Kinofelis Program

Implementation Manual

Development
and Investment
Branch

Employment
Policy
Department
 ABOUT THE PROGRAMME IMPLEMENTATION MANUAL

This Programme Implementation Manual (PIM) is a key reference

document for the design, implementation, monitoring and reporting of
the Greek government’s Kinofelis public work programme. The main
purpose is to provide guidelines in all aspects of the programme. It is
mainly written for government institutions.

The manual comprises two main parts. The first part, sections 1 to 4,
includes some background on the programme. It provides an overview
of the aims of the programme as well as the responsibilities of the
different government departments implementing it. It also covers the
legal framework and stages of the programme cycle.

This aims to give people working on the programme a better

understanding of the overall programme and its objectives.

The second part, chapters 5 to 9, focuses on the practical operational

aspects of the programme, providing working guidelines for people
implementing it.

It details the administrative procedures that must be followed. It also

takes people through the steps for project selection and registration; the
application process including entry and exit sessions for beneficiaries;
training opportunities; and the rights and obligations of beneficiaries.
Finally, it provides guidance on how some specific activities or
procedures can be improved or made more efficient.

1
Contents
1. Introduction…………………………………………………………………………………………6
1.1 Objectives and target groups of the PIM ………………..……………………6
1.2 How to use the PIM.……………………………………..…………………………….6
1.3 The New Generation of Kinofelis.……………..…………………………………9
1.4 Effects of Kinofelis……….………………………………..…………………………10
1.5 Institutional framework and roles of different actors in
Kinofelis..……………………………………………………………………………….10
1.6 Scale of Kinofelis..…..………………………………………………………………11
2. Programme Design……………………………………………………………………………..13
2.1 The Kinofelis Programme cycle………………………………………………..14
2.2 Joint Ministerial Decree………………………………………………………….16
2.3 Technical Bulletin of Development ………………………………………… 14
3. Project selection, design, registration and planning…………………………..…16
3.1 Invitation to Executing Institutions to Submit Projects…………..….16
3.2 Selection of projects…………………………………………………………………28
3.3 Registration of projects in the Management Information
System (MIS)……………………………………………… ………………………..…20
3.4 Compilation of index of specializations and qualifications……..….22
4. Application process for beneficiaries……………………………………………..……23
4.1 Application process and selection criteria…………………………..…….23
4.2 Publication of list of successful applicants…………………………..…….26
4.3 Reporting to the local OAED Offices…………………………………………26
4.4 Reporting to Executing Institutions …………………………………………..27
4.5 Replacement of successful applicants…………………………………...…..28
5. Recruitment and dismissal of beneficiaries by executing institutions……29
5.1 Recruiting beneficiaries……………………………………………………………29
5.2 Registration of beneficiaries by executing institutions……………….29
6. Rights and obligations of beneficiaries………………………………..…….…………31
6.1 Different kinds of leave…………………………………………..………………..32
6.2 Working Hours………………………………………………………………………...33
6.3 Salaries……………………………………………………………………………………33
7. Training……………………………………………………………………………………………..34
8. Reporting, Monitoring and Quality Assurance...……………………………………37
8.1 Method for Reporting beneficiaries' attendance schedules
and payments……………………………………………………………………...…..37
8.2 Reporting on project implementation……………………………………….37
8.3 Administrative checks and inspections.…………………………..………...38
8.4 Questionnaires………………………………………………………………………...38
8.5 Health and Safety Standards…………………………………………………….39
9. Supporting workers to exit…………………………………………………………………40
9.1 Providing proof of employment...……………………………………………...40
9.2 Exit sessions with OAED…………………………………………………………..40

2
Figures
Figure 1: Features Kinofelis bringing beneficiaries closer to the
Labour Market……………………………………………...……………………………8
Figure 2: Main project-based features of Kinofelis……………………………………….9
Figure 3: Direct and Indirect effects of Kinofelis………………………………………….9
Figure 4: Institutional framework of Kinofelis…………………...………………………10
Figure 5: Programme Implementation cycle……………………………………………..13
Figure 6: The Legal procedures of Kinofelis…………………………………………….17
Figure 7: Process of on-line application for Kinofelis………………………………….24

Tables
Table 1: Changes in the New Generation of Kinofelis……………………………… ….8
Table 2: Contributions to total Kinofelis budget…………………………………………11
Table 3: The main elements of the JMD…………………………………………………….14
Table 4: Ministries and Policy competences in the JMD……………………….…….14
Table 5: Contributing to local economic development: the example of the
tourism sector…………………………………………………………………………...18
Table 6: Addressing the profile of the unemployed in project selection and
wider labour demand…………………………………………………………..……19
Table 7: Primary and Secondary Information for the electronic submission
of projects………………………………………………………………………………...21
Table 8: Point system for the selection of Kinofelis applicants……………………26
Table 9: Objectives of first OAED session…………………………………………………...28
Table 10: Documents successful applicants submit to Muncipalities…………..28
Table 11: Documents for the registration of beneficiaries by
executing institutions………………………………………………………………..29
Table 12: Dismissal of beneficiaries………………………………………………….……….30
Table 13: Different kinds of leave Kinofelis beneficiaries are entitled to……..31
Table 15: Salaries of Kinofelis beneficiaries……………………………………………….32
Table 16: On-the job-training……………………………………………………………………35
Table 17: Objectives of OAED exit session…………………………………………………40

3
List of Annexes
Annex 1: Joint Ministerial Decree
Annex 2: Technical Bulletin of Development
Annex 3: Template Invitation Letter to Municipalities for the Submission of
Projects
Annex 4: Guidelines on the Analysis of OAED Data
Annex 5: Guidelines on the Presentation of OAED data
Annex 6: Project Management Process Form
Annex 7: Project Resource Requirements and Budget
Annex 8: Guide on the Submission of Projects on the MIS
Annex 9: Guidelines for the Selection and Registration of Projects on the MIS
Annex 10: Kinofelis Project Planning Tool
Annex 11: Index of Professional Specializations
Annex 12: Guide for Applicants
Annex 13: List of Successful Applicants
Annex 14: Guide of Entry and Exit Sessions
Annex 15: Introductory Letter to Beneficiaries
Annex 16: Frequently Asked Questions Addressed to Beneficiaries
Annex 17: Guide for Beneficiaries
Annex 18: Call to Training Centres
Annex 19: Attendance Sheets
Annex 20: Reporting Templates for Site Visits
Annex 21: Microdata Questionnaire
Annex 22: Baseline Questionnaire
Annex 23: Standardized Certificate of Employment
Annex 24: MOL Guide to Municipalities on the Implementation of Kinofelis
Annex 25: OAED Implementation Guide

4
Abbreviations
ALMP Active Labour Market Policy
ASEP Supreme Council for Civil Personnel Selection
DOATAP Hellenic National Academic Recognition Information Centre
EC European Commission
ESF European Social Fund
GIS Geographic Information System
GSIS General Secretariat of Information Systems
GSMAOP General Secretariat for the Management Authority of the Operational
Programme: “Human Resources Development and Life Long Learning”
IDIKA Government Centre for Social Security
IKA Social Insurance Institute
ILO International Labour Organization
IT Information Technology
JMD Joint Ministerial Decree
KEKs Vocational Training Centres
KEPs Citizens Centres
KPA2 Regional Offices (OAED)
MED Ministry of the Economy and Development
MOL Ministry of Labour, Social Security, and Social Solidarity
NGO Non-Governmental Organisation
NSRF National Strategic Reference Framework (MOL)
OAED Greek Manpower Employment Organization (MOL)
PIM Programme Implementation Manual
PWP Public Work Programme
SEPE Labour Inspection Corps
SRSS Structural Reform Support Service (European Commission)
SSI Social Solidarity Income
SSN Social Security Number
SSRN Structural Reform Support Service
TAXIS General Secretariat of Information Systems TAX Records
TBD Technical Bulletin of Development
TRN Tax Registration Number
VAT Value Added Tax

5
1. Introduction
In 2016, the Government of Greece began a new cycle of the Kinofelis public
employment programme. The programme aims to provide new employment and
training opportunities for the registered unemployed, reduce exclusion from the
labour market, support the reintegration of the unemployed into the labour
market, and contribute to local economies and societies through a wide range of
projects. The programme focuses on the most vulnerable groups of the
unemployed who are further away from the labour market, mostly the long-term
unemployed and unemployed from low-income households.

