Selected NSDP information is included in the annexes to this report. (Apart from being good TVET practice which all training agencies should adopt in

TABLE Twelve

Shortage of Company Owner Skills by Type

Provinces Technical Marketing Managerial No Shortage Total

Kundoz 98 530 8 636

Takhar 136 580 1 2 719

Badakhshan 52 105 61 32 250

Total 286 1215 17 42 1605

Percentage 16% 79% 3% 2% 100%


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order to inform their course offerings and forge links to the world-of-work, this collection process by the NSDP provides a very cost effective way of acquiring labour market demand information from all over the country. A further source of information on both supply and demand is a report prepared by the ESC project for the period August 2004 to March 2007 provided data on their performance. Placement rates varied for 29 percent in 2006 to 44 percent in 2007. See TABLE Thirteen. However the placement rate is a combination of job and training placements. Within that total the actual referrals to placement in a paying job as a worker with acceptable skills is not specified. TABLE Thirteen

Source: ESC Project draft 2007

Year Number of registered jobseekers

Number jobseekers

Interviewed

Number of job vacancies

received

Number of job &

training referrals

Number of confirmed job &

training placements

2004 1,435 1,828 537 1,134 88 2005 16,095 13,464 4,021 5,961 1,258 2006 11,917 18,539 7,610 11,356 3,318 2007 2,151 4,941 2,058 2,734 1,213 Total 31,598 38,772 14,226 21,185 5,877


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5 Gaps in data reviewed

5.1 Informal sector There is a dearth of data on the impact of the informal sector on the labour market. This has been neglected when reporting on the labour market in most countries in the developing world. Afghanistan is an exception. It is well known that the numbers of those involved in economic activities a means of gaining a livelihood is significant. In 1993 the ILO defined the population employed in the informal sector as " ... persons who, during a given reference period, were employed ... in at least one informal sector unit ... irrespective of their status in employment and whether it is their main or a secondary job".

34 An expert group, made up of a cross section of international experts and chaired by the ILO, is developing a "Manual on Surveys of Informal Employment and Informal Sector". This is due for completion at the end of 2007.

35 This may be useful in 2008 but, as the paper suggests, the technical guidelines were compromised by a " ... lack of agreement among conference delegates ... " to reach consensus and the resulting flexibility reduces international comparability. The definition used in 1993 was further refined and developed based on production units rather than labour units and as follows: "Employment in the informal sector then includes all jobs in the informal sector enterprises or all persons who, during a given reference period, were employed in at least one informal sector enterprise, irrespective of their status in employment and whether it was their main or a secondary job". 36 The conduct of the LM survey will need to take advice from CSO as to what the agreed definitions are to be used when dealing with the different economic sectors to ensure they are consistently applied by enumerators.

5.2 Instructor training The reports rarely mention instructor training. There are a number of references to the fact that instructors for many NGO programmes are found in the market place and train without any pre-course assistance. Whether this is appropriate is yet to be determined as some of the skills to be delivered do not require a high level of theoretical knowledge. At this stage there is no common instructor recruitment strategy, no common delivery strategies, no agreed systems of classroom workshop student /instructor behavior nor is there a common assessment plan. The development of these approaches to the improvement of the overall system requires resources that have not as yet been earmarked. Although already started, the process of changing the existing system is a lengthy one and should be further conceptualized and acted on by NSDP as soon as possible. From a labour market information perspective the level of skill required may become increasingly important as the overall employment and skills development system becomes more sophisticated.

34 International Labour Conference, 1993, resolution extract. 35 See report of the Expert Group on Informal statistics (Delphi Group). Manual on Surveys of

Informal Employment and the Informal sector, R, Hussmanns, ILO. Bureau of Statistics, Geneva 2003.

36 ILO, (2002). Decent work and the informal economy, STAT working paper, ILC, Geneva, 2002, -- 3-4.


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5.3 Skill level The reports reviewed, without exception, assume that the skill level reached in the programmes offered by all training providers, whether implementing partners of NSDP or otherwise, is adequate and meets the demands of the labour market. It is recognized that there are many NGOs preparing trainees for employment or self employment and that the level is sufficient. The gap noted however is in the fact that there seems to be no distinction made when recording the numbers trained by skill area in non-formal or informal courses between a short, medium or lengthy duration course, both in terms of difficulty or entry requirements.

5.4 Skill standards/testing As an extension of the above, and again referring back to the reports reviewed , the majority of the NGOs who are currently implementing partners of NSDP have conducted training needs assessments. The is a suggestion that in the future there be a minimum standard, skills testing, common assessment strategies and a national framework of qualifications established within NSDP. This will require a considerable amount of effort and time to accomplish. At this stage the curriculum reform models being developed by NSDP may reveal the magnitude of the changes required, even within the Ministries involved. At this time the LMI system cannot include the level of skill achieved in any survey data as this is considered at this stage of the process to be overly ambitious. The formal education system has its system of awards but until these are integrated into a national skills framework, and employers embrace the concept it will be best to ignore this for those trained in the non-formal and informal sector.

5.5 Standard Occupational Classification Afghanistan has a national standard classification of occupations (SCO) document in Dari. However the copy held by MOLSA is incomplete. The lack of an SCO may explain why the use of a national occupational standard, as a means of identifying what group, i.e. major, sub major, minor or fourth digit level, a person should be classified as is often misunderstood. The LMIA Unit must be clear what level of disaggregation will be used if there is no clear job title. See ANNEX C for an outline of the International Standard Classification of Occupations. This needs urgent attention as the CSO intends to conduct a census in 2008, and a benchmark for the LMIA Unit is the completion of a labour market survey by August 2008. A request for resources to undertake a series of investigations to complete the SCO has been outlined to NSDP.


