Mission report of spain in english

Support to Employment Policy for promoting job
creation in Mongolia – SECiM
EuropeAid/137157/DH/SER/MN
Service Contract № ACA/2016/374-620
This project is funded by
The European Union
A project implemented by a Consortium
led by Hulla & Co. Human Dynamics KG
1
This project is funded by A project implemented by a Consortium led
The European Union by Hulla & Co. Human Dynamics KG
Support to Employment Policy for promoting job creation in Mongolia SECiM
Contract No. ACA/2016/374 -620
Mission report on Study visit to the
Kingdom of Spain
19- 23rd –March 2018

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Contents
1. Executive Summary................................................................................................................ 5
2. Mission Terms of Reference.................................................................................................... 5
3. Itinerary and Persons Met....................................................................................................... 6
4. Observations ......................................................................................................................... 9
4.1. Observation 1................................................................................................................. 9
4.2. Observation 2................................................................................................................. 9
4.3. Observation 3............................................................................................................... 11
4.4. Observation 4............................................................................................................... 12
4.5. Observation 5............................................................................................................... 13
4.6. Observation 6............................................................................................................... 14
5. Recommendations............................................................................................................... 15
5.1. Recommendation 1 ...................................................................................................... 15
5.2. Recommendation 2 ...................................................................................................... 15
5.3. Recommendation 3 ...................................................................................................... 16
6. Conclusion........................................................................................................................... 17
7. Annexes .............................................................................................................................. 18
7.1. 2017-2020 Spanish Strategy for Employment Activation.................................................. 18
7.2. Decree on Annual Employment Policy Plan 2017............................................................. 18
7.3. Employment Act of Spain .............................................................................................. 18
7.4. Decentralized Employment Service Spain ....................................................................... 18
7.5. Regional Labour Market Observatory............................................................................. 18
7.6. Agreement with unemployed (Translation from Spain).................................................... 18

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Abbreviations
AEPP Annual Employment Policy Plans
ALMP Active Labour Market Policy
ALMMs Active Labour Market Measures
AWP Annual Work Plan
EC European Commission
EMCO The Employment Committee
EPF Employment Promotion Fund
EPP Employment Promotion Programs
ESC Employment Service Centre
EU European Union
EUD EU Delegation
GOLSWS General office for Labour and Social Welfare Services
GoM Government of Mongolia
IT Information Technology
LMIS Labour market information systems
MoLSP Ministry of Labour and Social Protection
NES National Employment System
NESC National Economic and Social Council
NACGS National Association of Career Guidance Counselors
NCLSC Tripartite National Committee on Labour and Social Consent
NCVET National Council for Vocational Education and Training

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NEP National Employment Policy
NESRTIC National Employment Service Research Training and Information Centre
NLRC National Learning and Resource Centre
NSO National Statistical Office
PCM Project Cycle Management
PESAR Public Employment Service of Autonomous regions
Project EU financed Project “Support to employment creation in Mongolia (SECiM)
Programme in Mongolia” Component 1 “Support to Employment Policy for
Promoting Job Creation in Mongolia” (SECiM) EuropeAid/137157/DH/SER/MN
PSC Project Steering Committee
SECiM EU financed Programme in Mongolia “Support to employment creation in Mongolia
(SECiM)” which include two components:
 SECiM Component 1: Support to Employment Policy for promoting job
creation.
 SECiM Component 2: Piloting quality private sector work in selected livestock
and vegetable value chains.
SEPE The State Public Employment Service
SISPE The Public Employment service information system
TAT Technical Assistance Team
TL Team Leader