To improve the quality of the programme, the International Labour Organization

(ILO) provided technical support to the Greek Ministry of Employment, Social
Security and Social Solidarity (MOL) from September 2016 to November 2017.
This included regular consultation and assistance to the MOL and other
institutional stakeholders, site visits, training and capacity building sessions with
executing institutions, as well as a baseline study and a new Management
Information System (MIS). The project was funded by the European Commission’s
(EC’s) Structural Reform Support Service (SRSS).

This Programme Implementation Manual (PIM) was born out of the collaboration
between the MOL and the ILO.

The PIM is a key reference document for the design, implementation, monitoring
and reporting of Kinofelis. It provides guidelines for stakeholders in all aspects of
the programme.

1.1 Objectives and target groups of the PIM

The PIM provides an overview of the programme cycle and practical guidance for
different actors on how to achieve its objectives. The main target group includes,
public servants, in particular at the MOL, municipal officials, staff from OAED and
administrative and training personnel who are involved in Kinofelis.

The PIM is mainly written for government institutions. However, the information
in the manual is also a reference document for social partners, researchers, and
the press. Finally, the PIM may also be useful for policymakers outside Greece,
especially in the European Union (EU), who are designing and implementing
similar public employment programmes, especially those targeting the long-term
unemployed.

1.2 How to use the PIM

The PIM is a tool to support the implementation of the programme. It describes

the objectives, project cycle and the main operational procedures of the
programme. Some of the actors involved in Kinofelis are active only during specific
stages of the project cycle. As a result, they may have a partial and fragmented
understanding of the overall programme and its objectives. This has negative

6
consequences on the coordination of the programme as different institutions may
understand Kinofelis’ purpose and character differently. For example, Municipal
officials may think of Kinofelis as only a project-based programme aiming to
improve local infrastructures rather than as an active labour market policy
(ALMP). In contrast, OAED officials may consider Kinofelis solely as an active
labour market programme ignoring its project-based character.

Once these different actors familiarise themselves with the overall programme
objectives, and the specific contribution that different institutions make, they will
be able to better contextualize the programme as both an ALMP and a project-
based programme. For this reason, it is recommended that all the different
sections of the PIM are read, especially when revisions and changes are
introduced.

Institutional actors involved in implementing Kinofelis can find a combination of

the following in the PIM:
• A step-by-step operational guide on how to contribute to the successful
implementation of Kinofelis at different stages and enhance its positive impact.
• A detailed reference manual that will assist participating institutions to better
understand the programme from beginning to end and the different roles that
other institutions play with the aim of harmonizing and improve the
coordination of the design and implementation activities.
• Annexes that provide specific details and guidance on various aspects of the
programme.
• Tables with references to relevant recommendations which can be found in
detail in the document “ILO Recommendations for the Kinofelis Programme of
Greece”.

The PIM is mostly based on the present state of affairs. Nonetheless, it is designed
as a dynamic document in tune with a rapidly changing policy environment in
Greece. At the same time that it is being written, the Greek government is in the
process of reforming and piloting new ALMPs. The PIM is thus designed as a
modular document: as features of the programme change and reforms are
implemented, sections of the PIM will be updated. Overall it is designed to enable
policymakers to adjust to new policy priorities as well as operational and strategic
challenges.

1.3 The New Generation of Kinofelis

Since 2014, successive Greek governments have responded to the challenge of

rising unemployment and recession by increasing the scope and size of direct job
creation programmes and improving their coordination, planning and
management. During its latest phase, which started in 2016, the new generation
of Kinofelis has expanded to include projects in all the Municipalities of Greece. It
is co-funded by NSRF 2014-2020 and national funds. targets mainly but not
exclusively specific categories of high-risk unemployed and has incorporated
elements of other ALMPs combining employment, training and counselling to
become an active – rather than a passive – labour market policy.

7
Table 1: Changes in the New Generation of Kinofelis
1. A project-based public works approach to multiply the positive
socioeconomic impact of the programme.
2. The period of employment is extended to eight months.
3. A more focused approach targeting the most vulnerable categories of the
long-term unemployed without excluding those closer to the labour market.
4. Two sessions in OAED at the beginning and end of employment
5. Compliance with legal labour rights improved to include time off, sickness and
maternity leave, and adjustment of security stamps for “heavy and
unhygienic” work.
6. Optional training in Information Technology (IT), certification of IT
competencies, and seminars on employment opportunities in the social
economy once a week,

The package of interventions available to beneficiaries now includes different

elements aimed at improving their access to the labour market and rendering
them able to find employment when the labour market recovers. The programme
specifically targets the unemployed who are furthest away from the labour market
(mainly the long-term and older age unemployed). However, it does not exclude
unemployed people who are closer to the labour market (younger age or short-
term unemployed).

Figure 1: Features Kinofelis bringing beneficiaries closer to the Labour Market

Employment Training in
for eight Information Interuprting
months with Technology and Entry and exit long-term
full insurance seminars on counseling unemployment
and increased the social cycle
labour rights economy

Simultaneously, the programme provides executing institutions with the tools to

deal with unemployment, poverty and social deprivation in their regions and
implement projects of public benefit.

8
 Figure 2: Main project-based features of Kinofelis

On-the-job
Improvements Social support training and Implementing
of local to low-income work pojects of
infrastructures and deprived discipline public benefit
and services households

The challenge is to combine the project-based approach of Kinofelis with

activating the unemployed.

1.4 Effects of Kinofelis

Kinofelis aims at several effects simultaneously. As the Figure below illustrates,

the main direct impact of Kinofelis is the temporary activation of the long-term
unemployed, while the indirect impacts of Kinofelis include on the one hand, social
impacts and the reduction of the obstacles that the long-term unemployed face in
their access to the labour market and on the other community benefits.

Figure 3: Direct and Indirect effects of Kinofelis

Temporary activation of long term-unemployed

Employment
+
Training

Enhancing public
Reducing obstacles services and creating
to the access to the public assets
labour market

Contributing to the
social safety net

9
 Recommendation 1.1 Institutionalize Kinofelis as a counter-
cyclical programme

1.5 Institutional framework and roles of different actors in Kinofelis

The different institutional agencies involved in the design, implementation and

quality assurance of the programme should recognize the operational
implications of these objectives from the beginning of the programme. These are
briefly explained in Figure below.

Figure 4: Institutional framework of Kinofelis

National Project Team

Ministry of Labour, Social Executing Institutions 1:

Security and Social Municipalities
Solidarity
NSRF Executive Structure
Office of the Alternate Executing Institutions 2:
Minister for Combating Vocational Training Centers
Unemployment Manpower Employment (KEKs)
Organization (OAED)

The Supreme Council for

Civil Personnel Selection
(ASEP)

The Office of the Alternate Minister for Combating Unemployment is responsible

for the design of Kinofelis and the coordination of the different MOL bodies
participating in its implementation. The Office is supported by the National Project
Team – a dedicated team of public servants – and the NSRF Executive Structure
that includes the General Secretariat for the Management of EU Funds, which has
an important and active role to play in implementing the project since it is
responsible for the current European funding regime.

