Korea Vocational Training Management Corporation Act
Human Resources Development Service of Korea

A. Problem Analysis

 1. What was the problem before the implementation of the initiative?
The Republic of Korea is one of the main labor-receiving countries of Asia where approximately 670,000 migrant workers are currently employed and among these migrant workers 50,000 workers are unskilled laborers who return to their home country after working an average of three to five years, after improving their work competency. The initiative Happy Return which is supervised by ILO and which has been widely introduced internationally is not limited to the recruitment of unskilled laborers who make up a large percentage of the migrant workers in the Republic of Korea but is also a scheme to help them settle stably when they return to their home country. Prior to the initiative, policies were focused on recruiting new migrant workers and supporting their stay in the Republic of Korea. According to these policies, migrant workers were forced to leave the Republic of Korea unconditionally when their employment period expired. As a result, migrant workers who had to return to their home country left their workplaces to become illegal immigrants or would become social problems to their home countries by not being able to adjust properly upon their return. In the Republic of Korea the basic policy on 『Recruitment, Support, Departure』was managed by the decree of the national government of the Republic of Korea. Problems that arose for migrant workers after their return to their home country were considered personal problems. In this world of globalization, there was a limit for the migrant workers to make detailed plans on their own regarding employment and life after their return. The major reason for this was the lack of a system to provide counseling or recommendations to the workers in finding appropriate workplace in their own country. Due to these reasons most of the workers failed in finding appropriate jobs and would return the employers for whom they had worked prior to their time in the Republic of Korea, or simply ended back at their family business. Therefore, after their return migrant workers were often unemployed or would find it hard to adjust, causing widespread social problems. Migrant workers would desert their workplaces in the Republic of Korea and become illegal immigrants because of the uncertainty of having to adjust when they would return to their home countries and because of the fact that they could not legally become reemployed without leaving the Republic of Korea. From the employer's point of view, the sharp rise of illegal immigration has increased hiring expenses while the migrant workers have to tolerate infringement of their human rights and workers’ rights due to their weaker social position. The fundamental reason to this problem can be attributed to the absence of a public administration system that not only assists the recruitment and stable stay of migrant workers in the Republic of Korea but also due to a lack of a system to help the workers lead a happy life when they return to their home countries.

B. Strategic Approach

 2. What was the solution?
Under the guidance of the Republic of Korea’s Ministry of Employment and Labor ("MOEL"), the Human Resources Development Service of Korea ("HRD Korea") is led the initiative. In 2004, MOEL launched the Republic of Korea’s Employment Permit System ("EPS") as an international labor policy. For its efficient operation, HRD Korea, a MOEL-affiliated organization established EPS Centers in 15 countries, including the Philippines to select migrant workers seeking jobs in the Republic of Korea through a fair process. When the workers are selected they arrive in Republic of Korea to work for a period of three years up to four years and ten months. Therefore, HRD Korea started the initiative which is a public service that not only helps the recruitment and social adjustment of migrant workers into the Republic of Korea but also their return to their home country to lead a fulfilling life. The first step of the initiative is to reduce the uncertainty of migrant workers of having to readjust in their home country. Through the implementation of Return Job (www.returnjob.or.kr) in 2009, HRD Korea helped migrant workers whose term in the Republic of Korea had expired to voluntarily return and provide support for their settlement in their home country. HRD Korea's service of supporting the return is a program that proceeds in the order of (1) preparation for return, (2) training in the Republic of Korea for employment or new business startup (3) upon expiration of stay in the Republic of Korea, guidance on various insurance and return procedures are delivered to the migrant workers, (4) job recommendations are made on behalf of the migrant workers to Republic of Korea firms operating in the relevant home countries. The return support services host briefing sessions on preparing for migrant workers’ return, provide monitoring on their return, deliver directions prior to return, educate about job opportunities for returning workers prior to their return and after their return a network of job-seekers is formed, meetings are held under the topic of settlement for job-seekers and recruiting companies, customized training by firms operating in the relevant home countries is provided and career certification of their work period in the Republic of Korea are issued as well. And through insurance programs such as the Departure Guarantee insurance or Return cost insurance. migrant workers can receive support in finding new jobs or starting their own business after their return. The second step is providing a system that provides opportunities to the migrant workers to work in the Republic of Korea again which can solve some fears of uncertainty. From 2011, HRD Korea has operated a system called Test of Proficiency in the Republic of Korea ("EPS-TOPIK") for re-employment and in 2012 a system of re-entry employment for conscientious workers was established. The initiative has provided a public service to assist their settlement in their country or their re-employment in the Republic of Korea. These outcomes have been acknowledged and Happy Return which is the only system of this sort worldwide has been selected and introduced as a Best Practice through international conferences hosted by ILO. In March of 2013 Happy Return was announced as a Best Practice in Myanmar and in August and December in Pakistan and Thailand respectively. The Happy Return system provides counseling to the migrant workers while they are in the Republic of Korea to enable them to plan a happy life on their return and on their return assist their employment by providing customized training and providing opportunities to conscientious worker to work in the Republic of Korea again. The home countries have seen reduced numbers of social problems caused by returning migrant workers and the Republic of Korea has minimized the illegal immigration and illegal employment.