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1. Executive Summary
This report summarizes the experience and knowledge obtained from the study visit which
took place in Kingdom of Spain with participants from the Ministry of Labour and social
protection and its subordinated institutions under the technical support of European Union
funded “Support to employment creation in Mongolia” (SECIM) project. Group of 6 people
participated in the 5 days study visit in Madrid, The Kingdom of Spain and the visit focused on
the employment issues including policy development, implementation, decentralization,
social partnership in policy making, social partnership within in universities and short term
vocational education training. The participants visited high and implementation level
institutions which deals with employment, active and passive labour market policies and
learned about the overall structure of the National Employment System (NES), function of
each labour market institutions as well as the Active Labour Market Measures implemented
by the autonomous regions (local level).
All the experiences obtained during the trips is summarized the in the observation part and
ideas, suggestion for Mongolia is described in the recommendation part of this mission
report.
2. Mission Terms of Reference
Terms of Reference (ToR) for the Senior non-key expert (SNKE) who was assigned to organize
and conduct the study visit to Spain was elaborated by Technical Assistance team (TAT) of
SECIM and approved by the European Union Delegation (EUD) to China and Mongolia. Within
this ToR, main direction of the task, sequence, man-days, logistic issues of visit and
cooperation with participants and Techinical Assistant Team (TAT) were specified in detail.
For the participants of study visit, it was foreseen in Activity 1.6.4 of the Annul Work Plan
2018 of SECIM project to actively participate and prepare a comprehensive mission report
which included ideas and recommendations to reflect the knowledge and experience gained
during study visit as well as to organize experience sharing workshop among key stakeholders.
Detailed information of the study visit described as below and most meetings were extended
than the scheduled duration.

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3. Itinerary and Persons Met
Day 1: 19th of March 2018
Time Topic
10:00 -14.00 The participants visited the Madrid region Public employment service. During the meeting
participants met:
-Active employment expert Ms. Ana Belen Garcia,
-Head of Research and Planning Division Mr. Encarna Abenojar Rodriguez
-Head of employment offices and complaints Mr. Luis Miguel Gonzalez Duran
-Director General for training Ms. Anabel Martin Fernandez
-Deputy director of Planning, monitoringand evaluation departmentMr. Tereza Fernandez
Huete
-Head of economy, social responsibilities of companies Mr. Roberto Moreno Mico
Technical advisor Mr.Miguel Angel Jimenez Perez
During the meeting participants received information on main tasks and duties of Madrid
region employment service, coordination between the National Employment service,
Municipalities and Madrid autonomous region. Also, received information on Active and
Passive labour market measures (LMMs) which implemented at the regional level and its
follow up and monitoring. Participants asked some additional questions related to the
provided information and received answers.
15:00-17.00
Study visitparticipants had discussion with SNKEof SECiM project Mr. Alberto Cerda Mica and
his colleague Mr. Javiar Sanchez on Employment Policy Decentralization Approach to have
better understanding about the whole system and received brief information. It includes:
How Employment Policy decentralized from the National level to the Autonomous regions
(17), tolocal level, to social partners. Also, discussed abouthow key stakeholders are involved
in the “National employment strategy” development procedure. Furthermore, the group
received information on how to evaluate the outcome of any employment promotion
measures, ALMMs, also the main mandate of “Employment Observatory center”.
Day 2: 20th of March 2018
Time Topic
10:00 – 12:00
The group visited the State (National) Employmentservice andmet:

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Head of InternationalRelations Ms. Helena Arriola, InternationalTechnicalAssistantexpert
Ms. CruzHergidaz andreceivedinformationon NationalEmploymentStructure, Management
of EmploymentPolicy, how to decentralize employmentpolicy and ALMMs to autonomous
regions, and participantsaskedsome additionalquestionsandclarifications onthe topic.
14:00-17:00 It was scheduled to have meeting with Mr. Luisa Mª Fernandez Ortega the Deputy General
Director for Agriculture Policy and Rural development, Madrid region in the afternoon of the
2nd
day, but the meeting was canceled due to some internal issues of this organization.
However, SNKE of SECiM Mr. Alberto prepared information on new trend of labour market in
agriculture sector and mapping and provided to the participants at the hotel meeting room.
The information addressed issue on demanded occupations in agriculture sector and bet
practice on application of IT technology in agriculture industry.
Day 3: 21st of March 2018
Time Topic
10:00 – 13:00 On the 3rd
day of the visit, the group visited Employment agency at local level/ Reference
Model VET Centre. The center consisted of 2 parts: Vocational education center and Local
employmentAgency. Thegroup first visited the vocationaleducation center and saw how short
term vocational education is delivered. Later visited the Employment Agency and structure,
management of employment service, types of employment services, methods or approaches
to provide ALMMs to special target groups, as well as the system to follow up which tackle the
results of implemented ALMMs.
14:00-17:00 In the afternoon, the group visited the National Foundation for Vocational Training for Job
Creation andmet the Head of InternationalRelations Mr. Ricardo Guisado. During the meeting
the participants received information on Structure and function of the institution to anticipate
labourmarket trends and adapt training methodologies for better job creation. Employers and
Workers representative’s role in implementing active employment measures for better
qualifications and job creation (Participatory Committees).
Day 4: 22nd of March 2018
Time Topic
09:00 – 12:00 The visit took place at the National Economic and Social Council (NESC) and met Head of
International Relations Ms. Margarita Bravo and other experts. Participants received
information on main function and structure of the NESC, mandate of each department and
division. More importantly, received detailed information on the involvement of the NESC and