The Greek Manpower Employment Organization (OAED), which is also under the
auspices of the MOL, is responsible for the application procedure, the selection
and payment of the beneficiaries, as well as for the entry and exit consultation
sessions with beneficiaries in its regional offices (KPA2). ASEP plays a central role
in the selection process of beneficiaries in determining the special qualifications
they need to be eligible for specialized employment positions.

10
The main executing institution during this phase of the programme are the
Municipalities, which design projects and employ beneficiaries for a period of
eight months. All municipalities in Greece were invited to participate. Each
municipality receives an allocation of positions by the MOL, which cover only a
limited number of the unemployed registered in OAED for this specific
Municipality. Although the main executing agencies during the current phase are
Municipalities, these may be diversified in future to also include Non-
Governmental Organizations (NGOs), social economy enterprises and other
governmental or non-governmental institutions, as was the case in earlier phases
of the programme.

The KEKs are responsible for the optional training provided to beneficiaries once
a week in IT and the seminars on the social economy.

This institutional framework is valid for the current phase of the programme. If
the funding sources or the executive institutions change, it will have to be
redesigned.

Recommendation 1.3 Increase and diversify the types of

executing agencies (above and beyond
municipalities
Recommendation 1.4 Integrate Kinofelis into a tripartite
consultative mechanism on ALMPs in
Greece

1.6 Scale of Kinofelis

Approximately 45,000 the unemployed person benefited from the current

programme as funding for Kinofelis was made available through both the European
Social Fund (ESF) and the Greek National Budget.

Table 2: Contributions to total Kinofelis budget

Co-financed ESF €240 million
expenditure
National Budget €68 million
Total €308 million

The roll out of the current third phase was implemented gradually in three groups
of Municipalities based on the degree of vulnerability of long-term unemployment
of each municipality. For each one of the 345 Municipalities, the following criteria
for selection were used:
(a) Long-term Municipality’s unemployment rate in 2015 (source OAED
data)
(b) % increase rate of long-term registered unemployment between 2011-
2015(source OAED data)
(c) % unemployment (source: 2011 Census data)

11
The 51-highest ranking Municipalities implemented the two initial pilot phases
using funding for labour costs and training provided through Kinofelis. An
additional 5% to cover the cost of materials was made available through the
Consignment Deposit and Loans Fund. The remaining 274 Municipalities
comprised the national rollout for which there funding for the costs of materials
was provided by the Municipalities.

Recommendation 1.2 Develop a clear and transparent

procedure for the MOL/OAED to
allocate the available Kinofelis
openings per municipality.

12
2. Programme design
2.1 The Kinofelis Programme cycle

Figure 5: Programme Implementation cycle

Joint
Exit counselling Ministerial Technical
session in OAED Decree Bulletin of
Beneficairies Development
MOL, MED
MOL- NSRF
executive
tructure
Employment and
Training in Executing Invitation for
Institutions
submission of
Beneficairies projects
MOL -NSRF
Recruitment of Executive
beneficairies Structure
Executing
institutions Design,
selection and
registration of
projects and
First visit to specializations
Executing Executing
Institutions for Institutions
the validation of
qualifications Publications of
Successful Index for
applicants Qualifications/
Specializations
First MOL-NSRF
counselling Executive Structure
session in OAED and ASEP
Successful
applicants
Publication of Public call
list of successful for
Application applicants
applicants
procedure OAED
OAED Unemployed
registered in
OAED

13
2.2 Joint Ministerial Decree

The legal framework of Kinofelis is based on Law 4152/2013 and the 40 other
laws that complement it. The programme begins with the drafting of a Joint
Ministerial Decree (JMD) (Annex 1) that defines the aims of the programme and
fulfils the necessary legal and financial requirements as it is closely linked to the
annual or multi-year cycle of programme funding.

Table 3: The main elements of the JMD

The JMD includes the following elements of the programme:
• Broad programme orientation, such as project-based approach and
training component
• Programme objectives
• Period/duration of the programme
• Amount and sources of funding
• Executing institutions
• Role and responsibilities of different institutions involved
• Requirements and modalities for monitoring, reporting and programme
evaluations
• Rights and obligations of beneficiaries

The JMD is signed by the MOL and the Ministries that oversee its funding and
implementation and then published.

Table 4: Ministries and Policy competences in the JMD

Ministries JMD Policy area
Ministry of the Economy and Co-funding of the programme
Development covered by EC funds
Ministry of Finance Co-funding of the programme
covered by the National Budget
Ministry of the Interior Local government
Ministry of Education, Research and Human Resources Development and
Religion Life-Long learning
Ministry of Administrative Reform Public-sector recruitments

2.3 Technical Bulletin of Development

Following the publication of the JMD, the Ministry (in previous and current phases
the MED) that oversees the funding of the programme compiles an Invitation to
the MOL. Once the invitation is issued, the NSRF drafts the Technical Bulletin of
Development (TBD) (Annex 2), a document that describes the technical aspects
of implementing the programme. Because the programme was co-funded by EU
funds, the TBD was then approved by the General Secretariat for the Management
Authority of the Operational Programme: “Human Resources Development and
Life Long Learning” (GSMAOP)

This procedure, however, depends on the nature of future funding sources. If, for
example, the programme is funded in the future by national funds only, approval

14
of the GSMAOP will not be needed as this body is set up to monitor and provide
quality assurance for EC funded programmes. However, if the programme is
funded by external sources other than the EC, a new institutional and legal
framework should be put in place.

For the administrative personnel that implements the programme, the JMD and to
a lesser extent the TBD provide the main reference documents for the operational
requirements and procedures that must be legally met over the course the
programme. Although these documents are valuable, they offer limited guidance
on implementation processes and issues that are not legally or institutionally
defined. For example, there is little information or guidance on the kinds of
projects that Municipalities are expected to implement, or how to effectively
communicate expectations of the programme to beneficiaries. This PIM is written
to complement the JMD and TBD and provide more elaborate and practical
operational guidance on issues that are only partially covered or not covered at all
in these formal documents.

15
3. Project selection, design, registration and
planning

3.1 Invitation to Executing Institutions to submit projects

When the Technical Bulletin for Development is published, the NSRF Executive
Structure initiates the programme by inviting executing institutions to participate
and notifies them on the number of beneficiaries that they will be able to recruit.
It also launches the invitation to the executing institutions to submit and register
projects via the online Kinofelis platform. A template of an invitation letter to
Municipalities to submit projects is included in Annex 3.

This invitation provides guidelines for public officials on how to log into the MIS
to register projects and match them with specializations required for completing
projects. The MIS is managed by the MOL. While there is no official procedure for
the approval of projects by the NSRF Executive Structure, the MIS is designed to
automatically ensure that the projects registered correspond to pre-set criteria.

16
 Figure 6 : The legal procedures of Kinofelis

Ministry of Ministry of the Ministry of

Admin. Economy and Finance
Reform Development

Ministry of
the Interior Ministry of
Ministry of Labour
Education

Joint Ministerial Decree

49 Laws and
Law Articles

Decision to initiate a new phase by the MOL

Operational
Programme for
Human Resources NSRF Executive
Development and Life- Structure
Long Learning

Law
4152/2013 on Technical Bulletin of Development
Kinofelis Legal
Framework

Law
4387/2016 on
Social Invitation to executing institutions and call for
Contributions applicants.

Law 1262/1982 on
Regional Development

17
3.2 Selection of projects

After municipalities have received the invitation letter from the NSRF Executive
structure, their first task is to start identifying suitable projects to be implemented
under Kinofelis. The types of projects selected determine the nature and quality
of the work experience and the skills beneficiaries will gain, the benefits that
accrue to the local community through the programme, its reception by the public,
and its social impact. Each executing institution is encouraged to choose a multi-
sectoral portfolio of projects, allowing for flexibility in responding to diverse local
needs, including a mix of sectors and targeting different constituencies within the
unemployed.