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6 LMIA The way forward

6.1 Policy issues The role of the government in general with regards to macroeconomic policy is to strive to create prosperity through balanced enabling legislation where national interests are involved and the by supporting the private sector rather than acting as a competitor in the market. The Government through sound economic management is promoting economic and employment growth in a variety of ways. Monetary and fiscal policies are designed to stimulate growth, trade agreements are being signed, foreign workers are entering the labour force to fill gaps in specific labour market areas, vulnerable groups are given individual encouragement and assistance and the conditions for an efficient labour market system are being introduced. Because market economies rarely have a balanced supply and demand for labour the Govenm1ent's role is to determine how much of that imbalance can be tolerated before economic and social circumstances require some form of political intervention. Policies from the MOLSA with regards to the impact of the overall employment and training system (ETS), within which labour market information systems (LMISs) are located, can assist in this regard by describing the labour supply/demand component and advising central government on specific trends and growth opportunities. The policies of the government with respect to MOL SAMD’s role at this stage are not clear with regards to employment and training. Currently the type of LM data required by the major stakeholders, including MOLSA, and to what extent any data collected will be at a suitable level of disaggregation is not clear. This lack of guidance as to what is an acceptable level is evident when comparing results of individual and uncoordinated efforts on the part of ministries/agencies and the NGO/private sector to collect further information for their internal needs. This reinforces the widely held opinion that the Government does indeed require an LMIA capacity but if MOLSA is to spearhead this on a national basis it needs to have a clear idea of what it intends to achieve. It is hoped that this report will inform this process of clarification. Currently the various NGO and Bilateral donors have addressed the issue LMI by doing some of the work independently. This may be expedient in the short term but is not considered a long-teem solution. The options mentioned above need more critical examination and a determination made at the highest levels so that the proposed surveys mentioned here can be implemented with a clear mandate. The current supply of raw data relating to the labour market is extensive. However it is not always comparable, is fragmented within sectors, has different beneficiaries, was designed in most cases with a specific target group in mind, is updated infrequently and suffers from a lack of coordination at the national level. Coordination is essential to correct this situation and make better use of this data for employment and training purposes The analysis of employment/unemployment data within the MOLSAMD is inadequate and the capacity to analyze nationally generated data produced by other Government and non-government sources cannot currently be undertaken. The capacity of the staff in other ministries/agencies in general to interpret the data already available and to analyze the


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statistics as a precursor to developing policies and strategic plans is unknown. The continuous calls for more data may be an indication of this phenomenon and suggests that more professionally trained people are needed to undertake this task Unemployment and underemployment is endemic. The rate, when expressed as a percentage is difficult to determine given the lack of baseline census data. It is likely that the figures are below the actual number. One reason, among others is that the criteria for being classified as employed are not stringently applied or possibly misunderstood by those collecting the information. It is also apparent that there is a large informal sector and workers are not properly accounted for in many of the current statistical reports. The numbers of illegally employed foreign workers is also difficult to determine.

6.2 Employment and training issues. Policy formulation for the labour market (LM) is impacted by a many factors. The MOLSAMD traditionally assumes responsibility for the formulation of such policies although it is not the sole source. MOLSA should not be expected to be the sole policy body in a dynamic market forces economy. Evidence of analysis of the vast amounts of existing LM data by policy makers in any Ministry is currently difficult to locate. This dearth of information, as opposed to actual data which is known to exist, is due in part to lack of suitable data in a form that suits particular users. It could well be that these users are in fact unable to interpret what already exists, that the quality of existing data is suspect, that the policy makers expect too much of raw data or lack the staff with the prerequisites needed to analyze and present user-friendly information. The lack of a broad-ranging set of services through a strengthened Provincial Department of Labour network that is accessible to the public is noted. The role of a future Employment Service Center (ESC) network, within MOLSAMD, currently being assisted by the ILO, needs to be involved as a contributor to the LMIA Units work. What is required is a DOL office with sufficient capacity, both physical and financial, to be the focal point for the compilation of data suited to analysis at the national level whilst recognizing that some data will focus on specific local economic groups or targets. The intent would be to devote considerable resources to this aspect of the MOLSAMD as a credible, willing and key participant that can offer assistance to a wide audience. The ESC system is not well utilized by its various clients, including enterprise managers, the Chambers or the unemployed. Its services do not, and probably never will, reach the people who are in most need of advice and assistance. The general consensus is that more must be done by MOLSA if it intends to be a major force in what is acknowledged as a key component of the economic development of the country and the region. Provincial DOL offices must be adequately equipped and operate using modern procedures. Current work procedures are not integrated within even the most rudimentary information and communication technology support. The offices may need to be staffed with higher c1assifications of staff if the expectation is that they will approach the roles envisaged for them in a professional manner. Those currently in posts are not systematically exposed to in-service training, and whilst they may be willing are unaware or unable to extend their service to encompass traditional employment service functions. Little incentive currently exists to be proactive in their endeavors to provide these services


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6.3 Labour Market Policy body (LMPB) There is a need for support at the highest level to form a national LM coordination mechanism to overcome the situation. To form such a body requires further elaboration, especially in terms of how such a mechanism would best operate. The formation, title and level of authority of such a body will require considerable discussion between the users and the providers of LM data. The authority of such a body requires definition in the form of legislation and regulations and the distribution of responsibility must be clearly described. This LMPB would be the peak body for determining LM policy supported with a secretariat located in the LMIA Unit to execute the decisions of the Board. Sufficient resources would be provided by MOLSAMD to sustain the Secretariat. The Secretariat would draw on the resources, both financial and in terms of staff, of the Research and Development Unit within the LMIA Unit and the DME as well as research and planning units in other ministries based on LMPB directives. The suggested Institutional Framework is shown in FIGURES One and Two at the end of this report. The LMPB would ensure that there was a minimum of duplication between the key actors, that scarce resources are not wasted and most importantly all the key actors would be aware of each others needs and capabilities. The MOL SAMD, being the ministry responsible, would be meeting its obligations by facilitating the Secretariat. MOLSAMD would also be staffed with professional analysts in its LMIAU who could prepare supporting materials to support nationally determined Labour Market policy. A further devolution of responsibility for specific data and simple analysis would be the responsibility of personnel at the Provincial Department of Labour Office level.