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tripartite in ant new employment policy and regulations. Furthermore, the meeting continued
actively by participants asking some additional specific questions related to the received
information and exchanged some experience of Mongolia.
16.00-18.00 In the afternoon, the participants visited Complutense University of Madrid and met Head of
employability division Ms. Lucila Finkel and Social Council Secretary Ms. Laura de Esteban
During the meeting participants received detailed information on classes, courses that one of
the biggest University in Europe provide and very interesting information on service and
initiatives aimed at promoting employment of students. Furthermore, Ms. Laura de Esteban
introduced the involvement of the University Social council in employability of graduates, also
welcomed Mongolia to be a user of online software which the University uses for student
employment promotion service.
Day 5: 23rd of March 2018
Time Topic
09:00 – 12:00 On the last day of the study visit, the participants visited Employment Agency Madrid
Municipality and Vocational Training Services at Usera district of Madrid.
During the meeting the participants received information on structure of employment policy
implementation department and division, coordination with other organizations, human
resource capacity, and the main principles to implement ALMMs. Also, received detailed
information on special target groups including people with disability, youth and long-term
unemployed as well as visited the training rooms which delivering vocational training for
special groups.
16.00-18.00 SNKEof SECIM Mr. Alberto Cerda Mico summarized the study visit and explained key points of
the visits in order to verify the knowledge and experience gained during the study visit.
Participants asked some questions to clarify some information and held discussion about the
content of the study visit.

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4. Observations
4.1. Observation 1
Decentralization. Themain focus of study visit to the Kingdom of Spain was on exploring decentralized
approach of employment issue. Among the other EU member states, The Kingdom of Spain is
considered as the best practice that implemented decentralization of employment policy successfully.
The decentralized approach started to take place from 1991 in one of the autonomous communities
called Catalonia by transferring responsibility over professional occupational training to the regional
level. The legal basis for the “decentralisation” and shift of ALMMs can be found in the Constitution
and the Autonomy Statutes of the autonomous communities as well as in the Employment Law of
2003, where employment policy is included in the framework of economic policy. Later on the
creation of the Public Employment Service (PES) as bodies responsible for the management and/or
execution of the ALMMs at the autonomous regional level has been conducted on an uncoordinated
time scale, different schedules according to the policies of each autonomous community.
In summary, the process of transferring powers began in 1991 and was completed in 2010. Certain
autonomous communities enjoyed all transferred prerogatives in 1997, while others only recently
acquired them. As the process has followed different schedules, the experience and the knowhow of
each autonomous community aredifferent, and therefore the implementation of ideas in the National
Employment System is becoming a fundamental aspect.
4.2. Observation 2
Employment policies and legislation.
Employment Policies. The employment policies are developed in line with the economic policy
guidelines, within the framework of the EU's coordinated employment strategy. Employment policy is
set of Services and Programs of Guidance, Employment and Vocational Training for employment
aimed at improving the possibilities of access to employment, on their own or by others, of
unemployed people, at maintaining of employment, a professional promotion of employed persons
andpromotion of the entrepreneurial spirit and the social economy. The employment policy which is a
set of decisions taken by the State and the autonomous communities for the purposes of developing
programmes and measures aimed at achieving full employment, as well as quality of employment,
quantitative and qualitative matching of employment supply and demand, and reduction of and due
protection against unemployment. The coordination of employment policy corresponds to the
Government, through the Ministry of Employment and Social Security, within the framework of the
agreements adopted by means of the Sector Conference on Employment and Labour Matters.
The Government is also responsible, by proposal of the Ministry of Employment and Social Security
andsubject to this ministry’s reportto the Sector Conference on Employment and Labour Matters, for
the approval of draft legislation and the drawing up and adoption of regulatory provisions in relation
to labour market intermediation and placement, promotion of employment, unemployment
protection and vocational training aimed at employment, as well as the implementation of these