Before proceeding with the selection, design and registration of projects,

executing institutions are encouraged to consider the following factors:

• How the public goods and services created improve the quality of life of the
community and strengthen the local economy.
• How well the mix of projects selected corresponds to the profile of the
unemployed as well as to trends in labour demand in the wider economy.
• The costs that are not covered by Kinofelis.

Table 5: Contributing to local economic development: the example of the tourism sector

Kinofelis can contribute to local economic development through the public goods and
services it provides, enhancing its wider job creation effects. If, for example, tourism
matters for employment growth in a local economy, how can Kinofelis support this
outcome? There is a wide range of ways, to use different local skills:
• Upgrading public spaces.
• Maintenance of walking paths and off-road cycle paths
• Signage.
Improved tourism website and Apps, with photography, content on local
history, culture, art, music, food – using design skills, geographic
information system (GIS) mapping and IT skills.
• Rehabilitation and/or guarding of heritage sites.
• Posters and brochures.
• Addressing knowledge gaps: for example, using unemployed social
scientists to do research on trends in global tourism and using this
information to strengthen the local tourist sector.

What other sectors might be supported through the public goods and services
delivered? What consultation processes assist in their identification?

18
Table 6: Addressing the profile of the unemployed in project selection and wider labour
demand
In deciding which projects to prioritize, the profile of the unemployed in the
area is key – because project choices have implications for the gender, age and
skills profile of participants.

For example, if all the projects are in construction, it is likely that most
beneficiaries will be men – not because women can’t participate in construction
but because men are more likely to have qualifications in this area. Achieving a
gender balance requires a mix of projects that also avoids offering women only
work of low status and with few career prospects.

Similarly, different types of work will attract different age profiles. While the
need to ensure older workers can participate is emphasized, a spread of age
profiles is also desirable – with certain forms of work more likely to attract and
add value to the CVs of younger workers. In addition, in Greece, workers with
all skills and experience levels have been affected by the economic crisis: from
unskilled workers with no work experience to experienced artisans and
professionals – and people who have run their own companies. This skills mix
creates unique opportunities in the range of public goods and services that can
be delivered.

With proper planning, the contribution of experienced or skilled participants

can also enhance the quality of on-the-job training for unskilled workers, with
this built into the roles and specializations defined for a given project.
Experienced workers can also take on supervisory responsibilities in projects,
which can relieve some of the capacity pressures related to project
management of Kinofelis within executing authorities.

The current profile of the unemployed should be provided by OAED. Guidelines

on the Analysis of OAED data for Municipalities to better plan their projects can
be found in Annex 4. In addition, Annex 5 has Guidelines on the Presentation of
OAED data. While the current profile and experience of the unemployed
matters, consideration also needs to be given to trends in labour demand, and
how the employment experience in Kinofelis can enhance their access to
opportunities in the wider economy. The Diagnostic Mechanism of the Labour
Market that the MOL has developed can identify emerging trends, on the basis
of which successful projects can be designed to benefit local communities and
open up new avenues of employment for the unemployed.

Recommendation 2.1 Improve consultation in the project

selection process: Executing authorities
should be encouraged to adopt open
and transparent procedures for project
selection involving consultations with
local communities and stakeholders.

19
 Recommendation 2.2 Address inequalities in the recruitment
process: mainstream gender
considerations into project selection

Recommendation 2.3 Institutionalize the practice

introduced by the ILO project of OAED
providing executing authorities with
data on local unemployment.

Recommendation 2.6 Continue training and capacity

building sessions for executing
authorities by MOL officials on a
regular basis.

3.3 Registration of projects in the Management Information system

(MIS)

In order to assist executing institutions to successfully register projects on the

MIS, a Guide on the Submission of Projects on the MIS is available in Annex 8.
During the registration of projects, executing institutions register projects as well
as corresponding employment positions that are not defined only in terms of tasks
that applicants will perform if hired, but also in terms of “specializations”.

When the MIS opens for the registration of projects, a set of Guidelines for the
Selection and Registration of Projects on the MIS (Annex 9) is sent to the
executing institutions. This includes the following:
1. A guide introducing the project registration process to public officials at
executing institutions.
2. A guide explaining in detail the online process of project registration.
3. A template document facilitating the project design process by executing
institutions
4. A list of examples of types of projects executing institutions may select.
5. The number of maximum possible beneficiaries that each executing institution
can ask for.
6. A template document in which executing institutions may register types of
services that will be offered to citizens by each project.
7. The menu of “specializations” and corresponding qualifications that ASEP has
established.

The electronic registration of projects by executing institutions consists of the

submission of primary and secondary information on projects. The purpose of
primary information is to help executing institutions to define the general context
of the project. The purpose of the secondary information is to assist executing
institutions to improve the planning and evaluation of their projects. Executing
institutions should submit the projects by the end of the deadline for each call.

20
The Table below provides a detailed breakdown of the primary and secondary
information needed for the electronic submission of projects.
Table 7: Primary and Secondary Information for the electronic submission of projects
Primary information Options
1. Regular Kinofelis project
1. Project Category 2. Project supporting the Kinofelis
Programme1
3. Project Sub-category1 1. Culture, sports
2. Environment, public sanitation
3. Administrative services
4. Actions of economic development
5. Constructions, repairs, renovations
6. Health, Welfare and social services
7. Project Title 5. Users are presented with a list of indicative
project titles. If none of the titles in the menu
suffice, users can register their own titles.
6. Brief description of the project (400 characters long)

Secondary Information
3. Services upgraded (Number of services upgraded)
/expanded/supported by the
project
4. Geographical location and photos Users can register up to 10 pairs of
geographical positions indicated by
coordinates of address and photos.
At least one position is necessary. If the
project cannot be geo-located, then the
position of the executing institution should
be used. Photos are optional.

5. Tasks of beneficiaries Up to 20 short descriptions of precise

tasks to be carried out by beneficiaries for
each project. At least one task per project.2

6. Costs of Materials Up to 20 combinations of type, quantity

and cost of materials to be used for the
completion of the project.
7. Specializations The specializations along with the
requested number of beneficiaries for each
project
8. Output Indicators All projects should have clearly defined
outputs in terms of services delivered or
outputs achieved. The completion of output
indicators from users is done based on a
series of standardized tables with indicators.
Users are asked to fill in only the numbers of
each project’s relevant indicators. The same
tables can be used for reporti.
9. Outputs At least one output indicator per project.

To reduce the administrative burden and overhead costs, executing institutions

are encouraged to avoid submitting multiple small projects as this may
significantly increase the administrative burden and limit their impact. In

21
submitting their projects, users need to plan their projects well in advance in
order to ensure that the total number of beneficiaries corresponds to the total
allocation of beneficiaries accorded by the MOL. To facilitate this process, a
Kinofelis Project Planning Tool (Annex 10) has been developed.

Recommendation 3.1 In an open framework, introduce a

continuous process for registration of
projects under Kinofelis

3.4 Compilation of index of specializations and qualifications

Executing institutions are asked to select “specializations” from an existing menu

of options (index of professional specializations) already compiled by the MOL on
the basis of the specializations selected by executing institutions during the
previous phases of Kinofelis. If none of these options is suitable, executing
institutions have the option to request new specializations. ASEP defines the
necessary documentation that applicants should submit as a proof of specific
“specializations”. Documentation ranges from certificates of educational level and
professional licenses to social security stamps collected in the past by
beneficiaries. Such documents will be then used as “proofs” –checked by the
executing institutions- that successful applicants have the professional experience
to perform certain tasks.

