ILO External Collaboration Contract Terms of Reference: Social and Solidarity
Economy Diagnostic and Policy Development in Iraq – Lead consultant
I. Background and purpose
The forced displacement crisis has increased in scale and complexity in recent years. According to UNHCR, 117.3 million people were forcibly displaced worldwide at the end of 2023. Forcibly displaced persons (FDPs), including refugees and internally displaced persons (IDPs) face specific vulnerabilities, including loss of assets, limited rights, lack of opportunities, a protection risk as well as a risk to be out of school, and a lack of planning horizon. In addition, the communities hosting FDPs also struggle to pursue their own development efforts
In response to the considerable challenges facing FDPs and host communities, a partnership initiative titled: ‘PROSPECTS' Partnership for improving Prospects for host communities and forcibly displaced persons, was launched by the Government of the Netherlands in 2019, bringing together the International Finance Corporation (IFC), the International Labour Organization (ILO), the UN Refugee Agency (UNHCR), the UN Children's Fund (UNICEF) and the World Bank. Through the PROSPECTS partnership, the five partner agencies aim to leverage their comparative advantages and areas of expertise to programme complementary and interdependent interventions that address education and skills, employment and protection challenges. The partnership spans eight countries, namely Egypt, Ethiopia, Iraq, Jordan, Kenya, Lebanon, Sudan, and Uganda and covers in its Phase II the period 2024-2027.
1. Status of the Social and Solidarity Economy (SSE) in Iraq
In Iraq, the Social and Solidarity Economy (SSE) already exists in different forms, even though it is not yet formally recognized or clearly defined. While the term “SSE” is relatively new, its core ideas, such as cooperation, mutual support, and community-based activities, have long been part of Iraqi society. These are reflected in traditional and informal structures like cooperatives, associations, and self-help groups.
In recent years, Iraq has faced major economic and social challenges, including political instability, internal displacement, high unemployment, especially among youth and women, limited access to finance for small businesses, and a large informal economy. These challenges highlight the need for more inclusive and flexible economic approaches that can complement both the private and public sectors.
The SSE provides a promising way to respond to these challenges. It supports inclusive growth, strengthens communities, and promotes sustainable livelihoods. SSE entities, such as cooperatives, social enterprises, and community-based organizations, can create decent jobs, support local economic development, enhance social cohesion and improve resilience of vulnerable groups, including displaced people, returnees, and host communities.

However, the development of the SSE in Iraq is still limited by several challenges. These include the lack of a clear legal and regulatory framework, fragmented institutional coordination, limited access to finance and business support services, and lack of reliable data and statistics informing SSE mapping, policy and programming.
2. ILO PROSPECTS Iraq support to the SSE
Within this context, and under the framework of the PROSPECTS Programme, specifically Outcome 2.03.05, the ILO is supporting the Government of Iraq in developing a national SSE policy. This effort is aligned with Diwani Order No. (61) of 2025 issued by the Council of Ministers, which established a national committee tasked with developing a national policy on the SSE.
Following a series of meetings, the national committee agreed to adopt the ILO approach for developing the SSE policy in line with the ILO Resolution on decent work and the SSE. In February 2026, the ILO conducted a two-day orientation workshop to formally launch the SSE policy development process, introduce the concept and principles of SSE and present the policy development roadmap. This roadmap, which was approved by the national committee, includes a series of technical and consultative steps to ensure that the policy is inclusive, participatory, and based on evidence.
To support the committee in implementing all phases of the policy development process, the ILO is seeking a qualified international consultant to carry out the full scope of the consultancy, from initial assessment to policy design.

II. Objectives of the consultancy
The overall objective of this consultancy is to support the development of a national SSE policy for Iraq in two phases:
Phase one: Diagnostic Study of the SSE in Iraq
• Analyse the forms taken by the SSE
• Assess priority needs, opportunities and challenges for strengthening the development of the SSE
• Assess the contribution of the SSE to current and potential national development strategies
Phase two: Design of policy options and intervention matrix
• Based on findings of the diagnostic in phase 1, identify and prioritize the most impactful, cost-effective, and context-appropriate policy options for SSE development in Iraq.
• Ensure coherence and stakeholder ownership among government, social partners, SSE representatives, private sector actors, and civil society organizations.