6.4 Restructure of the DME The Department of Manpower and Employment (DME) needs to address areas that are traditionally the responsibility of a Labour Ministry that require a variety of technical assistance activities. The structure of the DME within MOLSAMD and the divisions of responsibility with each of the key Departments require review as part of the preparation for the LMIA Unit's integration into the overall structure. The functions and responsibilities of other Departments as it relates to LMI must also be further clarified. Individual LMIA Unit staff profiles would need to be prepared including the description of skill and qualification gaps of existing staff. Staff development plans need to be agreed. Job descriptions for key personnel must be developed in close cooperation with the incumbents. This will take account of personal aspirations, background experience and include broad duties and responsibilities, the actions to be taken to achieve them and the means by which the results of those actions can be measured. Staff unable to adapt to the activities of the project will be counseled and offered alternative posts if necessary. The DME would assume responsibility to establish a national Labour Market Policy Board (LMPB). DME would identify and establish a task force, convene a workshop, invite members, decide on TORs and establish as an advisory body supported by the Government. The LMPB will also include representatives of the donor community, the United Nations Development


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Programme (UNDP) and other UN agencies. This DME of MOLSAMD would act as the Secretariat for the LMPB would guide the work and determine priorities of those involved in the collection and analysis of LMI and data. Capacity, in terms of numbers and qualifications and experience must be critically examined within DME to ensure that there is sufficient critical mass within DME to properly undertake the duties and responsibilities. Those appointed to the posts will be given in-service and regional and international exposure in relation to job functions. A central LMIS unit within the DME would assume responsibility for any MOLSAMD data collection and analysis and develop staff to conduct systematic, articulated and focused national labour market requirements. The unit would be adequately resourced for sufficient time to allow the institutionalization of their operations into the government budget. These staff will design, articulate and monitor surveys by other agencies and determine whether MOLSAMD should conduct such activities to suit its plans and policies. The staff will also study all survey data to establish how it can contribute to satisfying the demand of specific sub-sectors of the labour market. Assessment of existing survey material and evaluation of the potential of those currently responsible for existing surveys would reduce, if not eliminate, any obvious duplication of resources. The DME, through its LMIA Unit, would assume responsibility for the conduct of national, provincial and district level surveys and a general analysis based on the needs articulated when the activity was originally justified. Field based DOL Department officials and Employment Service Center officers would be trained by the LMIA Unit to use survey instruments, in collaboration with the CSO and approved by the LMPB. The DME will also collaborate with provincial and district level VT training centers, NGO implementing partners and NSDP plus the MOE schools to ensure there is no duplication of effort. The LMIA Unit will examine ways and means of collaboration between with NSDP by bring all the stakeholders together at the national and local level, including training providers, employers' and workers' organizations, community groups, donors and NGOs to create synergies, eliminate duplication and promote collaboration with and within the expanding NSDP system.

6.5 Strengthen the Employment and Training function. DME would be given responsibility to undertake the design, development, implementation and monitoring of a comprehensive employment and training service. This would build the capacity at the central and provincial level labour offices to provide adequate employment and training services. This would include counseling and vocational guidance, job placement vacancy registration, linkages with enterprises and the building of capacity to undertake focused and sector specific analysis of employment needs. In addition the strengthening of advisory services through informal linkages with employers and community level associations would be a priority. The establishment of closer liaison mechanisms with public and private training providers is essential. Staff needs to be pro-active in identifying problems, including training and skilled worker needs as a result of technology change.


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6.6 Intended beneficiaries The staff of the DME would be given extensive in-service and on-the job training to enhance their capacity to operate an effective, efficient and responsive employment service to its clients. Other beneficiaries include: (i) researchers and planners who use LMI to determine policies and plans of action as it affects there particular target groups. (ii) staff of the various training providers organizations who will receive better information on local demand for various levels of competence, (iii) a wide range of people who will be able to receive assistance in a full range of improved employment services. This includes students, unemployed and underemployed, enterprise managers and the local education community. This improved service will be coordinated at national level but information and data collection would be decentralized to the local level to reflect needs in the immediate catchment area.

6.7 Institutional Framework The staff of the MOLSAMD and a variety of partners including the key stakeholders in government ministries, the non government and private sector and the employers' and workers' organizations would need to determine how there could be a cross section of stakeholders involved. At the national level a tripartite project steering committee would be formed consisting of the key actors/social partners involved with employment and training. At provincial/district level a tripartite group will be integrated into an advisory committee coordinated by the provincial level Labour Office to monitor employment and training developments peculiar to each location. Terms of reference for each level of committee will be written and approved by the MOLSAMD.

The uses of LMI are virtually unlimited. Before embarking on a LM survey it is considered essential to have the specific user articulate the needs. Agencies have a tendency to over-specify what they are seeking to survey and underestimate the duration, staffing and costs associated with major surveys. Time spent articulating the purposes to which the information will be put is time well spent and considered prudent as it allows a realistic cost to be estimated at the outset, thus avoiding financial strains that promote shortcuts at various stages of a survey. It also avoids any possible duplication.

6.8 LMIA network There needs to be considerable time and effort invested by the MOLSAMD to establish a network of individuals and institutions to participate in a continuous process of gathering LMI. The key sources and locations of individuals are already in place in each province. Table Fourteen indicates the number and location of those could be part of the network.


