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# 52012SC0376

**COMMISSION STAFF WORKING DOCUMENT Partnership and flexible pathways for lifelong skills development Accompanying the document Communication from the Commission Rethinking Education: Investing in skills for better socio-economic outcomes /\* SWD/2012/0376 final \*/**

  

Table of Contents

............. Executive summary
for policy makers. 2

1........... Introduction. 4

2........... Coordination, shared
responsibility and partnership between stakeholders. 5

2.1 ....... Coordination between highly
segmented policy areas. 5

2.2 ....... Dedicated coordination
strategies and mechanisms. 7

2.3 ....... Factors of success for
partnerships between public and private actors. 8

2.4 ....... Different types of effective
partnerships. 9

2.5 ....... Lessons learned. 16

3........... Flexibility of learning pathways
and learning offers. 18

3.1 ....... Addressing system level
barriers to flexibility of pathways. 18

3.2 ....... Making learning provision more
flexible. 23

3.3 ....... Promoting openness of
institutions to flexible learning. 25

3.4 ....... Tackling barriers at individual
level 27

3.5 ....... Lessons learned. 30

............. Annex - Examples of policy practice. 31

PARTNERSHIP
AND FLEXIBLE PATHWAYS FOR LIFELONG SKILLS DEVELOPMENT

EXECUTIVE
SUMMARY FOR POLICY MAKERS

Strengthening
partnership and flexibility is important for modernising education in Europe. The
present Staff Working Document is part of a larger policy initiative: it
accompanies and offers analytical support to the Commission's Communication on
"Re-thinking Education: investing in skills for better socio-economic
outcomes". It is part of the European efforts to make lifelong learning a
reality, and contributes to the objectives of Europe 2020. The findings
presented build on analytical work carried out in cooperation with Member States and academic experts:

1. Cooperation
and partnership increase flexibility and relevance of learning and improve
efficient use of resources. They should be promoted across and between all
levels of policy making and implementation (national, regional, local), between
public and private actors, and in all contexts and forms of learning, in
pre-primary education, schools, VET, higher education and adult learning.

2. Effective
partnerships and cooperation require strong and sustainable coordination
structures and a shared vision among stakeholders. They will often
necessitate adapted funding mechanisms to take account of their specific
decision making structures.

3. Cooperation
with social partners seems to work best where it is based on standing
consultation mechanisms and sharing of responsibility between public and
private actors.

4. Creating
partnerships for funding can be effective, such as sectoral
training funds based on social partner agreements. This can mobilise private
resources and share the costs of learning.

5. Flexible
pathways have an important potential for encouraging participation in lifelong
learning as they allow individuals to build upon prior learning, and link
competences and qualifications gained across different phases and contexts of
life – leisure and working life, inside and outside formal education and
training.

6. Such
flexibility requires the removal of system-level barriers between different sub-sectors (e.g.
restricted progression from VET to higher education). The implementation of
learning outcomes based approaches, guidance and transparency tools (EQF, NQFs,
ECVET, EQAVET) is expected to clarify progression possibilities for individual
learners. Further convergence between these EU tools would increase their
benefit for end-users.

7. This needs to
be supported by the creation of structures that give easy access to integrated
learning services.  New modes of delivery of learning content
(e.g. modularisation of programmes, distance learning, evening classes, etc.)
will attract new learners, and adapted funding mechanisms can provide
incentives for institutions to develop such offers. In addition, institutions
need to develop their internal lifelong learning capacities, including
abilities of staff to deal with non-traditional or adult-learners.

8. Implementing
strategies for groups of current non-learners require learner centred
programmes and effective outreach strategies (notably approaching
disadvantaged groups in their social environment) aimed at raising their
awareness of the available offer and its benefits, and motivating them. This
includes easily accessible information and guidance. Learner-centred programmes
should be delivered in settings relevant to learners' daily life, e.g. in the
workplace or local community, etc., and with the support of employers, trade
unions, NGOs and civil society organisations.

9. Close
cooperation with the voluntary and community sector can be particularly
crucial when it comes to attracting vulnerable and disadvantaged groups into
learning and offering low-threshold and targeted support.

1.
Introduction

The implementation of lifelong learning policies
is lagging behind…

One of the
key priorities of the Europe 2020 strategy[1]
is to boost quality and resource-efficient education and training in a lifelong
learning perspective. Too much of the EU's human capital remains undeveloped
due to structural barriers and blind spots in learning provision. This concerns
initial education and training of young people, notably the persisting lack of
flexibility and transparency between different learning pathways, but even more
severely it concerns adult learning which is stagnating in volume (9%),
remaining far off the EU's 2020 target (15%).

Lifelong
learning policies, understood as holistic approaches to link and validate all
learning and facilitate skills development across lifetime, are considered
paramount to address these challenges. The implementation of such policies is
an explicit objective of the strategic framework ET 2020 and of the Agenda for
New Skills and Jobs[2].

The 2012
Joint Progress Report of the Commission and the Council on the implementation
of ET2020 showed that the majority of the European countries are still
experiencing difficulties in integrating and interlinking different sectors of
education and training.[3]
All
analysis indicates that a lack of cross-sector policy cooperation remains
evident in many countries. However, the promotion of the learning outcomes
approach as a basis for progressive policy initiatives in this field is slowly
gaining in both importance and influence.