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regulations, all without prejudice to the competences corresponding to the Ministry of the Interior in
matters.
In accordance with the Spanish Constitution and its Statutes of Autonomy, the autonomous
communities are responsible for the regional development of employment policy, promotion of
employment and implementation of employment law and of the programmes and measures which
have been assigned to them.
Employment Act of Spain (Last amended in 2015). This Act is the main legislative documents which
regulates all relations of employment issues including National Employment System, Spanish
Activation Strategy for Employment, The State Public Employment Service, Autonomous regions and
Active and Passive labour market policies. The Employment Act of Spain specifies broader description,
purpose and function of Employment policy, The National Employment System, The State Public
Employment Service, The PublicEmployment Service of the Autonomous Communities, Financing, The
NationalEmploymentSystemservice provided by Public employment service, Access to Service for the
Unemployed, Employment Policy Instrument, Active Labour Market Policies, Coordination between
Active Policies and Economic Protection against Unemployed.
 The National Employment System.
The National Employment System is a mean to set of structures, measures and actions necessary to
promote and develop employment policy. The National Employment System comprises the State
Public Employment Service and the Regional public employment services.
 Spanish Activation Strategy for Employment.
One of the three coordination mechanisms of the National Employment System is the Spanish
Strategy for Employment Activation, which is allied to the Annual Labour Policy Plans and the Public
Employment Service Information System. The Strategy is developed in collaboration with the
autonomous communities andwith the involvementof the mostimportant business organisations and
trade unions. The Sector Conference on Employment and Labour Matters will be informed, and the
General Council of the National Employment System will be consulted and issue a report.
The Employment Committee(EMCO) has produced the European Employmentstrategy asan umbrella
employment document for the member states. The Strategy establishes, on the basis of shared
diagnostics, the conceptual and organisational framework that will be used as a reference for all the
actuations under the aegis of the National Employment System regarding policies for activation and
vocational training for employment, the principles, common goals (both structural and strategic), the
instruments to be used, the strategic planning of the actuations to be developed and the financial
resources that will be available to meet the above goals and actuations.
It will therefore work as the backbone for the individual strategies of each of the public employment
services as regards intermediation between employment supply and demand and the design and
management of active employment policies.
One of the most notable differences of current Strategy is the detailed definition of the preparation,
execution and evaluation cycle of each Annual Labour Policy Plan.
The processes to develop the Annual Labour Policy Plans include those that refer to the evaluation of
compliance with objectives. These will be used to approve the objective criteria for the distribution of

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funding, in accordance with the indications in article 86 of National Budget Law 47/2003, of 26
November.
The Strategy sets out two levels of follow-up and evaluation for the results-based evaluation. The first
level comprises four different yearly or biannual evaluations: a biannual external objective compliance
evaluation, an annual performance self-evaluation, an external biannual performance evaluation in
conjunction with the European Network of Public Employment Services and an annual evaluation of
the quality, impact, effectiveness and efficiency of the whole of the employment vocational training
system. The second level comprises the evaluations to be performed in each of the specific services
and programmes. The results of all the evaluations shall be made public, in accordance with the
principle of transparency and as a key factor to modernise and improve the National Employment
System.
The Government approved the 2017-2020 Employment Activation Strategy in the performance of its
duties as set out in article 3.1 of the consolidated text of the Employment Law. This approval is
completed as per this Royal Decree, which has been submitted to the Sector Conference on
Employment and Labour Matters, the General Council of the National Employment System as well as
the most important business organisations and trade unions.
Annual labour policy plan 2017 (AEPP).
In accordance with Article 11 of the consolidated text of the Employment Act, the 2017 Annual Labour
Policy Plan establishes the objectives for the year for the whole of Spain and for each autonomous
community, as well as the indicators for use in evaluating the degree to which these have been
achieved. The Annual Labour Policy Plan is thus designed as an instrument for evaluating the active
labour market policy services and programmes implemented by both the State Public Employment
Service and the autonomous communities.
In addition, inorder to achieve these objectives, the 2017 LabourPolicy Planincludes the active labour
market policy and labour market intermediation services and programmes to be implemented by the
autonomous communities in the exercise of their powers to implement active policies and by the
State Public Employment Service in the implementation of the credit reserve set out in its expenditure
budget.
4.3. Observation 3
Institutional organization of labour market.
The State Public Employment Service -SEPE(National)
The State Public Employment Service is an autonomous body of the Central Government entrusted
with the management, development and monitoring of employment policy programmes and
measures, within the framework of the provisions of Employment Act of Spain. Integrated into the
Ministry of Employment and Social Security with Headquarters in Madrid, representation is in each of
the provinces all over Spain. very often share office with office with the Autonomous regions
Employment service. As an autonomous body, it has separate legal personality, independent of the