The MIS includes an Index of Professional Specializations (Annex 11), which

lays down the corresponding educational criteria for recruitment of beneficiaries,
based on the registered specializations approved by the MOL and ASEP. This index
helps executing institutions to better organize and speed up the selection of
project beneficiaries. Executing institutions are entitled to ask, if necessary, for
additional specializations that are not on the index. Once the registration is
complete, these specializations are sent to ASEP for the specification of
educational and professional qualifications for recruitment and can be added to
the platform for beneficiary institutions to request.

Recommendation 2.4 Harmonize the different specializations

and occupational specialties used in the
programme.

Recommendation 2.5 Abolish the specialty which is called

“general duties” to prevent
beneficiaries being allocated tasks
which are unsuitable to the project-
based approach and which
municipalities may incorrectly allocate
towards their regular ongoing
functions.

22
4. Application process for beneficiaries
4.1 Application process and selection criteria

When this deadline is reached, OAED begins the process of preparing the platform
for the roll-out of the application process. First, OAED officials will advertise the
Kinofelis employment openings per Municipality through its website and its
regional OAED offices (KPA2). A Guide for Applicants (Annex 12) is available
online to assist applicants in completing the form more effectively. The MOL also
issues press bulletins and announcements in newspapers and the Alternate
Minister and the Director of OAED also give interviews to promote the call.

All unemployed persons have the right to apply to Kinofelis2 provided that they
meet the following criteria:
• Active registration profile in OAED registers.
• Greek citizenship, or citizenship of a member state of the EU, or Greek nationality with
formally recognized ethnic origin or third country nationality with valid residence
permit.
• Age over 18 years old.

In addition, those who belong to at least one of the following categories have priority
access to the programme and get extra points:
• Households with both husbands/wives registered with OAED.
• Members of single parent families, where the head is unemployed.
• Long-term unemployed: 12 months and more registration in the OAED registers.
• Unemployed university and technical school graduates.
• Unemployed people with disabilities.
• SSI beneficiaries.

Applicants apply online individually. When applying for Kinofelis, the actively
registered unemployed are asked to provide a code. By providing the code,
applicants consent to the usage of their data by OAED for the purposes of the
application procedure. The code connects the application form to all available
OAED data on the applicant’s profile in different registers. The database of OAED
receives automatically data on the applicant from the databases of different
government bodies, including the General Secretariat of Information Systems TAX
records (TAXIS), and the Government Centre for Social Security (IDIKA). It is
important to note that interconnections between government databases are used
to simplify the procedure since applicants do not register themselves information
that can be fed into the system automatically.

2 OAED counsellors cannot disallow candidates from applying to Kinofelis and this should be
considered a “right to apply.” However, in the context of the Government of Greece’s “Strategy for
Active Labour Market Policies” and its broader Employment Policy (to be developed), applicants
should have received counselling from OAED and learned about their rights (and the limitations to
these rights, e.g., such as the impossibility of extending their employment beyond the eight-month
duration of a “work opportunity”), obligations under the program and alternative possibilities to
which they can apply.

23
 Figure 7: Process of on-line application for Kinofelis

MIS opens
automatically:
-Tax registration
number (TRN), Applicants enter data
on social status:
-Social Security Applicants
Number (SSN), -Heads of a single
enter parent family
-Date, place of personal ID
birth, and gender -University of technical
and contact
school graduates
-Nationality, data:
-Disability 50% or over
Applicants -Address, -Name and
Surname -Under aged or
apply and -No of disabled children
enter: Unemployment -Phone
registered with the
OAED key Card and date of -Mobile SSN of the child only.
code expiration, phone
-Specialization (from a
-Continuous -E-mail list of available
months of -Number of specializations)
unemployment Active
preceding the date -If married, SSI, Social
Account Bank Security Fund and
of application, Number specialization of
-Period left for the -Main Social husband/wife
next renewal of the Security Fund
Unemployment
Card

Applicants are allowed to apply to Kinofelis within a specific deadline. As soon as

OAED launches the call, they are entitled to apply for a single specialty in at least
three Municipalities. Once they have submitted their application, it cannot be
modified. However, they are entitled to remove their application if they no longer
wish to apply for Kinofelis.

After checking the list of available employment positions and corresponding

specializations, applicants are required to check if they fulfil the criteria (verifiable
skills, professional experience and educational level) to be entitled to specific
posts advertised.

The OAED electronic platform verifies the criteria for selection that determines
the outcomes of the application process.

Table 8: Point system for the selection of Kinofelis applicants

Criteria Points
Duration of applicants’ continuous 1 point per full month up to 60
unemployment consecutive months
Duration of applicants’ husband or 1 point per full month up to 60
wife continuous unemployment consecutive months
Disability of applicant (50% and over) 15 points
Annual income 30 points for €0-3,500 personal and
€0-7,000 family income

24
 15 points €3,501-5,000 personal and
7001-10.000€ family income
20 points €5,001-8,000 personal and
10.001-16.000€ family income
10 points €8,001-12,000 personal
and €16,001-26,000 family income
0 points €12.001 and over personal
and €26,001 and over family income
Age 15 points 18-29
30 points 30-44
40 points 45 and over
Number of under-aged children 10 points each
Number of dependent adult and 10 points
underage disable children (over 76%)
Municipality of residency 15 points
SSI 15 points

Most of the information on social criteria submitted by applicants is checked

automatically through the interconnected electronic systems of OAED, IDIKA and
the General Secretariat of Information Systems(GSIS). During this stage applicants are
not required to submit proof of specialization (for example educational
certificates or professional experience). These have to be produced at the time of
recruitment by the executing institutions. Nonetheless, by submitting the
application, all applicants automatically assume legal responsibility that the data
on formal qualifications that they have submitted are valid.

By completing the electronic application, applicants are automatically authorizing

OAED to use their personal data for the evaluation of applications under the public
call and for the requirements of the NSRF micro-data collection. OAED stores all
the personal data entered in the electronic database by applicants during the
application process. Extra care should be taken to avoid mistakes made in the
personal data registered in the system, as these may influence the application
procedure as the process of selection will be done automatically and on an
ongoing basis through the OAED system.

Recommendation 2.7 Specify project titles, not only the

specializations, for the available
positions which are published in the
Call for applicants.

Recommendation 2.9 Change the wording of the relevant

sections of the “Call for applicants from
OAED” to ensure that the Call and
guides for applicants reflect basic
principles of gender and ethnic
equality.

Recommendation 2.10 Make available to IT illiterate

applicants a list of IT centres to assist
them in applying to the Program.

25
 Recommendation 2.11 Clearly separate eligibility criteria from
selection criteria based on preferential
points.
Recommendation 3.2 In an open framework, introduce
continuous process for beneficiary
applications to Kinofelis.

Recommendation 3.3 In an open framework, strengthen the

diversity of the criteria for the selection
of Kinofelis beneficiaries, with a variety
of age and skill profiles, open to all the
unemployed.
Recommendation 3.4 In an open framework, ensure that
Kinofelis remains accessible to all
unemployed.

4.2 Publication of list of successful applicants

OAED publishes a list of successful applicants (Annex 13) per executing

institution online. Applicants are not informed individually about the results
during this phase. Applicants are given a three-day period to object to the final
scoring and provide a valid justification for their objection. OAED then proceeds
to examine all the objections individually and readjusts accordingly. Each case is
examined separately before OAED produces the final list of successful applicants
public. The final results are announced and the local OAED offices (KPA2) issue
public invitations to successful applicants.

4.3 Reporting to the local OAED Offices

Reporting to the local OAED office is the first step to successful enrolment into the
programme. This first session with OAED does not guarantee acceptance into the
programme. During this session, successful applicants update the data on their
OAED profile and receive a document that entitles them to proceed and report to
the Municipalities.