 3. How did the initiative solve the problem and improve people’s lives?
Establishment of infrastructure for implementation (2004-2008) : With the launch of EPS in 2004, HRD Korea analyzed the initiative and in January of 2008 a formal department (Happy Return Supporting Team) was organized to implement the initiative. Through specific divisions within the 24 regional branches nationwide, the establishment of the infrastructure was completed. Advancement in implementation (2009-): 33 Foreign Workforce Support Centers, which started operation nationwide in year 2009 carry out various programs such as supporting briefing sessions on their return preparation, monitoring their return, and providing business direction and employment information for workers scheduled to return. And beginning from July of 2011, consultation is provided in 15 native languages via telephone and face-to face counseling at the Ansan Counseling Center which promotes the Happy Return program. In November of 2011, the EPS-TOPIK test was established to provide opportunities to migrant workers who arrived in the Republic of Korea through EPS and voluntarily returned to their home country, to work in the Republic of Korea again. In July 2012, the re-entry employment program was implemented that allowed migrant workers employed in the agricultural industry, fishery industry and work places employing less than 50 workers to work in the Republic of Korea again. Outcomes of the Initiative (2008-): Through the Happy Return program migrant workers have been provided public service to assist their settlement in their country and their re-employment in the Republic of Korea. These outcomes have been acknowledged as not only assisting the recruitment of the migrant workers but as a full cycle public service, making Happy Return the only system of its sort worldwide and allowing it to be introduced as a Best Practice by ILO. In March of 2013 Happy Return was announced as a Best Practice in Myanmar and in August and December in Pakistan and Thailand respectively.