…but boosting
cooperation and partnerships can increase effectiveness…

This document
intends to set the scene for such a shift by discussing effective forms for
cooperation between several policy sectors, different stakeholders and
providers of lifelong learning. It will examine how such collaboration can make
education and training more relevant and generate important synergies in times
of scarce public budgets. A partnership approach to lifelong learning is also
key to make learning more flexible and connective, and more easily accessible
for those who tend to participate less without support.

…and good practice from Member States can show
the way.

In some
Member States, e.g. Austria, Denmark, Finland, the Netherlands and Sweden the implementation of lifelong learning policies and principles is already well
advanced. This is demonstrated both through high rates of participation in
learning including adult learning, as well as by the availability of
instruments that increase the flexibility of learning pathways across different
areas of the education and training system.

Evidence and
examples of good practice presented in this SWD take stock of recent
developments and highlight effective ways to develop partnership approaches and
a flexible learning supply for more efficient education and training systems.
The issues faced are transversal and crucial for all levels of skills
development (early childhood education and care, school education, VET, higher
education, adult learning).

This SWD
supports key messages within the ‘Rethinking Education’ Communication on how
collaboration and partnerships can positively influence, guide and support the
development and implementation of lifelong learning policies in Member States.

2.
Coordination, shared responsibility and partnership
between stakeholders

Strong forms
of cooperation maximise effectiveness and efficiency…

In order to
boost growth and social cohesion and counter the effects of demographic change,
a more prominent role for education and training in and across different
governmental policies (economy, labour, fiscal policy, youth, social affairs,
etc.) is demanded. For example, to increase the relevance of learning
programmes for the labour market and to promote lifelong skills development at
the work-place, close cooperation between different governmental actors and
involvement of social partners is a key condition for success. And even more
urgent in times of scarce public budgets, strong partnership is needed for
sharing the cost of lifelong learning, achieving synergies and complementarity
between different providers and to make the best use of available resources.[4]

…and
education and training systems must adapt quickly to ensure that skills
development meets the changing needs of individuals and employers.

However, in most EU
countries, education and training policy is still organised mainly along the
margins of sub-sectors with a vast array of stakeholders (public and private)
at national, regional and local levels responsible for implementation of
specific parts and aspects of lifelong learning.[5]
Another important barrier to effective lifelong learning policies is that
education policies and welfare systems are still based on assumptions of an
individual’s linear progression through education and employment which no
longer correspond to the manifold trajectories people are facing nowadays.

The
development of both effective coordination and strong partnerships across
policy fields (education, employment, youth, social affairs etc.), levels of
government (national/regional/local) and sectors (public, private/individual)
thus seems crucial. In many Member States there is scope for better involving
social partners, and also for the development of regional/local partnerships to
improve skills development and ensure it is meeting the needs of individuals
and employers.[6]

2.1 Coordination between highly
segmented policy areas

Lifelong
learning policies needs to link across and between policy areas…

There is
broad agreement that a comprehensive policy approach on lifelong learning
inevitably needs to stretch across and link various policy areas,
notably:

–
Education and training policies, providing both formal education and training and also an important
share of non-formal learning;

–
Employment policies, often entailing a training element but also defining the conditions
under which an individual can receive unemployment and/or continuing training;

–
Social and health policies, defining entitlement of specific target groups to support
(including for education and training);

–
Fiscal and economic policies, often including instruments to stimulate both employers' and
individuals' investment in education and training.

…and across
levels of governance…

Successful
policies also require vertical coordination across different levels of
governance in most Member States, since national, regional and/or local
governments often share responsibilities for the design and implementation of
relevant parts of lifelong learning policies, such as schools, adult learning[7] or social
services. This may include allocation and mobilisation of the necessary
resources for learning from early childhood to post-retirement.

However,
experience shows that lifelong learning strategies developed by Member States
or Regions have sometimes lacked impact because insufficient emphasis was given
to the involvement of stakeholders outside of the education sector.[8]

…and between
education and training sub-sectors.

In
addition to horizontal coordination between different policy sectors,
coordination between education and training sub-sectors is another core
condition for successful lifelong learning policies. For example, to support
progression from VET to higher education there is, on the one hand, a need to
ensure that VET equips people with the necessary competences to succeed in
higher education, and on the other hand, that higher education programmes are
not too narrowly designed and hence privilege people with certain profiles,
competences and attitudes. Similarly, when validation and recognition of
non-formal and informal learning aim to lead to the same or equivalent
qualifications as those awarded in the formal system it is important to ensure
that the same level and quality of standards is respected in both systems.

2.2 Dedicated coordination
strategies and mechanisms

Stakeholders
must be actively engaged for successful policy implementation…

Policies
that rely on implementation by a large number of heterogeneous parties with
divergent interests, identities and institutional missions, face important
challenges when it comes to generating consensus and commitment to policy
reform and/or implementation.