Table 9: Objectives of first OAED session

Objectives of First OAED Session
▪ Update the applicants’ employment profile in the OAED database.
▪ Inform participants about public employment programmes that may (a) bring them
in contact with the world of employment, (b) give them the opportunity to acquire
new skills through the training programme and (c) assist them to activate their
capabilities which are not being used, especially because of long-term
unemployment.
▪ Explain clearly that the programme is fixed to eight months and that they are not
entitled to re-apply for Kinofelis.
▪ Inform beneficiaries about their rights and obligations and the relevant sections on
the Kinofelis website of the MOL, especially the guide for applicants and the shorter
information note of frequently asked questions.

26
 ▪ Inform them about training and explain that they have to choose to register – if they
wish – by the end of the first session otherwise they will be disqualified from the
process.
▪ Provide beneficiaries with a document that enables them to present themselves to
the Municipalities for the final examination and verification of the skills and
qualifications.

For a more detailed Guide to the Entry and Exit OAED Sessions, see Annex 14.

4.4 Reporting to the Executing Institutions

Following the first session with OAED, applicants have three to five days to
present themselves to the executing institutions, which are currently the
personnel departments of Municipal Offices, where they register and finalize their
recruitment. Municipal authorities should welcome successful applicants and cx
inform them about process of finalizing their recruitment. The information should
be clear and precise so that beneficiaries understand what they are expected to
provide under ASEP requirements.

Table 10: Documents succesful applicants submit to Muncipalities

Documents successful applicants should submit to Municipalities
1. All documents for the authentication of the application required for each post.
These are different for each individual position and consist mainly of
documents proving proof of educational level, specialization, professional
experience, and skills specified on the ASEP list of qualifications.
2. Self-declaration of responsibility for a clean criminal record (provided by the
Citizens Centres (KEPs)
3. Proof that they have children under the age of two or disabled children,
children with diabetes, or disabled partners in order to be entitled to reduced
employment schedule (when relevant).

The documents need to conform to the specifications of ASEP, i.e. to be recognized

by the Greek authorities, as valid. For example, for all educational titles obtained
outside Greece, it is necessary to have authentication by the Hellenic National
Academic Recognition Information Centre (DOATAP) or for professional
experience, an adequate number of security stamps from a National Security Fund.
Also, professional licences are required for some employment positions of
responsibility, for example for civil engineers. Municipalities are formally
expected to verify each document with the issuing authorities as is also done in
recruitment in the public sector.

After successful applicants’ qualifications are approved, the Municipalities will

send them the following documents, either in an electronic and/or paper form:
(a) Introductory Letter to Beneficiaries (Annex 15)
(b) Frequently Asked Questions addressed to Beneficiaries (Annex 16)
(c) Guide for Beneficiaries (Annex 17)

27
4.5 Replacement of successful applicants

Many selected applicants have had difficulties submitting the necessary

documents. This has also placed a burden on the executing authorities. First, some
of the selected applicants do not possess, or were confused about, the documents
they had to submit to finalize the recruitment process. As a result, they were
disqualified and replaced. Second, some successful applicants have been
disqualified because they did not have formal proof of prior professional
experience in sectors in which professional experience is not easy to obtain
because undeclared work is widespread. For example, it is common in the
construction sector for successful applicants to be disqualified because they do
not possess social security stamps.

Selected applicants who do not have the required documents, or the documents
they submit are not valid, are disqualified. However, if there are gaps or
inconsistencies between the application and the documents they submit to the
Municipalities, applicants are asked to provide the missing documentation for the
authentication of their application within a reasonable time. If they fail to provide
these documents within 30 days, they are then disqualified.

Executing institutions must inform OAED about the need to find replacements.
OAED should then invite the next successful applicants on the list of successful
applicants. The successful replacement applicants follow the same process as
other applicants.

Recommendation 2.8 Reduce the high numbers of successful

applicants who are disqualified due to
the lack of formal qualifications and
skills

28
5. Recruitment and dismissal of beneficiaries by
executing institutions
5.1 Recruiting beneficiaries

Executing institutions are required to issue an Administrative Act of Placement to

selected beneficiaries, signed by the legal representative, which plays the role of
an employment contract. This must be followed by an announcement of
recruitment n the ERGANI electronic system

During this process, it is important that the officials of executing institutions

inform beneficiaries about the period of employment and their rights and
obligations using the Guide to Beneficiaries (Annex 17). This should be given to
them in a printed form or sent to them in an electronic form during this meeting
with the executing institutions. While the employment status of beneficiaries is
approximating that of full-time employees, the JMD specifies that Kinofelis
beneficiaries have a specific employment status that does not fully conform with
labour rights in the public sector, i.e. they are not entitled to differentiated wages
based on hard and hazardous labour or educational qualifications and prior
experience, and most importantly their participation in the programme cannot
exceed eight months. Thus, it is important that the officials of executing
institutions explain clearly to beneficiaries what their obligations and
entitlements are under the Administrative Act they sign.

After the Administrative Act is issued, beneficiaries are ready to begin their
employment. Executing institutions must send the Administrative Act to OAED
one month after the start of employment in order for OAED to begin the
procedures for the first payment. Executing institutions should complete the
placement of beneficiaries within 30 days of issuing the Administrative Act. If
executing institutions attempt to place beneficiaries after this deadline, the costs
for their recruitment are no longer eligible.

Once the Administrative Act is issued and the beneficiaries report for work and
the executing institution has 30 days to register them in the electronic system
ERGANI of the MOL.

5.2 Registration of beneficiaries by executing institutions

Executing institutions must submit the following documents to OAED in print or

in electronic form.

Table 11: Documents for the registration of beneficiaries by executing institutions

Documents Information
Affirmation of accurate The executing institution affirms that
implementation by legal representative the programme will be implemented
of executing institution according to the JMD
Summary monthly statement by legal -Name and surname
representative of executing institution -VAT No

29
 -SSRN (Structural Reform Support
Service)
-No of IKA
-Date of birth
-Date of announcement of placement
-Bank account number in the name of
the beneficiary
-Period(s) of social security
-Net daily payments
-Net monthly payments
-Monthly contributions of
beneficiaries
-Monthly contributions of employers
-Total contributions beneficiaries and
employers
-Affirmation that the beneficiary has
no criminal convictions.

These documents should be submitted to the local OAED offices during the first
month after the start of employment. Executing institutions are entitled and
encouraged to recruit beneficiaries to assist the permanent staff with these
administrative duties linked exclusively to Kinofelis.

Table 12: Dismissal of beneficiaries

There is no formal procedure for the dismissal of beneficiaries, but it is possible
to dismiss them. Municipal authorities must write a report and submit it to the
MOL to justify the dismissal. The MOL then needs to annul the announcement
of the hiring to enable the beneficiaries to go back to OAED and claim the rights
they had as unemployed. In the few cases of dismissals that have been carried
out, no penalties were imposed. There is no procedure for monitoring and
checking whether claims for dismissal of beneficiaries by the executing
institutions are valid and lawful. These include:
-Founded claims that beneficiaries are unable or unwilling to perform the
tasks that they have been recruited for and cannot be used to perform other
similar tasks in the same or other projects that the Municipalities are
implementing.
-Founded claims that beneficiaries have failed to be present during working
times with no valid reason.
Executing institutions should use all possible means to resolve disputes and
avoid dismissals based on discrimination because of race, ethnicity, gender, or
sexual orientation. They should also provide evidence that the beneficiaries in
question cannot be used to perform similar tasks to the ones they were
recruited for to assist the completion of the project or other projects that the
Municipality is implementing.

Recommendation 2.12 Introduce a clear procedure for the

dismissal of beneficiaries.