III. Detailed tasks

Phase one: Diagnostic study on the SSE in Iraq
Under this phase, the consultant will:
• Conduct a desk review of existing relevant literature on the SSE and its trends at regional levels as well as in Iraq including on its entities
• Conduct a desk review of relevant policies, legislation and national strategies related and/or impacting the development of the SSE and its entities,
• Map relevant SSE stakeholders in particular main SSE representatives at
national, regional and local levels, and relevant public authorities in charge of the development of the SSE and/or its entities
• Elaborate the research methodology and tools (e.g., interview guides, questionnaires) for assessing the SSE, its forms, and current and potential contribution to decent job creation for men and women, including vulnerable host communities, refugees and internally displaced persons
• Assess the challenges and opportunities for the development of the SSE and its entities in selected sectors with high potential for decent job creation
• Produce a diagnostic analysis report including the SSE landscape in Iraq (incl. forms of the SSE), stakeholders mapping, employment contribution, good practices of the contribution of SSE entities to national priorities, analysis of challenges and opportunities for SSE development in general and in sectors with high potential for decent job
creation, women’s economic participation, and refugee and returnee inclusion. The report will include recommendations for future interventions.
• Present the diagnostic report in a validation workshop with key stakeholders
Phase two: Design of the Policy Options and Intervention Matrix
The objective of this phase is to translate diagnostic findings into evidence-based, feasible, and prioritized policy options.
Under this phase, the consultant will:
• Synthesize key findings from part 1 highlighting constraints, priority sectors, target groups, and systemic gaps (legal, institutional, financial, market)
• Translate findings into clear, actionable policy problem statements and cluster them into 5–7 priority policy areas
• Propose 2–4 policy options per priority area, based on good practices and stakeholder inputs and ensuring relevance to the Iraqi context
• Develop a policy option and intervention matrix including policy challenges, proposed interventions, expected impacts, feasibility and cost considerations, role and responsibilities of stakeholders and indicative timeframe
• Facilitate consultations at national, regional and local levels, to validate challenges and refine options
• Prioritize policy options using agreed criteria (impact, feasibility, cost-effectiveness, relevance) through a participatory process
• Finalize and validate the matrix by incorporating stakeholders feedback, ensuring coherence and feasibility
• Present the final matrix to the Diwani Order Committee for endorsement

IV. Expected deliverables

Deliverables Description Timeframe
Phase one: Diagnostic and Baseline Study on SSE in Iraq
1. Inception report This document should include detailed work plan with a tentative list of the stakeholders to be interviewed; Specific research questions; interview and FGD guides / questionnaires; Initial bibliography for the literature review. one week after contract signature
2. Draft diagnostic report based on reviews, interviews and FGDs The draft report should include a literature review; Analysis of the SSE landscape e.g. forms of SSE, share of employment, legal environment, assessment of challenges faced by SSE entities, opportunities of SSE in terms of sector with high growth potential and increased women and youth participation; inclusion of vulnerable groups including refugees and returnees, case studies of good practices of SSE entities highlighting ongoing SSE initiatives in the country; Recommendations for future interventions and the way forward;
Complete list of interviews; Bibliography; Annexes on the organizations and people interviewed; interview questionnaires; list of stakeholders identified
during the mapping exercise Five weeks after contract signature
3. Validation workshop Presentation of key findings to stakeholders and facilitation of a validation workshop Six weeks
after contract signature
4. Final diagnostic report Revised report incorporating feedback from ILO and stakeholders Seven weeks after contract
signature
Phase two: Design of the policy options and intervention matrix
5. Consultation summary report Summary of stakeholder consultations, including key inputs, areas of consensus, and outstanding issues Nine weeks after contract
signature
6. Draft policy options and intervention
matrix Structured matrix outlining policy challenges, proposed interventions, expected impacts, feasibility, and responsible entities Ten weeks after contract signature
7. Final validated matrix Revised and prioritized matrix reflecting stakeholder feedback and consensus Eleven weeks after contract
signature
8. Final presentation to the national
committee PowerPoint presentation and supporting materials for validation and endorsement by the Diwani Order Committee Twelve weeks after contract signature

V. Reporting arrangements
Throughout the assignment, the consultant will work under the direct supervision of PROSPECTS Entrepreneurship and Financial Inclusion Technical Officer and the ILO COOP/SSE Unit in Geneva, under the overall guidance of PROSPECTS Project manager in Iraq.