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Central Government and full capacity to act in the performance of its functions, with its own property
and treasury, as well as autonomy of management.
Detailed description of the competencies of the The State Public Employment Service can be found
the Employment Act of Spain, Article 18 (Annex 7.3).
www.sepe.es
The Public employment services of the Autonomous communities PESAR (Regional)
The Public EmploymentServices of the autonomous communities exercise the functions necessary for
the management of labor intermediation and active employment policies and will design and establish
the action measures of the collaborating entities.
Autonomous communities participate together with the State Public Employment Service in the
preparation of the Spanish Strategy for Activation for Employment and the AEPP Autonomous
communities are able to elaborate their own Plans, according to the objectives of the AEPP and in line
with the Spanish Strategy for Employment Activiation. The active policies developed in the
Autonomous Communities and whose financing does not correspond to the SEPE, or, where
appropriate, those complementary to those of the SEPE, are financed with items from the
autonomous community's budgets as well as with the participation in the funds coming from the EU.
One of the primary functions of the Public employment service of autonomous community is the
registration of job seekers. Registration in an employment office is mandatory for individuals
requestingunemployment benefits. To the extent to which this requires an active commitment by the
benefits recipient, registration is a necessary requirement; however, registration does not guarantee
thatpaymentswill be received. Jobseekersmustcomply with the “commitmentto activity”, i.e., active
job seeking.
Although the intermediation activity is decentralized, the unemployed need to be guaranteed the
possibility of moving to other locations and accessing SEPE vacancies in other communities and
employment offices.
4.4. Observation 4
Active labour market measures
Regarding the coordination of unemployment benefits and employment management, after
decentralization, collaborationagreements have been drawnup between each PESARand the SEPE. In
practice, to the extent that citizens go to the same employment office to manage their registration as
a job seeker to collect their unemployment benefit, this process has not affected citizens, and, in
truth, they are notaware of the redistributionof responsibilitiesbetween administrations. The novelty
is that in a single employment office, there is staff of the Central Administration (managing the
benefits) and staff hired by the Autonomous Administration (managing the ALMP). The ALMPs are
within the competence of the autonomous communities. The resources for their financing come from
the General State Budget provided for in the SEPE budget. However, each autonomous community
can also dedicate its own resources to each measure.

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Set of services and programs developed by public employment services:
Orientation
The actions of information, professional orientation, motivation, assessment, diagnosis and
determination of the professional profile and competences, design and management of the individual
learning trajectory, job search, labor intermediation and, in summary, the actions of support to the
insertion of the beneficiaries.
Training
Professional training actions for employment in the workplace, aimed at learning, training, retraining
or retraining and training in alternating with work activity, including public employment and training
programs, allowing the beneficiary to acquire skills or improve their professional experience, to
improve their qualification and facilitate their labor insertion.
Employment opportunities
the actions that aim to encourage hiring, job creation or maintenance of jobs, especially for those
groupsthat have greater difficulty in access or permanencein employment, with special consideration
to the situation of people with disabilities, of people in a situation of social exclusion, of people with
family responsibilities, of victims of terrorism and of women victims of gender violence.
Equal opportunities in access to employment
It includes actions aimed at promoting equality between women and men in access, permanence and
promotion in employment, as well as the reconciliation of personal, family and work life. It also
includes those aimed at facilitating geographical mobility or promoting recruitment in sectors of
activity different from those in which one would have worked habitually.
Entrepreneurship
Activities aimed at encouragingentrepreneurship, self-employmentandthe social economy, as well as
those aimed at generating employment, business activity and stimulating and promoting local
economic development.
4.5. Observation 5
The Public Employment service information system (SISPE)
The Public EmploymentService Information Systemis the shared common information system andthe
technical instrument bringing together labour intermediation, ALMP, and Unemployment benefit
management. This tool was implemented in 2005 as a consequence of transferring the ALMP, which
resulted in a single State Administration and Autonomous Administrations information portal. Its
objective was guaranteeing basic, uniform, and coordinated management in all Administration
centers. Therefore, it became the basis for more links between passive policies (Central
Administration) and active policies (autonomous communities).
This systemwill ensure the properfunctioning of the following: labour marketintermediation, without
territorial barriers; registration of jobseekers and the traceability of the actions they pursue in relation
to public employment services; common statistics; communication of the content of contracts;
understanding of the resulting information; and monitoring of areas including the management of