C. Execution and Implementation

 4. In which ways is the initiative creative and innovative?
Prior to return : Briefing sessions on return preparation, monitoring on return, directions delivered prior to the returning foreign worker, finding jobs for returning foreign workers Briefing sessions on return preparation introduce successful cases and various methods of solving problems that can help the stable settlement of migrant workers after their return. These sessions are held in the 24 nationwide regional branch locations of HRD Korea by 81 staff members who are in charge of the program. In addition, there are 70 proficient interpreters to assist the foreign workers and provide counseling in 34 district branches. Monitoring on return is a program where the relevant foreign worker whose employment period is near expiration has his/her returning preparation monitored under close cooperation with the relevant embassy and assistance is provided in writing job applications to submit to Republic of Korea firms operating overseas. Directions on their return is provided three times in advance to the worker's expiration date (six months, three months, and one month prior to their employment expiration date) and information on the support provided for their return and precautions are included and sent via SMS, fax services, etc. Finding jobs for the returning foreign worker is provided through the Return Job program (http://eps.hrdkorea.or.kr/e9) which is a job recommendation site. After the return : Network of returned workers, settlement meetings in the relevant countries, Meeting for job-seeker and recruiting companies, issue career certificate of work experience in Republic of Korea A network pool is established to support the workers adjustment in their country after their return. Presently the network consists of workers from the Philippines, Thailand, Indonesia, Vietnam and Mongolia. Meetings supporting their resettlement in the relevant countries are held to hear suggestions, to analyze their occupation after their return, and to discover cases of readjustment Best Practices. HRD Korea holds networking conferences for job-seekers and recruiting companies in the 15 overseas EPS Centers and assists the workers to find new jobs in the Republic of Korea firms that are operating in the relevant country. In addition, after their return, a certificate certifying the migrant worker’s career in the Republic of Korea is issued through the EPS homepage (www.eps.go.kr) which may be useful when finding jobs in the Republic of Korea or other multi-national firms. Re-entry Program : Special Korea Proficiency Test for Re-entering employment system, conscientious foreign workers re-entry employment system Through cooperation with MOEL, legislation has been revised to launch two systems. The system permits migrant worker who work sincerely during their employment period in the Republic of Korea and who voluntarily return to their home country, an opportunity to re-enter and become re-employed in the Republic of Korea. Conducting Happy Return monitoring For the successful launching and implementation of the Initiative, HRD Korea has established 34 branch offices and 15 overseas EPS Centers in all the home countries and directly dispatched staffs to these centers. HRD Korea's EPS Centers perform regular monitoring for the happy life after the migrant workers return and appropriately implement the initiative in the relevant countries for their stable settlement.

 5. Who implemented the initiative and what is the size of the population affected by this initiative?
Successful implementation of the initiative, Happy Return can be contributed to the joint cooperation system formed between MOEL, HRD Korea, Korea Employment Information Service, and local government organizations in the home countries. For the smooth operation of the Happy Return by HRD Korea, MOEL set out the basic policy guidelines. The Korea Employment Information Service provides information to the foreign workers whose employment period is nearing expiration and runs an EPS computer system that manages these operations. One counseling center and 33 foreign worker support centers assist Happy Return by disseminating information and counseling via telephone or visits through briefing sessions on return preparation, monitoring, directions and finding jobs. The 15 countries sending workers to the Republic of Korea cooperate closely with HRD Korea to support their successful settlement after the workers return to their own country. Along with these efforts, various activities such as forming a network, holding briefing sessions, meeting places for job-seekers and recruiting companies, performing customized training for the firms operating in the relevant countries are provided as well. HRD Korea together with other government affiliated organizations has discussed the policies and under the contract to join efforts with the local governments and public agencies of the home countries utilizes the internal human and material resources to lead the implementation of the initiative.
 6. How was the strategy implemented and what resources were mobilized?
Financial resources: For the efficient operation and early establishment of the initiative, HRD Korea has secured national budget of approximately $285,000 annually for its operation and the entire program Happy Return is provided to the migrant workers free of charge. Human resources: For the successful implementation of the initiative and systematic management of the migrant workers, HRD Korea re-organized its organization in January 2008 to include a new department to support the worker's return under the Foreign Workers Employment Support Department based on legislation. Return support team prepares briefing sessions on the return preparation, actual surveys on the return preparation, directions given to the workers in advance to their return, assisting them in finding new jobs before they return and creating a pool of workers seeking jobs, meetings on settlement in their home country, meeting places for job-seeker and recruiting companies, etc. and collecting data regarding the local and foreign workforce policy, and hearing opinions of various organizations to establish an operating process of the initiative. For the efficient operation of the initiative, in addition to the headquarter organization of HRD Korea, 15 EPS Centers, 24 regional branches and 33 nationwide branch offices, 1 counseling center have employed staff who speak Thai, Vietnamese, etc. to provide appropriate interpretation and carry out systematic operation which has enabled the infrastructure expansion for the implementation of the Happy Return program. Technology: For the implementation of the initiative, the EPS official site (https://www.eps.go.kr/) has been established and an exclusive homepage for the Happy Return program (http://www.returnjob.or.kr/intro.html) is operated to provide public service.