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Potential network of contacts for LMIA Unit TABLE Fourteen

Province ESC

37 DOL 38

MOE 39

MOHE 40

NGO 41

MOLSA 42

PRT 43

TTC VTC Badakstan 0 1 1 +1 1 8 1 1 Badghis 0 1 0 +0 0 4 0 1 Baghlan 1 1 2 +1 0 6 1 1 Balkh 1 1 4 +O 1 13 1 1 Bamyan 0 1 0 +0 1 8 1 1 Daykundi 0 0 0 +0 0 3 0 0 Farah 0 1 1 +1 0 4 1 1 Faryab 0 1 1 +1 1 3 1 1 Ghazni 1 1 0 +1 0 8 1 1 Ghor 0 1 0 +0 0 3 0 1 Helmond 0 1 3 +1 0 2 0 1 Herat 1 1 1 +0 1 14 1 1 Jawzjan 1 1 2 +1 1 6 1 1 Kabul 2 1 17 +1 4 25 1 0 Kandahar 1 1 1 +1 1 13 0 1 Kapisa 0 1 1 +1 1 6 1 1 Khost 1 1 1 +0 1 4 0 1 Kunar 0 1 0 +0 0 9 1 1 Kunduz 1 1 1 +2 1 14 0 0 Laghman 0 1 1 +1 0 11 0 1 Logar 0 1 0 +0 0 9 1 1 Nangarhar 1 1 3 +0 1 15 1 1 Nimroz 0 1 0 +0 0 4 1 0 Nuristan 0 1 0 +0 0 9 0 1 Paktika 0 1 0 +0 1 4 1 1 Paktya 1 1 0 +2 0 12 0 1 Panj Sher 0 0 0 +0 0 1 0 1 Parwan 0 1 1 +1 1 12 0 1 Samangan 0 1 0 +1 0 4 0 1 Sar-I Pul 0 1 0 +1 0 3 1 1 Takhar 0 1 0 +1 1 9 1 0 Uruzgan 0 1 0 +0 0 3 0 1 Wadak 0 1 0 +0 0 7 0 1 Zabul 0 1 0 +0 0 3 0 1 Total 11 32 41+19 18 ** 18 29 37 Taken from the AGEF brochure on Employment Service Centres 38 Tabulated from the organization table provided by MOLSAMD 39 Taken from Tables provide by MOE’s MIS Unit. This includes TTC and VTC schools 40 Taken from the CSO Afghanistan Statistical Year Book, 2006. 41 The totals are those that showed an interest in contracting with NSDP. Some additional NGOs

are included who are self-funding. 42 Taken from data provided by the Vocational Training Department of MOLSAMD. 43 Taken from an ISAF document entitled Provincial Reconstruction Team Handbook, 2007.


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Employment Service Centres (ESCs) are located in 10 provinces. 44 The personnel in these ESCs are a valuable source of LMI. They are also in touch with the local labour market through the registration of vacancies. The recently introduced ILO project to assist with the reintegration of ex-combatants and their families through a strengthened set of ESC' s will also extend the amount of data that will be available. The ESC network and local employers must be strengthened to ensure placement rates are improved Department of Labour Offices (DLOs) in 32 Provinces have an officer responsible for vocational training. These officers offer ad-hoc courses for the work force and are also in a position to contribute with local LMI. DOL staff responsible for labour rights and the labour inspection function can contribute with LMI as a result of their visits to enterprises in the catchment area Ministry of Education vocational schools are located in 16 provinces technical schools in 17. Some are sector specific, i.e. agricultural schools, and would have sound linkages established as part of their overall programme. The staff of the Vocational Education Schools is also a source of local LMI and should be assisted to establish linkages with DOL’s ESCs. . Ministry of Higher Education prepares degree level graduates from 15 public universities. The network of contacts developed to place them during courses with potential employers for placement and feedback after they graduate would allow the faculty staff to keep abreast of local and. in some cases, national needs for their graduates Non Government Organizations are known to be more pro-active than Government institutions. Most have a much better understanding of local conditions and frequently gather LMI as part of their overall approach to providing both humanitarian and development aid. As major implementing agencies throughout the country this group can provide LMI that is current. As they are traditionally separate from the requirements of certification of their training programme this aspect requires careful attention when they are engaged to do the work of a national government. Key informants at the provincial, district and local level are an important source of local intelligence. A network of such people needs to be nurtured so that the local population is involved and will contribute with data when necessary. Employers from the informal sector and the modem sector where this is applicable, should also be encouraged to advise on the trends as they see them in the local economy. Community leaders are an additional source of information regarding local needs, especially as they refer to the informal sector of the economy. The Provincial Development Committee structure should be included where they have skills development issues to contend with.

44 The ILO has a project being implemented that will extend to all 34 provinces.


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Provincial Reconstruction Teams (PRTs) are active in the provision of training and the employment of local workers. Where it is feasible the LMIA staff must be linked to the responsible ISAF representative to gather information on labour. The LMIA Unit's role will be to integrate all of these potential sources of LMI into a workable group that can provide primary information for direct application at the local level and some of which can be compiled centrally and analyzed as a means of informing national policy.

6.9 Employment Service Centres The main task of the ESC network is to counsel applicants requiring further training to courses and to match demand for workers at any skill level with those having sufficient skills to do the work. This requires revisiting in an economy such as is found in Afghanistan. With the increasing numbers of non government training providers engaging in focused labour market surveys for their clients and the expectation that this function will increase and improve over the life of the NSDP, the link with, and need for, this function within the public ESCs is reduced. In fact the ESCs are marginalized even in their dealings with other government ministries who side-step existing ESCs when recruiting their own staff. There is no legislation that requires the private sector, to register vacancies with ESCs. Consideration should be given to the potential for the privatization of this function over the next several years. The current set of eleven MOLSAMD ESCs have become a repository for registrations of predominantly unemployed basic labourers and semi-skilled persons. This group can be accessed by employers from the informal labour system that flourishes in specific and well-known locations in each town and city throughout the country.


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7 Recommendations

7.1 Labour market policy board

• That a labour market policy board is formed consisting of all major stakeholders including government, the employers’ and workers’ organizations. The LMPB would provide guidance and oversight to the MOLSAMD and other agencies undertaking LMI related activities.

• That a network of advisory committees be formed at provincial level on an ad-hoc basis to support the gathering of local intelligence and data for the LMIA Unit as well as others seeking to assist with E&T system strengthening. 45

7.2 Labour market information and analysis Unit

• That the scope and limitations of the LMIA Unit within MOLSAMD be discussed with an ad-hoc group of public and private stakeholders at the national level as soon as possible to develop an agreed and realistic work plan to achieve sustainability.