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vocational training for employment, vocational guidance, employment initiatives and recruitment
incentives, as well as employment agency activities.
The system will enable the evaluation, monitoring and control of the usage of funds from the General
State Budget and the European Union for purposes of justification. Furthermore, the software is
functioning smoothly without any technical difficulties and very understandable and accessible to all
level employment specialists. https://portal.sisp.es.gov.br/xhtml/pesquisa.jsf
4.6. Observation 6
Involvement of social partnership in employment policy making
The Employment Law of 2003 recognizes work on collaboration, coordination, and cooperation as a
fundamental aspect of the adequate development of employment policy. Therefore, two bodies are
recognized within the National Employment System: the Sectorial Conference of Labour Affairs and
the General Council of the National Employment System (NES). The Sectorial Conference of Labour
Affairs is the general collaboration, coordination, and cooperation instrument between the State
Administration and the administrations of the autonomous communities and the cities of Ceuta and
Melilla in terms of employment policy, especially in the development of Execution Plans of the
European Employment Strategy. The General Council of the NES is the consultative body for
institutional participation of the public Administrations and of social stakeholders in employment
policy. It comprises representatives of the State Central Administration, of the autonomous
communities, of the Cities of Ceuta and Melilla, of the most representative employer’s organizations,
and of labour unions.
It should be also stressed that the role of the Sectorial Conference of Labour Affairs, which has
become a highly relevant body for defining policies, as it is the place where the SEPE and Autonomous
PES meet and discuss policy.
http://prensa.empleo.gob.es/WebPrensa/noticias/laboral/detalle/2065.

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5. Recommendations
5.1. Recommendation 1
Legislation
Provision in the Employment Promotion Law specifies tasks and duties of Labour and Social Welfare
Departments (LSWSD) in a broader sense. It is important to specify the task, duties of employment
specialist and describe clearly the function, procedure of implementation of employment promotion
programs. Also, the law does not have any responsibilities for citizens (job seeker and unemployed). It
is very important to describe the rights and responsibilities of job seekers and unemployed. It face, it
should be described in the Employment promotion law. For instance, Employment Act of Spain, article
29.2 specifies that “Implementation oftheindividualpersonalized pathway to employmentrequires the
jobseekerto sign a personal employment agreement. By means of this agreement, the beneficiary of
the pathway is committed to actively participating in actions to improve their employability and
actively seeking work or launching a business initiative; at the same time, the public employment
service is committed to theallocation and planning oftheactions and measures required. In thecaseof
recipients of unemployment benefits and allowances, this personal employment agreement will
constitutepartofthe commitment to activity established in Article 41”. Agreement of Job seekers and
unemployed can be found in Annex 7.6 of this report. This issue was also addressed within the
recommendations (1.1.5)ofLSS1 of SECIM project “Impactassessment of NationalEmployment policy
andregulation in non-miningsectors”. Itspecified that “Assess the necessity to include in the Law on
Employment Promotion rights and duties of unemployed persons (and job -seekers).
Proposed rights of unemployed person: receive information regarding vacant workplaces and
qualification requirements, participatein theemploymentpromotion activities (Employmentpromotion
services, employments promotion measures) provided by GOLSWS, receive unemployment insurance
services in accordance with the legislation.
Proposed duties of unemployed person: actively seek employment independently and with the
assistanceoftheGOLSWS, visit theGOLSWS within fixed numberofdays from the day of receipt of an
invitation, participate in the Employment promotion activities agreed with GOLSWS.”
Furthermore, management and structure of the GOLSWS and LSWSD in the legislation should be
described very clearly.
Coordination between Active and Passive LMMs
The Public Employment service of Autonomous Regions of Spain are providing active and passive
labour market policies at the same premises which allowing job seeker, unemployed to receive one-
stop service. This arrangement is similar functional structure of Mongolian LSWSDs. Employment
specialist working at sumandkhoroo level is providingboth Social welfare andemployment service for
citizens in the area. Unfortunately, these employment specialists are mostly focusing on social welfare