 7. Who were the stakeholders involved in the design of the initiative and in its implementation?
First, Happy Return supports the migrant workers living adjustment after their return. Beginning with 3,000 workers in 2009, 1,029 former migrant workers have applied for new jobs, 4,800 have been included in the network of returned workers, 6,170 have participated in the briefing sessions of voluntary return awareness and 860 have experienced the customized training offered by Republic of Korea firms operating in the relevant countries. Labor demand analysis has been performed on the firms operating in these countries and the migrant workers to develop training curriculum for trade skills such as automobile maintenance, sewing, marketing, etc. according to each country. Second, the initiative has led to minimizing the illegal immigration and illegal employment rate in the Republic of Korea. Before the implementation of the initiative, illegal immigration among migrant workers was as high as 21.3% (2008) but has since dropped to 17.3% (Oct. 2013) and workers who become illegal immigrants after arriving in the Republic of Korea through EPS has dropped to 4%. The decrease in illegal immigrants is closely related to the improved human rights of the general migrant workers. Since their immigration status is legal, they are provided administrative protection and services from relevant organizations such as MOEL and local governments, etc. Third, the problem regarding the re-employment in Korea which was strongly suggested by foreign workers in various surveys has been solved. As of August of 2013, 11,637 migrant workers have returned to the Republic of Korea for employment. This meets the merger principle of the international labor market and migrant workers can fulfill their dream through re-employment in the Republic of Korea while providing opportunities to the employers to continue employing skilled laborers. It enables the employer to plan their workforce supply reasonably and to improve labor productivity at the same time. Fourth, by minimizing the procedures for new hires, the program has provided convenience both to the employers and foreign workers. The public vocational training that is provided to the employed worker is covered by the public service which has brought about the effect of lowering the expenses for small firms. The initiative not only supports the recruiting of migrant workers but also their living adjustment after their return, and has thus lowered the illegal immigration and illegal employment. From an integrative approach the initiative has played a huge role in enhancing and promoting peace in the international labor market by providing opportunities to those workers who seek to work in the Republic of Korea again.

 8. What were the most successful outputs and why was the initiative effective?
For the successful launch and implementation of Happy Return, HRD Korea operates 24 regional branches, and EPS Centers in all the 15 countries sending workers to the Republic of Korea. HRD Korea's EPS Centers conduct regular monitoring for migrant workers to help towards a happy life after they return to their home country. Monitoring on return is a program where the relevant foreign worker whose employment period is near expiration has his/her returning preparation monitored under close cooperation with the relevant embassy and assistance is provided in writing job applications to submit to Republic of Korea firms operating overseas. Return guidance is provided three times in advance to their term expiration date (six, three and one month prior to their employment expiration date) and information on the support provided for their return and precautions are included and sent to them through SMS, fax, etc. Finding jobs for the returning foreign worker is made through the Return Job program (http://eps.hrdkorea.or.kr/e9) which is a job recommendation site. To learn more about the stable settlement process, a wide variety of academic studies were performed. In 2008 a ‘Study on Developing a Voluntary Return Program' and in 2012 a 'Study on the Re-Settlement of Foreign Workers on their Return' were conducted. Every year open forums are held where the 15 home countries participate and the Best Practice in EPS return settlement process is announced which enables the exchange of information among the countries and mutual communication.