• That the existing incomplete Dari version of the Afghan Standard Classification of Occupations (ASCO) be updated and developed as a guide describing the outline of a job/occupation. 46

• That the NSDP prepare a procedure manual for contractors that includes a standardized format for the reporting of labour market supply demand.

• That the titles of courses being offered through the NSDP are standardized and

a description of the various jobs, taken from ASCO, related to the course, be appended to all curricula documents as a means of (i) counseling trainees and (ii) distinguishing which ASCO codes are related to the course.

7.3 Labour market survey

• That the LMIA Unit be given the responsibility and authority for labour market surveys regardless of whether they conduct them from within their own resources or externally if resources, both human and financial are not available.

• That a strategy to have the labour market survey function privatized be developed, especially for selected labour specific sectors. 47

7.4 Staffing policy

• That the DME advertise, select, and hire staff with the necessary education background to fill posts within the LMIA Unit. The type of person required at each level should be described and a profile drawn up in consultation with CSO and AIMS.

45 See Table Nine for potential membership. 46 The requirement for this in urgent if it is to be of benefit to CSO in the forthcoming census

exercise. The existing version has large sections missing and needs to be redone. A small team of 5 could accomplish this in six months. An English version would also be useful to researchers and analysts.

47 Those seeking specialized workers, seasonal labour, overseas placement etc,


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7.5 Staff development

• That as a precursor to entry to the LMIA Unit, a short-list of candidates should be assessed by LMIA Unit and AIMS. Those who qualify should be sent to AIMS for the data base assistant course. Those passing should be given tenured posts.

7.6 Staff career planning

• That a personal career development plan be drawn up for the staff of the DME and LMIA Unit that will provide in-service and training and external exposure to suitable meetings, conferences and workshops to enhance capacity.

7.7 Accession planning .system

• That as promotion within the LMIA unit will be limited there must be assured and alternative promotional opportunities at the senior level identified and made available within the public service. e.g., between CSO, MOE and other ministries with similar job functions. Transfers across ministries must be agreed if this level of staff is to be retained within the public service.

7.8 Capacity building across MOLSAMD • That an incremental approach to the strengthening of MOLSAMD that matches

the existing capacity be implemented based on an agreed strategy over a five year period. 48

48 The expectation that wholesale restructuring of the ministry is appropriate at this stage in

simply unrealistic. The natural resistance to change must be overcome with a sensitive and carefully managed programme.


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8 Action Plan:

The present stage of the LMIA unit's evolution is constrained because:

1. The conceptualization of a small LMIA Unit, staffed from within the MOLSAMD that will gather, analyze and advise with quality information the Ministry on national labour market issues is flawed.

2. The model proposed for a sustainable LMIA unit that would be self-reliant in less than eighteen months is not considered possible

3. The idea that a small group of five (5), managing six (6) short-term data base entry people who would in turn train 30 temporary field staff to gather data has little chance of success.

4. The recruitment of suitable existing ministry personnel to staff a sustainable Unit, whilst ethically desirable is not going to provide the type of profile needed to do this work

5. There have been a number of applicants from within the Ministry but with the exception of one, they cannot meet the minimum requirements for entry to the introductory level of the AIMS data base programme.

6. Using the existing staff to assist with the short term objective of an assessment of the existing data on supply and demand from secondary sources has been a failure.

7. Attempts to improve their computer skills and English proficiency has had limited success.

8. Repeated suggestions/requests/alternatives for some arrangements to be made to have them upgraded have not been heeded.

9. Resources, both human and material, for the second stage of the activity have been requested but as yet have not been provided. This second stage is expected to commence on August 1st 2007.

8.1 Setting the agenda There is a need to have a labour market survey that is of value and can assist those seeking reliable data upon which to make serious investment and human resources development decisions. If the strategy is to build a Unit with the capacity to conduct national labour market surveys that are professionally prepared the initial ANDS benchmark survey will need to be rethought. A well resourced LMIA Unit could retain responsibility for the conduct of such surveys, with the assistance and guidance of a strengthened CSO. Where there are capacity deficiencies the outsourcing of activities such as data collection and quantitative analysis could be given to "others". The current establishment of the MOLSAMD does not have the numbers considered needed or the technical capacity to do this well and cannot hope to reach this level of effectiveness in the time available. A revised timetable is needed that is more realistic if capacity is to be built.

8.2 Alternatives • Develop a MOLSAMD strategy to hire staff and train them to gather and collect data on

the labour market on a continuous basis over the life of the I-ANDS. • Staff the LMIA Unit with permanent young professionals who have the necessary skills

to undertake data gathering, data entry and data analysis. • Prepare a redesigned staffing structure that provides sufficient people to provide


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reliable and timely LM analysis for the ministry. • Develop a career plan for each post and resource the plan for the duration of the I-ANDS. • Utilize AIMS for the initial entry selection of eligible staff. • Select from a short list of those eligible who succeed at the AIMS courses • Contract "others" to undertake the initial LM survey, providing mentors though the

selected contractor, for the young professionals hired by and available as a result of open hiring strategies initiated by MOLSAMD.

• Provide in house mentoring at each phase of the survey process for MOLSAMD staff. • Establish provincial/district level advisory committees made up of MOLSAMD, MOHE,

NGO, DOL, Enterprise Managers and Worker's Organizations and local community focal points etc. to advise on local economic and social trends as they impact the labour market

The above requires discussion at the level of those who can make decisions to redirect and vary or modify the existing benchmarks. If that is possible then the development of a structure within the MOLSAMD for a redefined employment and training system, that includes an LMIA Unit within it’s structure, is needed.


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9 Draft proposal to strengthen the LMIA Unit A Promote a nationally coordinated system of LM surveys, LM information and LM studies as a major contribution to a national LMI system (LMIS) that is, as far as is practical user-friendly for public and private users. Success Indicators

• The national level LMPB is fully supported by the Cabinet of Ministers who considers its work as a policy advisory body and an integral part of the national LMIA system.

• The LMPB is the focal point for the assessment of LM information and the body providing coordination and. where needed, technical oversight of new LM data generation.

