Call for Experts: Ex-ante analysis of the Employment Strategy of the Republic of Serbia 2027-2032

Support to the Ministry of Labour, Employment, Veteran and Social Affairs for the preparation of the Employment Strategy of the Republic of Serbia 2027-2032 and Action Plan 2027-2029:

Ex-ante analysis of the Employment Strategy of the Republic of Serbia 2027-2032

1. Background and Context

The Swiss Agency for Development Cooperation (SDC) assigned NIRAS Germany to implement the project “From Education to Employment (hereinafter: E2E) – Phase III that commenced in May 2024 and will last until 30^th April 2028.

The E2E, through NIRAS, supports evidence-based approaches in the employment policies in Serbia. At the national level, the key line ministry in charge of the implementation of the employment and employability policies in Serbia relevant for implementation of the E2E is the Ministry of Labour, Employment, Veteran and Social Affairs (hereinafter: MoLEVSA). The E2E also closely cooperates with several other relevant institutions and organizations i.e. the National Employment Service, the Agency for Qualifications, the Office for Dual Education and National Qualification Framework, the Chamber of Commerce and Standing Conference of Towns and Municipalities. The E2E supports national policy partners in improving legal and strategic framework for employment, as well as in establishing the system of CGC support and accreditation of informal trainings.

On the local level, the E2E aims at enhancing employability in fifteen districts, through cooperation with local partners, mainly civil society organizations, that establish and accredit career centres entitled Job Info Centre. Through the promotion of CGC services for pupils/students as well as the job seekers, the E2E facilitates their entry into working life.

The overall goal of the E2E is that women and men, including vulnerable groups, benefit from new or better employment opportunities through improved employment support services and industry–led training offer. The project has three outcomes. This Terms of Reference is primarily related to the achievement of Outcome 3, Output 4.1:

Outcome 3 (Enabling Environment): Sub-national and national policy makers and implementers create a more enabling institutional and policy environment for employment and employability.

Output 4.1 – Goal: MoLEVSA adjusts the legal and strategic framework and changes their “Active Labour Market Measures” (ALMMs) practices to enable the allocation of public funds towards CSOs (Employment Law; Youth Guarantee Initiative, Occupational Standards).

Within this output the E2E is aiming to support the MoLEVSA as an institutional focal point for the E2E in the development of the Employment Strategy of the Republic of Serbia 2027-2032 and corresponding Action Plan for the implementation of the Employment Strategy in the period 2027-2029, as it is envisaged in the Memorandum of Understanding between the MoLEVSA and the Swiss Confederation/Swiss Agency for Development and Cooperation signed on December 6^th 2023, stipulating a detailed list of policy activities that will be supported through E2E/NIRAS.

According to the Law on the Planning System of the Republic of Serbia[1], public policy documents are produced in accordance with the results of an ex-post and ex-ante analysis. In previous period, the E2E supported MoLEVSA in preparing several analyses in accordance with the Law on the Planning System, including ex-post and ex-ante analyses for the preparation of the Еmployment Strategy of the Republic of Serbia 2021-2026[2] (hereinafter: the Employment Strategy 2021-2026).

The ex-post impact analysis of the Employment Strategy 2021-2026 is developed by the MoLEVSA and will be available for the experts after the Contract signed.

2. Objective of the Assignment

The objective of the assignment is to conduct the ex-ante impact analysis of the Employment Strategy of the Republic of Serbia 2027-2032 (hereinafter: the Employment Strategy 2027-2032) in line with the Law on the Planning System of the Republic of Serbia and the Regulation on the methodology for development of public policy documents[3] (hereinafter: Regulation).

The tasks of the Experts shall be:

Task 1: To develop the methodology and work plan for conducting ex-ante impact analysis of the Employment Strategy 2027-2032;
Task 2: To conduct ex-ante impact analysis of the Employment Strategy 2027-2032.

The ex-ante analysis (Task 2) should be developed in line with the Regulation where the concrete steps and content of the analysis are described including the following:

analysis of the existing situation in the field of employment policy, identification of the problems need to be solved and their causes and consequences i.e. the change that needs to be achieved;
establishment of the goals and objectives of the public policy,
for the monitoring the established goals and objectives of the Employment Strategy 2027-2032, the performance indicators should be determined (effect indicators at the level of the goal; outcome indicators at the level of objectives) and the projections of the target values for each indicator should be calculated;
identification of the policy options/concepts – potential measures, and/or groups of measures for achieving the objectives;
analyses of the effects of options – potential measures and risks for implementing each of the options;
selection of the optimum option or optimum combination of the reviewed options – a measures for achieving goals;
identification of the resources required for the implementation of the optimal option – measures, monitoring the implementation of the Employment Strategy 2027-2032, determining and evaluating the impact, and reporting on the achieved effects.

The ex-ante impact analysis of the Employment Strategy 2027-2032 should take into account the results and recommendations of the ex-post analysis, other reports on the implementation of the Employment Strategy 2021-2026 (annual reports on the implementation of the Action plans, analysis on reports on specific labour market measures, etc.) as well as other analysis referring to the employment policy.