What
may appear self-explanatory at first glance, is not always self-evident in
terms of policy implementation. Based on the experiences of several Member
States, research has highlighted the need for active stakeholder coordination
and commitment as a basis for successful policy development and implementation.[9] Weak
communication and cooperation between stakeholders representing different
relevant policy fields is a major source of policy failure. It can put at risk
the relevance of learning offers (mismatches between skills provided by the
education and training systems and those demanded by the labour market and
society at large), lead to barriers for individuals' access to learning
(non-connectivity between different sectors and forms of learning, lack of
transparency of the various learning opportunities), and, last but not least,
it can substantially limit the efficiency of investment as it bears the risk of
duplication, excessive administrative burden, etc..

…and there
must be clear consensus and shared responsibility…

Naturally,
different groups of stakeholders have divergent and often competing interests
in policy design and implementation, and in particular regarding spending
priorities. Consequently, a lifelong learning strategy will only be effective
when it is based on thorough coordination, i.e. negotiation, consensus building
and development of clear agreements on sharing of responsibility between
stakeholders. Key points to be taken into account are:

–
A clear division of responsibilities
among public authorities at different levels of governance.[10] An increasing
trend is for centralised authorities to focus on defining the strategic
objectives and priorities, quality assurance, support (funding, guidance and
good practice) and evaluation while actors on the ground design and implement
the specific actions. Key challenges for such approaches are quality
assurance as well as to promote the mainstreaming of innovation
developed on the ground.

–
To involve key stakeholders in both the design
and implementation of measures, in order to secure information flow and
long term commitment.

–
To set up specific coordination mechanisms
to rationalise strategic planning and funding decisions and to exchange
information and good practices. To achieve this, a number of European
governments have set up inter-ministerial task forces, inter-agency committees
and various forms of education and training councils or skills councils.[11]

Policy practice: Coordinating
implementation of an overarching LLL strategy in Austria

In July 2011 the Austrian government
adopted its National Lifelong Learning Strategy "LLL:2020", which
bridges education and training with the labour market and social issues. The intensive
consultation process involved four federal ministries: education and
training; science and research; labour and social affairs; economy, youth and
families. It was inspired by EU-wide developments such as increased focus on
learning outcomes, key competences, validation, etc. and helped to base the
LLL:2020 strategy on a broad common understanding among stakeholders. Remarkably,
for the first time the Austrian government has committed to reach agreed
benchmarks on a number of LLL issues by 2020, which will be monitored and
reported.
In detail see Annex, Policy example 1

2.3. Factors of success for
partnerships between public and private actors

Non-governmental
stakeholders need to be involved from the beginning…

While
public authorities have a leading role in the design and implementation of
lifelong learning policies this cannot be done effectively without involvement
and cooperation with non-governmental stakeholders – notably employers, trade
unions, learning providers, community and voluntary groups, and the individual
learners. Creating mechanisms of cooperation and partnership between public and
private sector organisations can support the sharing of responsibilities for
relevance, costs and benefits of actions and programmes supporting lifelong
learning.[12]

Such
partnerships allow for pooling of financial and human resources, infrastructure
and knowhow of various stakeholders and are considered "effective in
supporting on-going education reform efforts and adding value to the activities
and public images of partners"[13].

…for the
effective design and implementation of partnerships

Peer
learning and large evaluations suggest that sustained partnership involvement
is critical to the long-term success of initiatives. The following issues can
be regarded as critical for effective stakeholder cooperation:[14]

–
Successful partnerships involve all strategic
partners, seek the early participation of the relevant co-founding
agencies, and promote the concrete and active participation of partners,
including representatives of target groups.

–
Agreements on concrete objectives and measures.
Consultations and fora are necessary to give stakeholders space to
express opinions, but not sufficient to create commitment. Other actions, such
as pilot projects are much more effective for testing the willingness of
stakeholders to contribute.

–
A clear division of roles and competences
and a clear identification of complementarities among stakeholders
representing different interests to reduce duplication and fragmentation.

–
Monitoring and evaluation and considerations of scale-up and mainstreaming of
activities are essential to ensure sustainability the long-term success of
initiatives;

–
Finally, the creation of partnerships and
working with several stakeholders requires sufficient funding as it
imposes certain transaction costs.

–
The issue of the optimal size of the
partnerships remains debated. While restricted partnerships (and
partnerships with centralised decision making) can be regarded as more
reactive, more manageable and hence more efficient, wide partnerships increase
the potential for mainstreaming and sustainability.

Policy practice:
"Learning and working" programme in the Netherlands

"Leren en werken", operational
between 2005-2011, focused on coordinating the education and training and
guidance provision in the area of adult learning with the labour market needs
at regional level. The government decided to subsidise the contact and
coordination among the relevant stakeholders - by setting up regional networks.
Main success factors were:

- The cross sectoral
management of the programme through a joint directorate set up by the two
involved ministries (ministry of education and ministry for social affairs and
employment).

- The importance of leaving
autonomy to the actors on the ground to define their own objectives and
actions.          
In detail see Annex, Policy example 2

2.4 Different types of effective partnerships

The
following section shows the main approaches and types of partnership building
that have proved to be particularly effective for skills management, notably
partnerships between public actors and social partner organisations,
cooperation between learning institutions and businesses, and local multi
stakeholder partnerships for LLL that give an important role to third sector
organisations (NGOs).