• LM data and analysis reports are exchanged between government departments and with the private sector with increased frequency.

• New LM data generated in a format that is comparable and information and analysis that meets, where feasible, the needs of other users.

• Collaboration at operational level increases as LMIA Unit staff establishes informal linkages where they have common professional objectives.

• The clarification of the role and scope of the MOLSAMD promotes increased public confidence in the LMIA services being offered at national and local level

A 1 Establish a National LM Policy Board (LMPB)

• Appoint an ad-hoc committee made up a key actors in the field of LMI, draft terms of reference for an LMPB and submit to the Minister of MOLSAMD for approval and acceptance by the Cabinet of Ministers.

• Invite proposed members of the LMPB to articulate their current contribution and future requirements in respect of LMIA,

• Confirm membership, describe and formally establish a mechanism to empower a national LMPB.

• Convene a further ad-hoc committee meeting to confirm and agree on the terms of reference, the operational and staff support aspects and confirm the budgetary requirements,

• Form a permanent secretariat within the DME of the MOLSAMD to maintain records, follow up on decisions of the LMPB, schedule meetings and distribute LMI reports,

• Develop a description of the role and scope of activities of the Department of Manpower and Employment,

• Seek the guidance of the LMPB as to who is best placed to collect new data needed by the MOLSAMD,

• Convene a national seminar to explain the role, scope and administrative structure of the LMPB to the public and private sector and other, social partners and the international donor, development banks and UN community,

• Conduct meetings of the LMPB and agree on the protocols to be followed in respect of requests for information on surveys, data recording, analysis, reporting of LMIA, access to data and analysis sources etc.,

• Publish regular reports explaining the business undertaken by the LMPB on a regular basis and a directory of LM information containing all relevant contact details of major sources.


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A 2. Determine the role, and its future scope and responsibilities of MOLSAMD’s DME/LMIA Unit within the existing national employme nt and training system.

• Review the organization structure of the DME and recommend any changes considered

necessary. • Review the existing DME staffing levels and establish the capacity of the staff to

implement the services described. • Identify and specify staffing and cost operational resources needed to accomplish the

above, • Recruit additional professional staff as required. • Clarify and confirm the LMIA Unit’s role and scope in relation to the generation

and specificity of LM data, LM information and LM analysis, • Determine the degree, content scope, access and availability of LMI provided to the

national and international user audience, • Build the LMIA Unit's survey and analysis capacity to cover LMI gaps, • Review other sources of LM data, LM information, LM data, LM analysis and identify

data gaps that are within the MOLSAMD's mandate, • Identify and describe procedures to be followed in the guidelines to ensure that survey

data can, if required can also assist other users. • Identify and describe how the LMIA Unit will utilize the various internally generated

and other sources of data in support of a national LMIS. • Determine the level of LM analysis required of the LMIA Unit the MOLSAMD. • Provide training and general staff development activities for members of the LMIA

Unit through in-service training, attendance at national and regional symposia and through postgraduate study,

• Assess the potential to privatize the collection of data. B Strengthen the capacity of the DME of MOLSAMD by providing a different

staffing profile, long-term staff development and improved procedures.

Success Indicators • The staff of the national and provincial Department of Labour (DOL) offices adapt and

deliver a full range of services based on the increased scope of work • The networking of the national DOL office system increases the amount and improves

the quality of LMI dissemination. • DOL staff continues to implement the guidelines prepared by the LMIA Unit to assist

with the implementation of a LM survey methodology that includes data and information gathering with analysis of provided by the R&D cell. 49

• Improved collaboration and linkages with key stakeholders acknowledged as an essential component in maximizing the utilization of data on supply and demand of labour.

B 1. Clarify and determined at national level, the vision of the Employment

Service Centres (ESCs), set realistic aims and goals, and scope of work.

• Appoint an internal task force, chaired by the Minister of MOLSAMD. to clarify it’s vision of the ESCs, in respect of the range of services and activities to be provided,

• Prepare an ESC organization structure at the central and field office level showing the different levels of service available to the public,

49 See section C below for details of the R&D cell.


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• Prepare ESC job descriptions for each of the various positions in the organization structure,

• Review the existing ESC staffing levels and establish the capacity of the staff to implement the services described,

• Recruit additional staff and deploy throughout the ESC network as required, • Promote the new level and types of services of the ESC through the media, at various

forums, workshops and symposia, • Participate in data collection and information activities and provide qualitative analysis

of the local employment and training situation. • Provide and assist private employment services (PESs) with tools and instruments to

provide improved services. • Appoint and train E&T staff to assist and PESs to deliver better services. • Monitor the activities of PESs in the collection of data on customers using the same

instruments as the public employment services. • Assess the potential to privatize the ESC’s functions for specialised target groups.

B 2. Clarify the E&T mandate and determine a set of realistic levels of responsibility

for employment and training issues. 50

• Develop plans of action at the central and DOL field office level to implement the E&T services.

• Provide training and development activities to enable E&T staff to provide the agreed level and range of services,

• Detail the office and lCT equipment necessary for the central and field E&T DOL offices,

• Identify, specify, tender and install all equipment required to network the E&T throughout the country.

B 3 Linkages established with key employment and training stakeholders, focal points

appointed and reporting procedures agreed.

• Identify key stakeholders at national and provincial level requiring LMI. • Form a working group to explore and agree on methods to disseminate LMI from the

MOLSA and other sources. • Determine the type of LMI interface expected by each stakeholder to ensure

sustainable interaction with the E&T service network. • Develop procedures to maintain the contacts by providing, or linking the stakeholder to

sources of LM1. • Maintain regular contact with employers' and workers' organization members. • Establish formal contacts and promote informal linkages with all public and private

training providers at the provincial, district and local level. C Establish and staff a professional level Research and Development (R&D) cell. Success Indicators

• The staff of the newly structured DME is motivated to provide a professional service to the MOLSA and other potential users of the national LM1.

• The level and quality of the data being collected improves the decision-making capacity at all levels of authority within the MOLSAMD and of other public and private users.