30
6. Rights and obligations of beneficiaries
Beneficiaries in the programme have specific rights and obligations linked to the
programme for leave, working hours and salaries.

6.1 Different kinds of leave

Table 13: Different kinds of leave Kinofelis beneficiaries are entitled to

Leave of absence Beneficiaries are entitled to two days

of leave each month, but these are not
transferred to the next months if they do
not use them. The only exception to this
rule is when beneficiaries ask for leave
under “exceptional circumstances”. Only
in that case, days of leave are moved to the
next month. Beneficiaries are expected to
ask for leave in writing by filling a relevant
absence form in advance that needs to be
approved by their supervisor who along
with the beneficiary signs the form.
Kinofelis beneficiaries do not have their
salaries reduced because of these two
days of absence per month.
Health leave A medical certificate is required for
health leave, but it is only for 13 days in
total. If beneficiaries exceed the 13 days of
health leave, then their employment
period is extended until they have
completed 200 person days and no more
than nine calendar months and 15 days.
Pregnancy leave Pregnant beneficiaries are entitled to
15 days of absence plus absences for
medical tests that are conducted during
working hours after medical certificate
that confirms the necessity for these tests.
Birth leave In the case of threat to the pregnancy,
birth and after-birth, beneficiaries are
entitled to remain in the programme and
postpone their participation for a
maximum of 16 months. To do so, they
have to submit a certificate by the doctor.
Parental leave Parents of children between the ages
of four and 16 years old are entitled to ask
for absence to visit their children’s school
up to two days throughout the duration of
the programme. Salaries of the
beneficiaries are not reduced because of
this.

31
 Leave for those employed in Beneficiaries employed in schools,
educational or care structures kindergartens or day-care centres are
entitled to two days of absence a month
and have a right to be on leave during
school holidays (Christmas, Easter,
summer). In this case, their employment
period is extended up to 200 person days,
maximum for nine months and 15 days.
Wedding leave Beneficiaries are entitled to five days
of leave after their wedding after
permission from the Municipalities.
Leave in case of death of a close person Beneficiaries are entitled to two days
of leave after the death of family members
after permission from the Municipality.
Leave in case of seminars or training Some professions, such as social
workers and psychologists, are entitled to
leave if they receive permission from the
Municipality.

Recommendation 2.13 Allow Kinofelis participants to

aggregate leave days to enable them to
take leave in one period.

6.2 Working hours

Table 14: Beneficiaries’ working hours and days

Working Hours Working Days

Beneficiaries with training 8 hours a day 5 days a week

Beneficiaries with training 8 hours a day 4 days a week+1

training day
Beneficiaries mothers or 7 hours a day (prior or after 5-4 days a week
fathers with children from the start of the working day depending on training
9 months to 30 months option.
Beneficiaries who are 7 hours a day 5-4 days a week
disabled or have disabled depending on training
children (67%) or diabetes option
or partners with disabilities
(over 80%)

Recommendation 2.24 Introduce the voluntary option of part-

time work to provide flexibility for
participants.

32
6.3 Salaries

Table 15: Salaries of Kinofelis beneficiaries

Age groups Fixed wages Fixed wages per Leave
per day month allowances
25 years old €19.81 €495.25 No
and over
Below 25 years €17.27 €431.75 No
old

The salaries of the beneficiaries are subject only to age differentiations, with those
below the age of 25 years old receiving lower salary than the minimum wage.
Moreover, beneficiaries are not entitled to leave allowances, such as holiday
allowances. These deviations are legitimized by the active labour market
character of the programme.

Recommendation 2.26 Introduce different pay-scales within

the program to better attract higher
skills required

33
7. Training
Training is elective and voluntary. This is an added benefit and is not necessarily
related to the work undertaken in the programme. This training takes place off-
site and begins during the second month of the public employment programme.
The MOL issues a Call to Training Centres (Annex 18), which lays down the
terms of reference for the vocational training centres in order to compile a list of
available centres for beneficiaries to select.

Beneficiaries are given a voucher and then they can select a Centre for Vocational
Training (KEK) from the list of accredited KEKs to use for training. The current
option is limited to Training in Information Technology (IT), which also has an
additional component of seminars on Entrepreneurship and Social Economy. The
IT training program is for 120 hours and has three levels of knowledge: beginners,
basic, advanced. The content of the program is limited to the following: Word,
Excel, Social Media, Power Point with some specialization on public portals such
as those of OAED, TAXIS or ERGANI.

Beneficiaries who have already obtained a certificate of advanced level in IT

training are not allowed to take part in the training. At the end, a certificate is
granted to participants after examination. The training takes place once a week
after the first month on the last day of the week. Trainees work four days and
train one day a week. To get a certificate, beneficiaries have to complete 90% of
the total training hours (120) or 80% if they have disabilities, are hospitalized,
pregnant or in post-natal phase. They must also pass an exam.

The KEKs are obliged to provide the educational material, to give beneficiaries
light refreshments and drinks if the training lasts for more than three hours, to
pay the salaries of the instructors, to keep the accounting books, to publish a daily
confirmation of attendance for beneficiaries, and to send a monthly attendance
report to the Municipalities. An agreement between the beneficiaries and the
KEKs must be signed, which outlines all the obligations and rights of each party.
The KEKs are obliged to post the attendance list 20 minutes after the start of the
training.

In addition, after completing the training, the KEKs are obliged to follow the
beneficiaries for six months and monitor their integration into the labour market.

The NSRF Executive Structure is responsible for signing the agreements and
monitoring the KEKs. At the end of six months, the KEKs must submit a “report on
the progress” of each beneficiary to the electronic platform of the MOL. The
beneficiaries are obliged to inform the KEKs of their progress including any
changes in their employment status, which is then transmitted to OAED. The
beneficiaries accept the right of the MOL to use their personal data according to
the Data Protection Authority principles. According to the Kinofelis call for
training, the institution responsible for overseeing the processes and conducting
quality assurance and inspections is the NSRF Executive Structure.

Beneficiaries who do not select the training option, work five days a week.

34
This option is aimed at reducing the obstacles beneficiaries will probably face in
the labour market after the programme ends. Coupled with the OAED sessions,
they constitute the backbone of the activation aspect of the programme.

Recommendation 2.14 Investigate allegations of abuse by

KEKs and explore alternative training
delivery mechanisms and/or possible
measures to improve the quality of
training which they provide.

Recommendation 2.15 Expand the menu of transversal

training offered to beneficiaries

Recommendation 2.16 Introduce greater flexibility in the

scheduling of training

Recommendation 2.18 Conduct workshops on the social

economy in the Municipalities

Table 16: On-the job training

On-the-job training is very important for activation as it assists beneficiaries:
• To become more productive in performing her/his duties assigned under
the programme;
• To avoid workplace accidents and maintain health and safety standards at
work; and
• To make better use of the job opportunities to increase the beneficiary’s
chances of transitioning to sustainable employment after exiting the
programme.

The executing institutions and the Municipalities have directorates, which

should be able to provide training for Kinofelis beneficiaries, especially on
technical, health and safety issues. If Kinofelis expands to include smaller
executing institutions, their capacity to provide this basic training should be
enhanced. Moreover, on-the-job training takes place through informal avenues
and grows out of the collaboration and mutual exchanges between more
experienced, more qualified personnel and beneficiaries with less experienced,
and less qualified beneficiaries. This informal aspect of Kinofelis should be
strengthened and encouraged.

On-the-job training may provide access to new employment sectors and

enhance prospects of future employment in the labour market. For example, an
unemployed teacher, whose professional experience is mainly conducting
academic research on primarily school education, may enhance his/her CV by
acquiring new skills, knowledge and experience if, during his eight months in
Kinofelis, he is employed as a seminar instructor teaching art and literature to
primary school children in the context of a project for the support of the
Municipal Library. After exiting Kinofelis he/she can search for a job in a new

35
sector, in which demand is rising, that of educational seminars for children in
Museums and Galleries.