Cooperation
with social partners brings valuable benefits…

In
addition to general considerations concerning stakeholder involvement, the
contribution of social partners is particularly important to develop coherent
and comprehensive skills and lifelong learning policies. In particular, social
partners support the design and implementation of such policies in many
European countries by:[15]

–
identifying needs for skills and qualifications
needs and anticipating their development

–
improving the recognition and validation of
acquired skills;

–
informing, supporting and providing guidance;
and

–
mobilising resources for skills development.

The
degree of their involvement however varies greatly across European countries
depending on their traditions and regulations regarding tripartite relations.
In the case of continuing vocational education and training (CVET), the
following four main forms of social partner cooperation can be found: direct
consultation on policy setting, participation in formal consultative councils
or advisory bodies, participation in VET coordination mechanisms, involvement
in tripartite or public bodies. Despite these different traditions, successful
modes of cooperation can be found in all countries.

For example,
cooperation with social partners is considered a key factor in particular for increasing
the relevance of education and training and facilitating transitions from
school to VET and/or to work. In the Member States with strong dual VET systems
the social partner organisations are given strong and system-wide
responsibility for developing and revising training curricula (e.g. in
Austria, Denmark, the Netherlands. Germany). A more detailed discussion on the
role of social partners in the implementation of effective VET systems can be
found in the Staff Working Document on Vocational training and education for
better skills, growth and jobs.

Social
partner cooperation also has proven beneficial for skills management in a more sectoral
perspective, e.g. such as identification of future skill needs, developing
skill strategies or getting advice on those training providers and programmes
that meet given needs. Business organisations, chambers and professional bodies
can pool their expertise in order to propose tools for tailor made analysis and
comprehensive strategies.[16]
[17]

Sector
councils for employment and skills have been established in around half of the Member States, and sector skills issues are discussed in many Member States in transversal
councils. Evidence reveals positive effects of such councils on sectors,
enterprises, employees and employers.[18]

Trade unions
also have an important role in supporting the learning of their members. For
example union-led learning at work in the UK took on an important function
through Skills for Life and has moved on to address skills at higher
levels. Their experience shows that union involvement in workplace learning can
increase the amount of training an employee receives. Where there is a union
learning representative (ULR), 46.5 per cent of employees received five or more
training days in the last 12 months compared to 29 per cent in workplaces where
there is no ULR.[19]
In Finland a similar approach was designed in cooperation with trade unions to
train mentors to stimulate continuing training.

Tripartite or
bipartite dialogue has often led to the introduction of measures related to training
in collective agreements.[20]
In some countries, these measures have notably led to the creation of (inter-)
sectoral training funds.[21]
Sectoral training funds are created on a voluntary basis, often under sectoral
agreements, and are governed by bipartite bodies. These funds are generally
financed by employers through (inter-) sectoral training levies, although
several have received financial support from governments and the European
Social Fund. Also employees are sometimes required to contribute to the
financing through compulsory payroll contributions. Sectoral training funds
appear to have several advantages, including the fostering of social dialogue
and creation of a learning culture among employers and employees. From a
funding point of view, they are successful in pooling substantial resources for
training and avoiding uneven distribution of employer provided training. [22] Sectoral
training funds can improve the distribution of resources among groups of
workers and types of organisations, e.g. large companies and SMEs.

A more
detailed and comprehensive discussion on models that aim to stimulate private
contributions, including partnership and collaboration approaches, to financing
of continuing VET and adult learning can be found in the Staff Working Document
on Vocational training and education for better skills.

Partnerships
between individual learning institutions and the world of work are having a
real impact on learning…

In
addition to the system-wide and sectoral perspective, a growing number of
partnerships between education and training institutions and the world of work
are developed at the level of individual institutions. At school level
their main objectives are often to improve learning and career guidance,
teaching and learning of technical subjects and entrepreneurship education, and
notably to facilitate the transition from school to work or school to VET. Notably
in the VET sector partnerships between businesses and schools have a long
tradition and are crucial for maintaining or increasing the relevance of
training, including the competences of trainers. A more detailed discussion on
partnerships in VET can be found in the Staff Working Document on Vocational
training and education for better skills.

…while closer
collaboration between higher education and business can bring real benefits
(e.g. for funding) but must be more effectively implemented at policy level.

Furthermore,
in the past few years increasing attention has been paid to developing ever
closer collaboration between the higher education sector and business.
Higher education is at a cross-road in Europe; caught between shrinking state
support and competition from the BRIC countries, a greater emphasis on the
relevance and conversion value of education on the job market is needed as well
as its full contribution to increasing Europe's innovation capacity.

Whilst
business and industry involvement in the design and delivery of curricula and
the identification of transferable skills and methods is increasingly accepted
at a policy level the degree of implementation is still poor. In 2011 a
comprehensive study on the State of European University-Business Cooperation[23]
looked at the pros and cons of UBC and the various factors that affect it and
which actions would encourage more UBC to take place. Thirty good practice case
studies were also identified during the course of the study.[24] Alongside
this European overview of the factors leading to or preventing UBC, another
study was undertaken looking at fifteen institutional examples of successful
UBC in greater depth.[25]

Notably under
the impact of fiscal consolidation needs, growing attention is devoted to the
opportunities regarding additional funding which may arise from partnerships
with business. E.g. in Germany a public programme (“Deutschlandstipendium”)
introduced in 2011 awards grants to "high-performing" students (300
EUR monthly) under the condition that their universities raise private partner
matching funding.[26]

A 2011 study
by the European University Association into the income flows into higher
education institutions in Europe[27]
found that funds from business can account for a significant share of
institutional funding, but remain low in comparison to public funding in its
various forms and student contributions (tuition or administrative fees). While
consistent comparative data on funding streams to higher education is not
available, the survey of institutions undertaken for the study found 6.5% of
total funding to participating institutions coming from research contracts with
the business and a further 4.1% from "service provision" (use of
university services and resources to provide services to external parties).
These average figures disguise a diversity of patterns and practices across EU
Member States and institutions. Importantly, the scope for income generation
from research contracts with business is clearly conditioned by the research
intensity and activities of the institution in question.