The assignment will be implemented by an Expert Team composed of two key experts, which shall submit a single joint offer and work collaboratively on all tasks under this assignment.

The mandate shall be performed in close cooperation and consultation with MoLEVSA and E2E PIU.

3. Expert Team Profile

The task will be implemented by an Expert team consisting of two key experts covering the required expertise. The team members will jointly contribute to the implementation of all tasks described in these Terms of Reference.

The proposed key staff shall have the following qualifications, experience and skills:

1. Key Expert 1

University degree in social, legal or economic sciences
At least 10 years’ working experience with university degree
Experience in conducting analyses, evaluation or other written materials in the field of employment policy
Sound understanding of policy, institutional and legal employment context in the Republic of Serbia
Sound understanding of strategic documents of employment policy in the European Union
Strong familiarity with indicators for monitoring the labour market in the Republic of Serbia (Republic Statistical Office, National Employment Service)
Strong familiarity with European Union indicators for monitoring the labour market
Familiarity with the Law on the Planning System of the Republic of Serbia and accompanying bylaws
Analytical, writing and reporting skills

2. Key Expert 2

University degree in economic science
At least 10 years of experience in the field of economy/statistics
Experience in conducting data-based analyses/evaluations of the employment policy
Experience in projections of labour market indicators and setting indicators for monitoring public policy documents
Sound understanding of policy, institutional and legal employment context in the Republic of Serbia
Strong familiarity with indicators for monitoring the labour market in the Republic of Serbia (Republic Statistical Office, National Employment Service)
Strong familiarity with European Union indicators for monitoring the labour market
Familiarity with the Law on the Planning System of the Republic of Serbia and accompanying bylaws
Excellent data collecting and processing skills

4. Deliverables

The deliverables of the assignment shall comprise:

For the Task 1:

Draft methodology and work plan for the development of the ex-ante impact analysis of the Employment Strategy 2027-2032 including the list of stakeholders to be consulted – by April 15^th 2026;
After implemented consultation process with MoLEVSA and E2E PIU, final methodology and work plan – by April 22^nd

For the Task 2:

First draft of the ex-ante impact analysis of the Employment Strategy 2027-2032 – by May 25^th 2026;
After implemented consultation process with MoLEVSA and E2E PIU, final ex-ante impact analysis – by June 15^th, 2026;
Updated ex-ante impact analysis of the Employment Strategy 2027-2032[4] – by December 15^th, 2026.

All the deliverables, for all tasks, should be created in close communication with the main beneficiary (MoLEVSA) and E2E PIU and submitted in Serbian language.

5. Timeline, Venue, and Reporting

For the realization of tasks defined in Article 2, the assigned number of days is up to 50 working days in total, which is expected to be realized in the period April 1^st, 2026 – December 15^th, 2026.

All tasks will be carried out in Belgrade with the possibility of meetings to be held outside of Belgrade, whereby the expenses of the experts (travel costs, hotel) will be paid by the E2E.

The Expert Team is reporting to the Policy and LLM Governance Advisor – Nevena Letić.

6. Estimated budget and contracting

The service contract which is to be signed by two parties shall cover the period between April 1^st, 2026 and December 31^st 2026.

Remuration shall include gross fee per day based on a service contract which is to be agreed and signed by the two parties.

Financial offer should be calculated on gross amount/fee. If Consultant apply as a “physical person”, and according to the Serbian Taxation and Labour Law, the Company (NIRAS) will calculate and pay taxes as a deduction from the gross amount and pay net amount to the Consultant.

7. Dynamics of Payment

First instalment – against timesheets and deliverables after delivered final ex-ante impact analysis of the Employment Strategy 2027-2032.
Second instalment – against timesheets and deliverables after delivered updated ex-ante impact analysis of the Employment Strategy 2027-2032.

8. Application Procedure

Deadline for Application: March 23^rd, 2026

Applicants are invited to submit a single proposal for the assignment, either as an organization/company or as a group of individual consultants forming an Expert Team. Applications from individual experts for a single position will not be considered.

Applicants are requested to submit the following:

Technical offer – proposed methodology and timeframe for implementing both tasks;
Information on the experience of the proposed Expert Team and/or organization in the implementation of similar activities (at least 2 reference projects);
CVs of the experts;
Financial offer based on man-days per task in gross CHF covering the anticipation and division of working days per each expert and each task.

Submission of Applications should be done to the email address: E2E@Niras.com and Nevena Letić nele@niras.com, no later than March 23^rd, 2026.

Only shortlisted candidates will be contacted by March 27^th, 2026.

[1] Official Gazette of the RS, No 30/18

[2] Official Gazette of the RS, No 18/21 and 36/21 – correction

[3] Official Gazette of the RS, no 20/25

[4] In line with the Regulation, the process of conducting the ex-ante impact analysis takes place during the preparation of the public policy document, that is the Employment Strategy 2027-2032 in this specific case.