Deliverables shall be submitted in line with the requirements explained in this TOR within the deadlines. The deliverables are subject to the approval of the ILO.

VI. Detailed qualifications, experience and skills required
• Advanced University Degree in law, social and solidarity economy, social sciences or another relevant field
• At least five years of experience in SSE and/or cooperative development
• In-depth knowledge of international experiences and practices in the field of Social and Solidarity Economy.
• Proven experience in conducting policy analysis, and research, and policy development
• Demonstrated experience in legal analysis is an asset
• Experience in designing policy frameworks, strategies, or intervention matrices
• Experience working in fragile, conflict-affected, or displacement contexts is highly desirable
• Previous experience in Iraq or the region is a strong asset
• Strong analytical and research skills, including ability to synthesize complex information
• Ability to verbally convey complex technical issues to a diverse audience
• Excellent analysis and report writing skills, including ability to elaborate high quality documents in English, and Arabic language is an asset.

• Demonstrated ability to develop presentations and verbally convey complex technical issues to a wide range of stakeholders
• Willing and able to travel frequently to Iraq, and stakeholder engagement if needed.

VII. Indicators for evaluation of outputs
The quality of the consultant’s outputs will be assessed based on the following criteria:
• Relevance and accuracy: Deliverables are evidence-based, analytically sound, and aligned with the objectives of the assignment
• Quality of analysis: Clear, structured, and well-substantiated analysis, including appropriate use of data and stakeholder inputs
• Clarity and coherence: Outputs are well-organized, logically structured, and clearly written
• Practicality and feasibility: Recommendations and policy options are realistic, actionable, and adapted to the Iraqi context
• Alignment with ILO standards: Outputs reflect relevant ILO frameworks and approaches on the SSE and decent work, and crisis response
• Stakeholder integration: Effective incorporation of inputs from consultations and validation processes
• Timeliness: Deliverables are submitted within agreed deadlines
• Responsiveness to feedback: Ability to incorporate comments and revise outputs accordingly

VIII. Payment terms
1- Progress payments as per the below table:

Payment
number Deliverable included Timeframe
1st

Upon the completion of deliverables # 1,2,3, and 4. To the satisfaction and acceptance of the ILO 1 August 2026 to be as per the time frame of deliverable 4

i.e. 7 weeks after the contract
signature
2nd Upon the completion of deliverables # 5,6,7 and 8. To the satisfaction and
acceptance of the ILO 15 September 2026 o be as per the time frame
of deliverable 8

2. In case of progress payments, payment schedule and timeframe shall be based on the number of days corresponding to the deliverables.
3. The daily fee shall be established within the fee range corresponding to the complexity of assignment and the external collaborator’s country of residence, as per the ILO Daily Fee Range Table.

4. If the external collaboration contract is to be established in local currency, the amount will be converted from USD to local currency using the United Nations Operational Rate of Exchange effective at the time of establishing the contract.

IX. Travel arrangements (if applicable)
- The ILO will afford the cost of a two-way flight for the shortest and most cost-effective route from the country of residence to Erbil/Iraq and the way back.
- In case VISA is required, the ILO will afford the VISA cost
- All movements inside the city of Erbil are under the full responsibility of the consultant
- In case travel to other Iraqi governorates are needed, the ILO shall be arranging the movement/s as per UN rules and regulations.