As in other
sectors of education, staff costs account for a high proportion of the
operation costs of higher education institutions (between 60 and 90%)[28]. Depending on
the level of autonomy enjoyed by institutions, this places limits on
institutions' margin of manoeuvre in budgetary management. However, efficiency
efforts tend to focus on internal organisation (where streamlining structures
can often increase efficiency) and cost-cutting through cooperation and
partnerships. Examples in this respect include sharing equipment and services
(such as IT) between institutions or providing previously internal services to
external clients. To date, most notably owing to the specific status of higher
education institutions in most countries, there appear to be limited examples
of private sector expertise being used to improve the governance and overall
resource management of institutions of higher education. The scope for such
learning from the private sector and the potential impacts need to be analysed
in more detail.

Multi-stakeholder
partnerships at regional and local level can improve skills provision…

In
addition to the sectoral perspective on skills development, a number of
European countries have also promoted a territorial approach. The concept of
"learning regions" has been discussed, further developed and
implemented across the EU. While the term may refer to large regions as well as
to municipalities, villages or small scale communities, all share the underlying
rational of developing a geographical area by engaging in close cooperation the
actors responsible for innovation, skills and economic development. With
increasingly flexible and changing labour markets a growing focus is on
effective management of learning provision in response to current and emerging
regional skills needs.

…and local
partnerships can support the engagement of demographic groups currently
under-represented in lifelong learning

Against
the backdrop of a shrinking workforce and higher skills needs, local
partnerships also have an important role in engaging marginalised groups in
higher levels of education and in up-skilling low qualified people to ensure
their re-integration into the labour market and society. There is evidence that
engagement of voluntary community level organisations in lifelong learning
partnerships, especially those aimed at disadvantaged and hard-to-reach
groups of "non-learners", can be particularly effective. Cooperation
with grass-roots NGOs can provide highly valuable knowledge about target
groups.[29]

Policy practice: How Sector
Skills Councils function in the United Kingdom

Partially funded by the UK government
Sector Skills Councils (SSCs) are independent, employer-led, UK–wide
organisations designed to build a skills system that is driven by employer
demand with a view to enhance competitiveness of industries. SSC boards include
representatives from employers, employees, education and training institutions,
as well as government observers. There are currently 22 Sector Skills Councils
covering over 90% of the economy and they all work towards the following four
key goals: 1) reducing skills gaps and shortages; 2) improving productivity,
business and public service performance; 3) increasing opportunities to boost
the skills and productivity of everyone in the sector's workforce; 4) improving
learning supply through National Occupational Standards, apprenticeships, and
further and higher education. An evaluation of impacts of SSCs showed gains of
between £100m and £130m a year from Government and Industry funding of £5m a
year.
In detail see Annex, Policy example 3

Policy practice: The
industry competence fund for paid training leave in Denmark

In Denmark in 2007 CO-Industri and
Dansk Industri signed a new collective agreement allowing Danish workers
to increase their right to paid continuing VET and to undertake a two-week paid
vocational training course of their choice. The Industriens Kompetencefonden
(industry competence development fund) has been set up for this purpose. This
industry competence development fund secures up to 85 % of employee salaries
while they are training. The public sector pays salary compensation up to the
level of unemployment benefit, whereas the competence development fund pays the
difference between the unemployment benefit and the specified 85 %.       
In detail see Annex, Policy example 4

Policy practice: Educational
Partnerships between Schools and Companies in Baden Württemberg, Germany

In order to optimally prepare all pupils
for their transition into working life, partners from the worlds of school and
business decided to start the cooperation school-business partnerships in 2008.
Every secondary school providing general education should establish and
maintain at least one business partnership. Against this backdrop, the
Government of the Land Baden-Württemberg, the Association of Chambers of
Industry and Commerce, the Confederation of Skilled Crafts and the Union of
Employers’ Associations have decided to conclude an agreement on the
establishment of partnerships. Since the first agreement of 2008 around 90% of
all lower secondary schools have entered into contractual partnerships.        
In detail see Annex, Policy example 5

Policy practice: Roadmap for
employment – Academic Partnerships (REAP), Ireland

REAP is a collaborative project,
involving eight Higher Education Institutional partners, for the research,
development and validation of a Higher Education /Employment Partnership Model
and Roadmap. It identifies learning needs within workplaces, draws up a
comprehensive plan for partnership between employers and HEIs and verifies the
effectiveness of the strategy through a diverse range of demonstrator
collaborative activities.
In
detail see Annex, Policy example 6