 9. What were the main obstacles encountered and how were they overcome?
Above all, HRD Korea did not have a separate organization to implement the initiative and it was difficult to secure human and financial resources for implementation. A computer information system that could manage the initiative was weak and the computer system infrastructure in the home countries were also very poor. HRD Korea persuaded the Republic of Korea government and national assembly to secure the necessary staff and budget for the implementation of the program and established a computer system and official home site (http://eps.hrdkorea.or.kr/e9). Through the 15 overseas EPS Centers, the status of the sending countries can be monitored and supported which enables efficient processing. HRD Korea has greatly endeavored to improve the local as well as international lack of awareness about the new initiative. The initiative has been continuously promoted to the migrant workers by providing briefing sessions on their return preparation, helping workers nearing expiration to find jobs, providing meeting places for job-seekers and recruiting companies, and promoting job opportunities in the Republic of Korea firms that are operating in the relevant countries. From an international workforce policy point of view, the re-employment program for migrant workers can be very positive in enhancing exchanges. However, when seen from the domestic standpoint, migrant workers can be seen as replacement workers in the stead of the domestic workforce, causing an obstacle in implementing the policy. The continued persuasion, though, of the national assembly and the Republic of Korea government and by hosting seminars, conferences, partnership workshops, etc. to emphasize that the program realizes the goal of supporting the resettlement of the migrant workers after they return while minimizing the illegal immigration and illegal employment have resulted in the initiative receiving positive evaluations and better awareness domestically and internationally which has helped in the smooth maintenance of the initiative.

D. Impact and Sustainability

 10. What were the key benefits resulting from this initiative?
Happy Return is a public administration service that allows migrant workers to lead a happy and fulfilling life after returning to their home country. This initiative which is the only one of its kind worldwide, provides stable settlement after the foreign workers return to their home country, develops customized training programs, protects the workers human rights by preventing illegal immigration, and allows reentry opportunities of the workers to realize their dream and eventually improve the labor productivity in local industrial sites. First, Happy Return helps migrant workers lead a stable life after they return to their home country. Previously, the focus was on the arrival and the time the migrant workers resided in the Republic of Korea. Now the focus is also on their life after their return home. From 2009, beginning with 3,000 workers, 1,209 in 2013 received support in finding new jobs, 4,800 are enlisted in the returned workers network, and 6,170 have participated in the briefing sessions of voluntary return awareness. Second, customized training programs have been developed and delivered free of charge to the foreign workers to find new jobs after their return. Training is provided for these workers in the fields that are necessary for employment such as automobile maintenance, sewing, marketing, etc, through close cooperation with the Republic of Korea firms in the relevant countries. In 2013, 860 former migrant workers were successfully recruited by in these Republic of Korea firms. Third, Happy Return has decreased the illegal immigration rate and minimized illegal employment by employers. The program has been prepared for foreign workers' re-employment in the Republic of Korea allowing employers to legally continue employing the workers. As a result, the illegal immigration rate has decreased to 4%. The reduction of illegal immigration has made a great influence in protecting the human rights of the migrant workers. Fourth, it has helped in realizing the dreams of the migrant workers and improved the mid-to-small size enterprise productivity. Through the implementation of the re-employment program 11,637 (as of Aug.2013) workers are employed in the Republic of Korea. These workers have realized their dreams through employment and the employers can continue employing the skilled foreign workers which has improved the labor productivity over 10%. HRD Korea is realizing the value of a holistic migrant worker support service by managing the foreign workers employment from arrival up to life after their return home. The initiative has received acknowledgement from the UN ILO and in ILO's annual meeting Happy Return has been touted as a Best Practice as selected by the governments of Myanmar, Thailand and Pakistan.

 11. Did the initiative improve integrity and/or accountability in public service? (If applicable)
Support settlement after migrant workers return to their country and minimize illegal immigrant and illegal employment The Republic of Korea is a major labor-receiving country of Asia where approximately 670,000 migrant workers are currently employed. Helping migrant workers to return to their country to lead a fulfilling life once their employment period expires in the Republic of Korea and realizing their dreams while in the Republic of Korea has been an essential task for the rationalization of the international labor market. This essential task is being realized through the special program Happy Return to support the life settlement after their return which is the only program of this type worldwide. For migrant workers who seek re-employment in the Republic of Korea after their initial employment period of three to five years, the opportunity for re-employment through two different re-employment programs which meets the keynotes of the merging the international labor market. By permitting migrant workers re-entry to the Republic of Korea through the Happy Return program has been acknowledged by ILO and proves the substantiality of the initiative. Transferability of the Initiative By supporting the migrant workers life after their return home (new jobs, starting businesses, etc), HRD Korea has minimized illegal immigration and illegal employment. By providing programs for re-employment in the Republic of Korea can be seen as consideration of not only workforce recruitment but also settlement after their return from the global labor market general standpoint. The advancement of Happy Return has been selected as a Best Practice by the ILO and is being benchmarked by other labor-receiving countries. This highly creative and innovative initiative, Happy Return is being replicated as a Best Practice example and will likely be implemented in other countries receiving workforce.