▶ Additional information on the ToR (for internal use)

Title of advertisement:
(*to appear on UNGM)

Summary of work to be performed:
(*to copy in the “Description” field in Jaggaer for display on UNGM)

Dear Bidder,
The International Labour Office (ILO) is looking for an individual consultant to undertake work as an External Collaborator.
Below is a summary of the work to be performed:
Under the PROSPECTS Partnership programme, is seeking an international consultant to support the diagnostic assessment and policy development process for the Social and Solidarity Economy (SSE) in Iraq.
The consultant will support the Government of Iraq, through the National SSE Committee established under Diwani Order No. (61) of 2025, in developing an inclusive and evidence-based national SSE policy aligned with the ILO Resolution on decent work and the Social and Solidarity Economy. The consultancy will be implemented in close coordination with the relevant government institutions, social partners, and other key stakeholders, under the supervision of the ILO.
The assignment will be implemented in two phases. The first phase focuses on conducting a comprehensive diagnostic study of the SSE in Iraq, including a review of existing literature, policies, and legislation; mapping of SSE stakeholders; assessment of SSE forms, priority sectors, employment contributions, and challenges; and analysis of opportunities for inclusive job creation, particularly for women, youth, refugees, internally displaced persons, and host communities. The consultant will produce a diagnostic analysis report and present its findings through a validation workshop.
The second phase focuses on translating the diagnostic findings into concrete, prioritized, and feasible policy options. The consultant will develop a policy options and intervention matrix outlining key policy challenges, proposed interventions, expected impacts, feasibility and cost considerations, roles and responsibilities of stakeholders, and indicative timelines. This phase will include facilitating national and subnational consultations, refining policy priorities through a participatory process, and presenting the final validated matrix to the national committee for endorsement.
The assignment aims to support the Government of Iraq in advancing a coherent and integrated SSE policy framework that promotes inclusive growth, decent work, enterprise development, and social cohesion, particularly in contexts affected by displacement and fragility.
If you are interested, please express interest and follow the instructions attached to consult the detailed terms of reference and other relevant information in the ILO e-sourcing platform.
Please submit your proposal before the specified deadline. Thank you.

Complexity of assignment (as per IGDS 695):

☐ A Projects or technical tasks of a narrow scope and low complexity
☐
B Projects or technical tasks of moderate complexity with either broad scope/limited depth or restricted scope/considerable depth
☒ C Projects or technical tasks of broad scope and considerable depth
☐ D Projects or technical tasks of broad scope, high complexity and impact
☐
E Projects or technical tasks of exceptionally complex programmatic scope, unusual complexity and/or sensitive nature

Required experience and qualifications (as per IGDS 695):

☐ 1 Limited technical skills and less than 3 years of relevant experience
☐ 2 Limited technical skills and more than 3 years of relevant experience
☒ 3 Specialized degree or training in the relevant field and more than 5 years of relevant experience
☐ 4 Specialized or technical knowledge and skills and more than 10 years of extensive
relevant professional experience
☐ 5 Highly specialized skills and expertise with more than 15 years of extensive relevant
experience
Expected contract duration:
• Expected start date of assignment: 1 June 2026
• Expected end date of assignment / full delivery: 31 October 2027

Confirmation:
The external collaboration contract is the appropriate type of contract for the work to be undertaken.
The Terms of Reference are timebound and clearly output-based and the complexity vs experience/qualifications matrix has been carefully assessed above.
Is this Excoll selection process subject to an exception as defined in paragraph 23 of IGDS 695?

Yes ☐ No ☒
Note: Paragraph 23 states: “If it is in the interest of the ILO, due to urgency of delivery or specialisation, an exception may be approved by the Deputy Director-General, the appropriate Assistant Director-General or Regional Director for a specified contract. The requesting organisational unit will enter the terms of reference and payment terms in the ILO e–Sourcing platform, selecting the specific process for exceptions, which will be published by the UNGM/on the UNGM website for the directly selected external collaborator to submit their application. The report of the exception process should be uploaded in IRIS, together with the finalized terms of reference, payment schedule and a copy of the email approval from the Deputy Director-General, Assistant Director-General or Regional Director.”

How to apply

To apply for the job, please click on the provided link and follow the instructions on the website. Make sure to read the job description carefully before submitting your application. You may be asked to create an account.

UNGM Link: Call for External Collaborator Social and Solidarity Economy Diagnostic and Policy Development in Iraq – Lead Consultant (ILO Iraq- PROSPECT project)