Policy practice: Local
learning networks in Germany (Lernen vor Ort)

Lernen vor Ort is a national programme
funding municipalities (60 Mio EUR, ESF supported, 2009-2014) supporting the
setting up and operating of partnerships for a better local education and
training systems. Knowhow on innovation in education management is provided by
around 180 German foundations who are key partners of LvO. The broad objective
of LvO is that municipalities put in place a well-functioning local education
management based on a monitoring and reporting system and involving all
relevant stakeholders.  
In detail see Annex, Policy example 7

Policy practice: Community
based access to further and higher education in Ireland

In Ireland a specific policy approach to
community based access to further and higher education involves
local community organisations, including third and private sector
organisations, to engage with and support people from these target groups
throughout their education, with a particular focus on bringing them up to
tertiary level. Key elements of the approach include stakeholder cooperation
and communication, outreach to people, and support to learners, including
financial support.    
In detail see Annex, Policy example 8

2.5 Lessons learned from
Partnerships

Cooperation
and partnerships positively support the implementation of lifelong learning
policies…

Cooperation
and partnerships have proven beneficial to lifelong learning implementation
with regard to numerous aspects: they have shown strong potential to promote
better management of education and training and skills provision, increase
flexibility and relevance of learning programmes, and improve efficient use of
resources. Partnerships are also important for generating and disseminating
innovation in learning provision.

…but must
involve all relevant stakeholders, link all areas of lifelong learning, work
across different policy areas and engage all levels of governance

Thus they
should be promoted across and between all levels of administration and policy
implementation, between public and private actors and in all contexts and forms
of learning, in pre-primary education, schools, VET, higher education and adult
learning. In particular, regional partnerships and cooperation shows strong
potential for ensuring that skills development and provision is closely matched
with citizens, learning institutions and the needs of the local economy.

…with a
shared vision…

Effective
partnership and cooperation require strong and sustainable coordination
structures, a shared vision among stakeholders and often they necessitate
adapted funding mechanisms to take account of their specific decision making
structures.

…and the
involvement of social partners from the beginning

In a number
of Member States cooperation with the social partners is given high importance
in design and implementation of lifelong learning policies, including learning
provision, guidance and validation, thus underlining their key responsibility
for effective skills management at national and notably regional or local
levels, closest to the needs of individuals and society. Creating partnerships
for funding, such as sectoral training funds based on social partner
agreements, appear to be effective with a view to mobilising private resources
and sharing the costs of learning.

Cooperation
with social partners seems to work best where it is based on standing
consultation mechanisms and shared responsibility between public and private
actors.

…that can
support the engagement of marginalised groups

While the
role of non-governmental organisations in education and training provision may
sometimes appear underestimated in the LLL debate, close cooperation with the
voluntary and community sector seems particularly crucial when it comes to
attracting vulnerable and disadvantaged groups into learning and offering
low-threshold and targeted support.

…while
collaboration between HEIs and business can support funding but has to be
extended

On a
theoretical level, increased cooperation between higher education institutions
and business has a potentially positive impact on the overall levels of income
into HEIs (as additional private sector funds are brought in) and on the
efficiency with which resources are used (as expertise in resource management
from outside the world of higher education is transferred or exploited inside
institutions).

3.
Flexibility of learning pathways and learning offers

System
barriers must be tackled to make learning pathways more flexible…

Expanding
flexible learning pathways is considered a key element of effective lifelong
learning policy in the EU Member States.[30] Individuals should
be able to move between different learning tracks (general education, VET and
higher education), settings (formal, non-formal), and fields of studies with a
view to horizontal and vertical progression to higher or new qualifications.

As a key
principle, prior learning (independent of whether it was achieved through
studies, work or in leisure) should be validated and recognised, as repeating
learning content is a waste of time and discourages learner participation. The
tackling of system level barriers (linked to the regulatory framework in a wide
sense) therefore has to be a priority for national policy makers.

In all Member
States learners are, at a certain level, tracked into different pathways,
usually by setting conditions for access (typically for general and vocational
education and training streams or between upper-secondary level and higher
education). This early assignment to separate tracks potentially leads learners
into dead-end streets where further vertical progression to higher
qualifications levels may become difficult. This is primarily the case between
vocational tracks and higher education and contributes to the generally lower
prestige of vocational tracks in most Member States.

At the same
time, flexibility of entry points needs to be combined with quality assurance
of the certification of learning outcomes at the end of a specific learning
process. This diversification of entry conditions to education and training
programmes and diversification in modes of learning combined with clear ‘exit’
conditions (qualifications standards), means that education and training
institutions have to re-think and adapt their approach towards learning and
learners. Flexible pathways also imply a greater diversification of learners
and require new capacities from staff and institutions.

…while
barriers to learning for individuals must also be broken down

Finally,
achieving more flexible pathways also requires measures to overcome barriers
that are intrinsic to individuals, often linked to their socio-economic
background and prior learning experience, and which, for manifold reasons, may
keep them from making full use of their learning capacities.