 12. Were special measures put in place to ensure that the initiative benefits women and girls and improves the situation of the poorest and most vulnerable? (If applicable)
Migrant workers experience a huge uncertainty on whether they will be able to adjust to life after they return to their country or to the fact that they cannot be re-employed in the Republic of Korea. These feelings of uncertainty has led to high unemployment in home countries causing social problems or migrant workers abandoning their legal workplaces and becoming illegal immigrants before their employment period expires. For these reasons, employers have had to employ illegal immigrant to solve workforce shortages. To solve these problems, it was necessary to develop a public service that not only supports the recruitment of migrant workers and supports their time in the Republic of Korea but one that can also support the migrant workers’ life after their return home and give opportunities for re-employment in the Republic of Korea. First, the initiative supports the migrant workers life adjustment after their return. Beginning with 3,000 workers in 2009, 1,029 workers have applied for new jobs, 4,800 have been included in the network of returned workers, 6,170 have participated in the briefing sessions of voluntary return awareness and 860 have received customized training offered by Republic of Korea firms operating in the home countries. Labor demand analysis has been performed on the firms operating in these countries as well as on the migrant workers to develop new training courses in automobile maintenance, sewing, marketing, etc. according to each country. The initiative directly supports the migrant worker’s life settlement after his return home and the 15 EPS Centers introduce successful examples through the media and publications. Happy Return has also led to minimizing the illegal immigration rate and illegal employment in the Republic of Korea. Before the implementation of the initiative, the illegal immigration rate of the migrant worker population was as high as 21.3% (2008) but has since dropped sharply to 17.3% (Oct. 2013) and the percentage of workers who become illegal immigrants after arriving in the Republic of Korea through EPS has dropped to 4%. The decrease in illegal immigration is deeply related to the improved human rights of the general migrant workers. Since their status is legal, they are provided administrative protection and services from relevant organizations such as MOEL and local governments, etc. For the re-employment in the Republic of Korea, two programs are currently in place; (1) the Special Korean Proficiency Test for re-entering employment and (2) the conscientious foreign workers re-employment program. As of August of 2013, 11,637 workers have returned to the Republic of Korea for employment. This meets the merger principle of the international labor market and the migrant workers can fulfill their dreams through re-employment in the Republic of Korea while providing an opportunity to employers to continue employing increasingly skilled laborers. It enables the employer to plan for workforce more reasonably and improve the labor productivity at the same time. Minimizing the procedures for employing a new workforce has provided convenience both to the employers and foreign workers since continued employment in the industrial site was made possible. And the public vocational training that is provided to the employed worker is covered by the public service which has brought about the effect of lowering hiring expenses for small firms. The initiative supports not only the recruitment of migrant workers but also their living adjustment after their return (finding jobs, new business, etc) and has reduced illegal immigration and illegal employment. Through this comprehensive approach, the initiative has played a huge role in enhancing and promoting peace in the international labor market by providing opportunities to those workers who wish to work in the Republic of Korea again.

Contact Information

Institution Name:   Human Resources Development Service of Korea
Institution Type:   Government Agency  
Contact Person:   LEE YUN JUNG
Title:   manager  
Telephone/ Fax:   82-2-3271-9422
Institution's / Project's Website:  
E-mail:   yangjun07@naver.com  
Address:   baekbumro31gil, MAPO-GU
Postal Code:   121-757
City:  
State/Province:   Seoul
Country:  

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