50 The complete range of services, including the linkages with the proposed LMIA network would

be provided.


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• The improved network of lCT equipment is fully utilized to provide continuous updated LMI.

• The increased contribution in the form of data, analysis and reports as a contribution to the national LMIS, improves the overall acceptance and confidence in the MOLSAMD's capacity to meet the requirements of the Labour Law.

C1 Establish and staff an R&D cell

• Establish terms of reference for an R&D cell in collaboration with the initial ad-hoc committee of the LMPB.

• Promote the new level and types of services of the R&D cell through the LMPB and the media.

• Refine and confirm individual job descriptions of each post. • Detail the equipment and staffing requirements of the central and field in terms of

Information & Communication Technology (ICT). • Determine the most appropriate means of electronically networking the Employment

Service Centre s (ESCs). • Publicly promote the capacity of the R&D cell to provide quality assistance to the field

offices and other LMI users • Provide training and guidance to the R&D cell staff on the criteria needed to conduct

quality economic, demographic and statistical analysis of data collected by a wide range of data sources.

• Contract the Central Statistics Office to seek guidance on the most appropriate type of training on survey techniques, software compatibility and transfer protocols.

• Conduct pilot surveys using R&D cell staff to trial the instruments, validate and implement a specific survey.

• Undertake LMIA of the labour market as directed by the LMPB. • Provide training of trainers course for R&D cell staff to enable them to train E&T

office staff and others in the application of the procedures, the use survey instruments and the compilation of analy1ical reports,

• Provide training for the R&D cell staff in analysis of the employment and training system at the local level suitable for submission as a report to the central DME office and CSO.

• Provide in-service, off-site and regional/international development opportunities to R&D cell staff on a regular basis.

C2 Establish an ICT cell with staff and equipment to provide national network of

services

• Estimate the cost of increased staffing based on CSC wage levels and market forces prices.

• Determine the level of remuneration required to attract suitable staff. • Develop notices of vacancy, advertise, interview and consider options for recruiting. • Develop job descriptions, appoint staff, provide induction and allocate to post location. • Assess all personnel involved in the project activities for their level of computer

literacy. • Provide specific training to match the job requirements where this matches the

requirements of the job.


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C 3 Establish mutually agreed purposes, scope and expected utilization of any future national LMIA undertaking.

• Draft R&D cell guidelines on the procedures to be followed by LMIA Unit staff

wishing to conduct extra-ordinary specific surveys. • Assist the end-user to articulate the scope and purpose of the LMI data to be collected

in accordance with the guidelines. • Provide R&D cell service to determine the availability of existing data as a means of

deciding if new data and information is required, • Incorporate LMI survey criteria into suitable existing or new instruments in

collaboration with key stakeholders. 51 • Train LMIA Unit staff to undertake/supervise sector specific surveys as required,

C 4 Determine procedures by key stakeholders to commission specifically targeted

LMI survey(s).

• Identify target group, economic sector, geographic location or other group to be surveyed,

• Train all levels of survey personnel in the use of instruments and procedures to be used.

• Conduct pilot exercise using appropriately selected sample-sizes to validate procedures and instruments,

• Refine and conduct survey, compile data, crosscheck for validity and publish results, • Submit report on the total exercise to the secretariat of the LMPB. • Undertake quantitative and qualitative analysis of data at a level required that meets

specific MOLSA planning and policy development requirements. • Forward/publish/disseminate data and analysis of LMI by MOLSAMD through open

access to users as required.

51 This must be articulated by DME having been prepared by the R&D cell of the LMIA Unit

within MOLSAMD. The LMPB would be responsible for deciding on a common format to be used for such LM surveys and related data bases with CSO, ISAF, and other operational ministries. Private research institutions would be encouraged to present their data using the agreed format.


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10 Bibliography & Related documents reviewed

o Afghanistan Independent Human Rights Commission, (2006). Summary report, Kabul. o Afghanistan, Islamic Republic of, (2005) Afghanistan National Development Strategy,

(ANDS). An Interim Strategy for Security, Governance, Economic Growth & Poverty Reduction, volume I Kabul. Supporting Strategy documents describing how each will contribute to ANDS from selected government bodies include:

o Afghan Independent Civil Service Commission o Central Statistic Office o Ministry of Agriculture & Irrigation o Ministry of Communication & Information Technology o Ministry of Education o Ministry of Energy & Water (Water Sector) o Ministry of Higher Education o Ministry of Labour & Social Affairs o Ministry of Refugees & Repatriation o Ministry of Rural Rehabilitation & Development o Ministry of Transport & Civil Aviation o Ministry of Urban Development o Ministry of Women Affairs o Nation Environmental Protection Agency o National Skills Development Programme

o Agency Coordinating Body for Afghan Relief, (ACBAR) (2007)… Directory of Contacts, Kabul.

o Afghanistan International Chamber of Commerce, (2006a). Bid Procedure Training Manual, in collaboration with CIPE & PDT, Kabul.

o Afghanistan International Chamber of Commerce, (2006a). Bid Procedure Training Manual, in collaboration with CIPE & PDT, Kabul, (2006b). National Business Agenda, Kabul.

o Altai Consulting, (2004) USAID Strategy: Private Sector Need Assessment, Kabul. o Altai Consulting, (October 2006). Integration of Returnees in the Afghan Labor

Market, an empirical study for UNHCR and ILO, supported by the European Commission, Kabul.

o Asian Development Bank, (2006). Islamic Republic of Afghanistan: Support to the Afghanistan National Development Strategy. Technical Assistance Report, Manila.

o Association of Experts in the fields of Migration & Development Cooperation (AGEF), (2004), Brochure-Registration of Former Combatants, Kabul.

o Association of Experts in the fields of Migration & Development Cooperation (AGEF), (2004), Brochure-Labour market Services _ Building Institutions, Kabul.

o Association of Experts in the fields of Migration & Development Cooperation (AGEF), (2004), Brochure – Return to employment in Afghanistan, Kabul.

o Beall, J., & Schutte, S., (June 2006), Urban Livelihoods in Afghanistan, Afghanistan Research and Evaluation Unit, Funded by European Commission (EC). Kabul Afghanistan.

o Schutte, S., (Jan 2006). Poor, Poorer, Poorest, Urban Livelihoods and Vulnerability in Mazar-e- Sharif

o Schutte, S., (Mar 2006). Dwindling Industry, Growing Poverty: Urban Livelihoods in Pul-e-Khumri

o Schutte, S., (May 2006). Searching for Security: Urban Livelihoods in Kabul, o Schutte, S., (May 2006). Poverty and Prosperity: Urban Livelihoods in Herat.