3.1 Addressing system level
barriers to flexibility of pathways

Conditions
of access to different levels of education must not be barriers to progression…

Addressing
barriers to progression from vocational qualifications to higher education has
been paid relatively[31]
close attention in the past decade. Member States have developed various
approaches to facilitate access from vocational education and training to
higher education, notably with a view to increasing its attractiveness[32]:

–
Ensuring that a vocational pathway leads to a qualification
at a level equivalent to the general education pathways which traditionally
grant access to higher education. In many EU countries there are already such
vocational pathways in place.

–
‘Top-up’ programmes to grant access to higher education also through vocational
qualifications that are at a lower level than the general education upper-
secondary leaving certificate (e.g. in Germany, Slovenia, Czech Republic or
Slovakia)

–
Integrated models
whereby learners acquire a vocational qualification and at the same time
prepare for a general education qualification (for example in Finland, Austria).

–
Recognition of work experience or other
learning achievements to grant higher education
access to learners who do not provide over the required mainstream upper
secondary certificate (e.g. in the Netherlands, Germany, Portugal and Spain)

What
is crucial for all approaches to truly impact is to enable students to acquire
a sufficient level of basic skills and general education already during their
vocational education and training programme.

…and
transparency instruments such as the European Qualifications Framework can
support this

In addition,
system level instruments such as qualifications frameworks are also
expected to clarify progression possibilities for learners. As qualification
levels are defined through the same categories of learning outcomes, without
any reference to the institutional setting or the sub-sector of education and
training, improving
the permeability of education and training systems to aid transfer and
progression is a key objective of national qualification frameworks in many
countries[33].
In the same perspective, most frameworks include or plan to include
qualifications awarded outside the formal education and training systems[34].
The indication on individual diploma and certificates of the level in the
national and European qualification framework – the second phase, just now
starting, of the EQF implementation – should draw attention away from the
sector-based attitude and focus on the level of learning outcomes, thus
supporting permeability.

An important
boost to transitions between education and training sub-systems would also be
obtained through the interoperability of European credit transfer and
accumulation system in higher education (ECTS) and vocational training (ECVET).
Equally helpful would be a common model of information supplement to
qualifications across the education and training sub-systems, building upon the
existing Diploma Supplement in higher education and Certificate Supplement in
vocational training. Some convergence is already being applied with the use of
learning outcomes in the Diploma Supplement (e.g. in Finland) and of personal
information in the Certificate Supplement (e.g. in Slovenia).

It is vital to recognise
and validate non-formal and informal learning…

For both
vertical progression to higher levels and horizontal mobility between tracks,
it is important that learning outcomes acquired previously are recognised.

The proposal
for a Recommendation on the validation of non-formal and informal learning adopted
by the Commission on 5 September 2012 has the objective to provide all citizens
with the opportunity to have their skills validated and recognised for access
to further learning or to the labour market. Currently, while some validation
arrangements exist in all countries, the number of countries where
system level approaches are developed and widely used is still small (e.g. Finland, France, the Netherlands, Norway, Portugal)[35].
To date in many countries such mechanisms are rather limited to a specific
sector of education and training (e.g. Germany, Spain, Luxembourg, Romania, Sweden, United Kingdom),
or broader approaches are still being developed.

…and member
states can already provide good examples of where this is being done.

The countries
with advanced methods and systems can be said to have ‘mainstreamed’ their
approach by closely linking them to their national qualifications frameworks
and the general certification approaches. An important factor for success seems
to be to see validation as one out of several pathways to a qualification; it
is important to avoid a situation where the outcomes of validation are seen as
inferior to the qualifications acquired through traditional approaches (e.g. Denmark, Estonia, Ireland, Portugal).

Learning
credits can be an important tool in expanding learning pathways…

In addition, schemes
to recognise learning credits are increasingly used to develop system-level
pathways between different qualifications within a sub-system and
qualifications sub-systems[36].
Approaches developed in the Member States include:

–
Articulation of units between different
qualifications at the same level/subsystem to enable progression. For example, in France all upper-secondary vocational
qualifications (at the same level/type) share the same core competences and
general knowledge. Once a vocational qualification has been achieved a person
can get recognition for this part of the qualification if they need to
re-qualify in the future without additional assessment or learning. In Romania all vocational qualifications at a given level share units concerning key
competences and all qualifications within an economic sector/field also share a
number of units. In addition to offering flexibility for learners when it comes
to progression, this approach offers some advantages for organisation of
lifelong learning at institutional level (see below).

–
Diversifying the entry and exit points from a
pathway. Credit systems can be used to give people
the possibility to enter a pathway with different achievements (by recognising
credit from elsewhere) but also to leave at different levels with a
qualification. Some countries (for example Denmark, Luxembourg, Hungary[37])
are introducing the possibility for people who do not succeed in obtaining the
full qualification to receive at least a partial qualification (which has
relevance for the labour market and can be recognised if they return to
education and training).

–
Stipulating in legislation the requirement
for institutions to recognise relevant prior learning (formal, non-formal or informal). For example, in Slovenia the obligation for VET providers to consider learners’ credit for exemption is embedded in
the legislation[38].
In Finland the legislation on higher education stipulates that universities
have to consider recognition of credit for learners who come from polytechnic
institutions in view of entering a masters degree (depending on the
polytechnics degree the university may require some additional learning or
examination). In Slovenia and Ireland graduates of post-secondary non-tertiary
education can sometimes enter directly into the second year of university
education[39].