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service and administrative works due to the workload from the top management and demanded
service from citizen.
In order to apply Spanish Active and Passive LMMs approach, the MoLSP need to put more stress on
coordination between Employment and Social Welfare policy and create legal environment by revising
Social welfare andEmployment Promotion law which ties employment promotion policy together with
social welfare benefits. Specially, it is good timing to do such arrangements with both employment
promotion and social welfare legislations are under the revision process.
Capacity building
There are several studies had been done in terms of implementation of Active Labour market
measures of Mongolia. Asan example, the key findings and recommendations from report “Improving
Labour Market Outcomes for Poor and vulnerable groups” written by Franziska Gassmann, Daphne
François and Lorena Zardo Trindade (December, 2015), also “Ex- ante evaluation (baseline study) and
monitoring of the SECiM project done by Education Development Trust (June, 2016), “Review of
Implementation Realities of Mongolia’s Employment Promotion Policies and Programs” (2016) by
World bank often shows that outcome of ALMMs are poor, ineffective and local level specialists are
overloaded with bulk of administrative works.
Therefore, prior to conducting any types of capacity building activities, it is essential to carry out
workload measurement for all level of employment and social welfare specialists. Because
employment specialists have been attending different types of trainings and capacity building
activities organized by the GOLSWS, donor organizations and internationally funded projects and
never have chance to use acquired skills and knowledge for their work due to their daily workload.
This often leads to ineffective investment and effort of above organizations. Therefore, such workload
measurement can be done by one of the leading independent research institutes upon the request or
decision of the MoLSP. Within 6.3.6 of Ex- ante evaluation (baseline study) of SECiM assessed that
work of first level officers in Mongolia are overloaded and spending so much time on social aspects of
employment policy and administrative paper work and reporting to the top management.
Since the Government of Mongolia does not have sufficient finance to hire more specialist at suom
and khoroo level it would ideal solution to the current situation with workload of employment
specialist.
 The MoLSP should makeappropriatedecisions and make rules or regulations that re-designed
every-day task and duties of employment specialist of all level based on the result of the
workload measurement. Reducing
 Strengthen capacity of all level employment specialist to apply new work methods, tools
including profiling, individual plan approaches to work with social welfare beneficiaries and
employment promotion program beneficiaries (unemployed and job seekers)
 Reduce unnecessary administrative burden of employment specialist to allow them to work
more with unemployed and job seekers effectively.

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6. Conclusion
During the study visit, representatives from MoLSP and its subordinated organizations got acquainted
with the employmentpolicy development andimplementation EU best practices the Kingdom of Spain
which successfully applied decentralization approach in the employment policy. Participants visited
labour market institutions, social partners, one of the biggest universities in Europe as well as short
term vocational training course providers.
The main objective of the study visitwas to explore aboutfact thathow Spain managed to transfer the
employment promotion policy to the local level to fully function independently in order to deliver
service based on the citizen’s needs.
In general, it was observed that decentralization approach to employment policy came to today’s
systematized structure after going through many trials over past 2 decades. The key principle to this
approach was that The Government and the ministry in particular, has coordinated the employment
policies from the very general perspectiveand granted freedom and power to implement the policy to
their subordinated departments, divisions and autonomous regional institutions by revising relevant
legislations to do so. Furthermore, the Government gives high importance to the involvement of
private sectors and social partners in development of employment policies and literally takes it into
account in order to make legislation which aimed at fulfilling the need or society. Such close
collaboration with the private sector and social partners for policy making leads to efficient
implementation of employment policy in terms of finance and human resources.
Also, funding for the ALMM is sufficient for the implementing at local level and autonomous regions
spend the funding in the most effective way under strict supervision of the National Employment
service and EU Commission. This is the biggest evidence of decentralized approach literally took place
in Spain that autonomous regional office have the flexibility to spend the financing based on the local
need.
Someideas and recommendations which obtained from the study visit that is possible to be applied in
Mongolian case is reflected in the observations and recommendations of this mission report.
Finally, special gratitudeto the EU funded SECIM project for providingsuch opportunity to learn about
employment policy development and implementation practice of Spain. It is now participant’s
responsibility to apply the knowledge and experienced gained from this study visit in Mongolia in
order to improve function of the labour market.
Name:
Participants of the study visit
Signature:
Date:

The European Union
18
7. Annexes
7.1. 2017-2020 Spanish Strategy for Employment Activation
7.2. Decree on Annual Employment Policy Plan 2017
7.3. Employment Act of Spain
7.4. Decentralized Employment Service Spain
7.5. Regional Labour Market Observatory
7.6. Agreement with unemployed (Translation from Spain).

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