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o Schutte, S., ( May 2006). Gaining some Ground: Urban Livelihoods in Jalalabad. o Federal Bureau of Statistics, Pakistan, (2004). Labour Force Survey 2003-2004

Twenty-fourth Issues, Islamabad. o Gray, L., Warrender, A.M., Davies, P., Hurley, G, (1996). Labour Market Signals &

Indicators, Overseas Development Administration, Serial 15, Education Research, London.

o International Labour Organization, (1973). Resolution Concerning household income and expenditure surveys, adopted by the twelfth International Labour Conference of Statisticians.

o International Labour Organization, (1982) Resolution concerning statistics of the economically active population, employment, unemployment and underemployment, adopted by the thirteenth International Labour Conference of Statisticians

o International Labour Organization, (1987), Resolution concerning the revision of the International Standard Classification of Occupations, adopted by the Fourteenth International Labour Conference of Statisticians.

o International Labour Organization, (1993) resolution concerning the revision of the International Classification of Status in Employment, adopted by the Fifteenth International Labour Conference of Statisticians

o , (1993) Employment and Manpower Planning, Handbook for Manpower Planners in Africa, SATEP, International Training Centre of ILO, Turin.

o International Labour Organization, (1993) Resolution Concerning statistics of employment in the informal sector, adopted by the fifteenth International Labour Conference of Statisticians,

o International Labour Organization, (1998). Resolution concerning the measurement of employment-related income, adopted by the sixteenth International Labour Conference of Statisticians,

o International Rescue Committee (IRC), (2003). Afghanistan Labour Market Information Survey: In association with the Ministry of Labour & Social Affairs, Kabul.

o International Security Assistance Force, (2007). Provincial Reconstruction Team (PRT) Handbook, Edition 3, Kabul.

o National Skills Development & Market Linkages Programme (NSDP) (2007). Contract for 1385 Skills Development Programme.

o Afghan Carpet Exporter’s Guild (ACEG) o Association of Experts in the Fields of Migration & Development

Coordination, (AGEF). o International Rescue Committee (IRC) o Ministry of Education (MoE) o Ministry of Labour & Social Affairs, Martyrs and Disabled (MoLSAMD) o Sanayee Development Organization (SDO) o Solidarite Afghanistan Belgique (SAB)

o (NSS) National Surveillance System, 2007. The National Risk & Vulnerability Assessment, 2005, Afghanistan, Ministry of Rural Rehabilitation and Development and the Central Statistic Office, Kabul.

o Relief International, (2004). Integrated assistance to young women: Returnees and IDP in Kabul and Nangarhar provinces of Afghanistan: Final project report, Agreement No: SPRMCO03CA076, submitted to the Bureau of population, Refugees and Migration, Kabul.

o Relief International, (I-2006). Creating and restoring alternative livelihoods (CRALS), Phase II: Mobilizing communities in Transitional Activities lessening the production of poppy cultivation, final project report, submitted to the Bureau of population, Refugees and Migration Kabul.

o Relief International, (12-2006). Integrated assistance to young women: Returnees and IDP in Kabul and Nangarhar provinces of Afghanistan: Final project report,


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Agreement No: SPRMCO05CA086, submitted to the Bureau of Population, Refugees and Migration, Kabul.

o United Nation Development Programme (UNDP) (2004). Afghanistan: National Human Development Report. Security with a human face: Challenges and Responsibilities, Kabul.

o United States Agency for International Development, (USAID), (May 2007). Labour Markets, Livelihood Strategies Food Securities in Afghanistan, a special report by the Famine Early Warning Systems Network (FEWS NET), Kabul.

o United States Agency for International Development, (USAID), (May 2007). Afghanistan Small and Medium Enterprises Development (ASMED), Phase I Market Information, prepared by ALTAI consulting, Kabul.

OO


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MoLSAMD

DEPARTMENT OF MANPOWER & EMPLOYMEN

T

LABOUR MARKET & INFORMATION ANALYSIS

UNIT

LMIA Unit Manager

NATIONAL SKILLS DEVELOPMENT PROGRAMME ( 1 )

Note 1 : The NSDP will become an autonomous

body in the future

National Observatory

LABOUR MARKET POLICY BOARD

CENTRAL STATISTICS

OFFICE

LMPB Secretariat

COMMUNITY LEADERS

ETC

UNIONS WORKERS

ORGANIZATIONS

EMPLOYERS CHAMBERS

ETC

NON GOVERNMENT

ORGS

GOVERNMENT MINISTRIE

S By

Region

DOL EMPLOYMENT SERVICE

S

AIMS

By District

By Province

ICT Coordinator

LMIA Unit Deputy Administratio

n

Research & Development

Officer UN /

Donor Cel

l Liaison Officer

Nat /

Internatational NGOs cell Liaison

Officer

Government Ministries cell Liaison

Officer

Data base manager Statistical

analyst

By Region

By Institution type

By Sector

By Location

By Province

Administration

Staffing

Property

Personnel

Finance

Security

FIGURE 2: Suggested LMIA

Unit Structure


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ANNEXES Annex A: Selected modern (formal) sector enterprise listings Annex B: Demand data from NSDP Implementing Partners Annex C: International Standard Classification of Occupations listing


Human Resource Supply Labour Market Demand (Afghanistan - 2007)

Documents

labour market demand

labour market informationlmi

labour market surveys

labour market policy

labour market policy

nsdp demand information

sources of demand information

staff development