Currently there is no certification for on-the-job training.

Recommendation 2.17 Capitalize on the opportunities for on-

the-job training created under
Kinofelis

36
8. Reporting, Monitoring and Quality Assurance
Executing institutions are responsible for monitoring beneficiaries and projects.
The MOL has the primary responsibility for the overall monitoring and evaluation
of the programme. However, to do this effectively the MOL requires close
collaboration with the executing agencies, in particular in collecting relevant data.

8.1 Method for reporting beneficiaries’ attendance schedules and

payments

Beneficiaries are assigned to specific departments in the executing institutions. In

the Municipalities, these are the different directorates that supervise the
execution of projects. They are responsible for verifying that beneficiaries show
up for work and perform their duties and record this on the Attendance Sheets
(Annex 19). They are also responsible for the training, the transportation to and
from projects, and the oversight and coordination of beneficiaries. Their
personnel departments take over the monitoring and reporting of their activities
and output.

For example, if a beneficiary is employed for eight months as a psychologist in the

social support centre of a Municipality, the department of social support and
health of the Municipality will have to provide training to verify that the
beneficiary is present and works to complete the tasks assigned to her for the
given hours and days of the week. In collaboration with the Mayor’s office, the
same department should arrange for municipal transport from and to the site of
the social support centre and the oversight and coordination of the activities of
the beneficiary with the rest of the project team and the permeant staff of the
centre.

After the departments complete the attendance sheets, the personnel department
must send a monthly list to OAED of working days per beneficiary. Based on these,
OAED processes payments for those who do not violate the terms of the
agreement. The process is handled by a physical exchange of documentation
between executing institutions, and OAED’s central offices.

8.2 Reporting on project implementation

Municipalities are the primary institution responsible for the successful execution
of projects. They are expected to ensure that projects are well designed; that
beneficiaries have all the materials, tools and safety equipment to perform their
duties; that they have access to places of work; and the quality standards are met
and that safety regulations are adhered to and the existing reporting and
monitoring mechanisms and institutional arrangements are used. From this
perspective, Kinofelis projects should be held to the same standards as any other
project being implemented by the Municipalities or in the future other executing
agencies. The Monthly Attendance Sheets provide the only source of information
about daily use of workers per project. This component is essential for both
Reporting and Monitoring of Kinofelis.

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8.3 Administrative checks and inspections

Two institutions are responsible for conducting controls and quality assurance on
the implementation of the programme: the NSRF Executive Structure and OAED.
Both these institutions are entitled to perform administrative inspections and site
visits to monitor and control the implementation of the project to ensure that they
conform with the terms and conditions of the funding of the programme.

According to its mandate, the NSRF Executive Structure is responsible for

checking the eligibility of different costs. During inspections and site visits, the
NSRF Executive Structure is responsible for checking administrative files on the
implementation of the project, including the files of the beneficiaries, which are on
paper rather than in an electronic form. The administrative verification of these
documents is based only on NSRF criteria and concerns only the part of the project
funded by NSRF. The NSRF executive structure does not have the technical
capacity nor the resources to monitor or assure the quality of projects. Thus, the
executing institutions are responsible for the quality assurance of their own
projects following the guidelines of the MIS.

OAED is also entitled to check if executing institutions conform with the rules on
the payments and social security contributions of the beneficiaries. These are,
however, largely administrative checks.

Recommendation 2.19 Institutionalize site visits as an

oversight mechanism using Reporting
Templates for Site Visits (Annex 20)

8.4 Questionnaires

As this programme is co-funded by the ESF, the ESF micro data questionnaires are
obligatory for all beneficiaries as part of the funding agreement. Municipalities are
required to ensure that all beneficiaries complete this questionnaire and that the
completed questionnaires are send back to MOL.

See Microdata questionnaire in Annex 21.

According to the JMD, the institutions involved in the programme may also
conduct research for the programme, but the beneficiaries need to consent to the
use of their personal data. During the previous phases of the program, OAED on
applicants and beneficiaries was used by the MOL to evaluate and make changes
to the program. Moreover, applicants and beneficiaries were requested to
complete a baseline survey and some of them to also participate in focus group
discussions. The survey was conducted online, and beneficiaries were provided
with the website link when they applied, when they entered and when they exited
the programme. See Baseline questionnaire in Annex 22.

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8.5 Health and Safety Standards

The question of the responsibility for health and safety issues is pending. The
Labour Inspection Corps (SEPE) refused to do labour inspections during the
previous Kinofelis phases because they were outside the framework of existing
labour rights. In the current Kinofelis, labour rights are in conformity with existing
labour standards but again there are questions about where the responsibility lies
because it is the product of a JMD rather than a law, and legitimized and funded as
an active labour market measure. At the same time, if asked, SEPE can perform
health and safety inspections because it is a horizontal issue that falls under its
responsibility. This issue is crucial if Kinofelis is to expand and include executing
institutions in the private sector, including NGOs and social enterprises.

Recommendation 2.20 Institutionalize regular health and

safety checks as a standard feature of
Kinofelis

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9. Supporting workers to exit

9.1 Providing proof of employment

After the end of the eight months programme, beneficiaries are released without
compensation. They are entitled to proof of employment, which is issued by the
executing institutions – the Municipalities. A standardized certificate of
employment (Annex 23) may be signed by their legal representative at the end
of the eight months, which will be printed or sent electronically to all beneficiaries.
The certificate should specify the exact tasks that beneficiaries performed during
the eight months.

9.2 Exit sessions with OAED

The unemployed who apply and are selected for Kinofelis should have a total of
two sessions with OAED counsellors. (For the first session, see Section 6)

The second session is scheduled for the end of the programme and focuses on the
activation of beneficiaries after the end of the programme. This final session takes
place after they have exited their period of employment in Kinofelis and they have
registered again as unemployed in OAED and obtained their unemployment card.

Processes are underway to strengthen counselling capacities in OAED as part of

the development of an Open Framework approach to ALMPs, which will also
benefit Kinofelis participants.

Table 17: Objectives of the OAED exit session

1. Inform beneficiaries about prospects of finding employment after the

end of the programme, including available positions and sectors where
demand has risen.
2. Inform them of whether they are eligible to receive unemployment
benefit after the end of the programme.
3. Give them guidance on how they can best use the skills and professional
experience they have acquired during Kinofelis to re-enter the labour
market.
4. Inform them about available opportunities for participation in other
ALMPs.

For more detailed information, see Guide to the Entry and Exit Sessions with
OAED in Annex 14.

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 Recommendation 2.21 Introduce exit counselling session with
OAED prior to exit

Recommendation 2.22 Improve the visual “branding” and

increase the visibility of Kinofelis
projects through the use of logos,
banners, signs, flags.

Recommendation 2.23 Introduce personalized letters of

recommendation as a regular feature
of Kinofelis.

Recommendation 2.25 Partner with employers’ organizations,

with trade unions and with other
stakeholders to enhance employability
effects of the programme.

Recommendation 3.5 In an open framework, develop clear

guidelines on how scarce resources are
to be allocated to different ALMPs.

A detailed analysis of the Recommendations can be found in the document

“Kinofelis: ILO Recommendations”.

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For more information, visit our website:
www.ilo.org/devinvest
International Labour Office
Development and Investment Branch
4 Route des Morillons
CH-1211 Geneva 22
Switzerland
Email: [email protected]

The information and views set out in this manual are those of
the author(s) and do not necessarily reflect the official opinion
of the European Union. Neither the European Union institutions
and bodies nor any person acting on their behalf may be held
responsible for the use which may be made of the information
contained therein.