…and there
are some difficulties of validation in higher education

The 2010
update of the inventory on validation of non-formal and informal learning
identified a very broad range of framework conditions for validation in
higher education. Firstly there is a group of countries where validation in
higher education is not possible. In other countries there is a limit on the
volume of learning (in terms of credit or time) that can be recognised (in
Germany for example validation can account for up to 50% of credit, in Hungary
up to 30% and in Spain up to 15%). In only few countries individuals can
acquire a full qualification based on validation of NFIL (France, Denmark, Iceland or Belgium Flanders).

Policy practice: Flexible
pathways to higher education in Austria

Since 1997 vocational
education and training students have had the possibility to obtain the
professional baccalaureate (Berufsreifeprüfung or Berufsmatura). In 2008 the
possibility to combine an apprenticeship with preparation for the professional
baccalaureate (Lehre mit Matura) was introduced and preparatory courses made
free of charge. In the academic year 2007/2009, 2 609 students received the
professional baccalaureate certificate. 45% of these graduates started a
university programme, 23% went to a Fachhochschule science, about 10% a
university college of education and 20% a VET college.    
In detail see Annex, Policy example 9

Policy practices in the field
of validation

In Portugal specific
infrastructure for validation was set up, namely the New Opportunities Centres
(454 in total) where people could apply for validation and receive guidance,
and the National Agency for Qualifications (in 2007) as the body responsible for
both the coordination of the national validation system and for vocational
training reform. The New Opportunities Initiative has had significant reach:
more than one million low qualified adults were encouraged to improve their
educational attainment.[40]

In France individuals can apply
for validation by submitting a portfolio of experiences including detailed
descriptions of skills and competences to the ministry responsible for awarding
qualifications. An established jury appointed by the responsible ministry
decides upon the award of a full or partial qualification based on the
application.

In the Netherlands, individuals
can apply for validation of experiences by submitting a portfolio of
experiences to a recognised provider of "experience certificates".
Assessors within these providers can deliver an experience certificate to be
used either for job searching or for official recognition by an examination
board of a formal education and training provider. The Dutch validation system
is further supported by a knowledge centre which set up a quality code for
validation that has to be respected by the providers of experience
certificates.
In detail see Annex, Policy examples 10

Policy practice: NQF and
credit system for flexible pathways in Slovenia[41]

Flexibility of pathways is developed in Slovenia by enabling people with lower level qualifications to have their credit recognised
in view of higher level qualifications (mainly in VET). Equivalence between
partial qualifications and units of qualifications is established when
qualifications are designed. This enables learners who fail the full
qualification to hold at least a partial qualification and it facilitates
accumulation of a full VET qualification through validation.

In detail see
Annex, Policy example 11

Policy practices of
countries where system level conditions promote validation of NFIL in higher
education

In Estonia, the 2003 University
Act requires that universities accredit prior and experiential learning and
obliges them to elaborate their own rules and procedures for recognition. The
legal act Standard of Higher Education (Kõrgharidusstandard, updated in
2007) sets a very broad framework for common regulations for recognition of
prior learning and states that all HEIs need to have such regulations within
the institution.

In Finland, a set of 21
recommendations for universities and polytechnics (universities of applied
sciences) regarding the validation of informal and non-formal learning have
been prepared in 2009 by the Council of University Rectors and the Rectors’
Conference of Finnish Universities of Applied Sciences. This set of
recommendations covers various aspects of validation, from both the perspective
of HEIs and students’ perspectives and general recommendations for
implementation.           
In detail see Annex, Policy examples 12

3.2 Making learning provision more
flexible

Modularisation
of learning programmes can support flexibility of learning…

Linear
‘in-block’ education and training programmes create certain difficulties for
flexible provision as they make it rather difficult for people to enter into
the programme at a different point than at the beginning, for instance
following validation of prior learning or recognising credits from another
institution.

One aspect of
developing flexible learning at provider level is the modularisation of
programmes. In Luxembourg, for example, the on-going reform of vocational
education and training combines the development of a competence based approach to
programmes and qualifications with a modular system. The new approach to
vocational education and training programmes and qualifications improves the
combination of work-placed and school-based learning. For the individual it
means that persons who fail in a particular module of their training scheme
only need to sit that particular module again[42].

Another
approach to diversification of flexible provision is by combining education
with on-the-job learning. While dual VET has a long-standing tradition in a
number of EU countries (notably DE, AT, NL, DK) dual tertiary VET, i.e.
alternance of in company learning and tertiary studies, is a rather recent
phenomenon. A detailed discussion of work based learning and dual forms of
training can be found in the SWD on Vocational training and education for
better skills

…as can opening up
education through the use of ICT and open educational resources

Distance
learning has traditionally played a relevant role in improving access to
education and training for people with time constraints or limited financial
means and in remote areas. It is also very developed in the area of continuing
education, especially
within companies.

However, as a
consequence of the ICT revolution over the last few years there has also been
an exponential growth in educational courses and other resources available via
the Internet, either free as Open Educational Resources (OER)[43] or paid-for
educational content. In the field of education, the so-called "Open
Educational Resources Movement" and other public and private initiatives
are promoting the use of ICT for less barriers to education and more flexible
and creative ways of learning, characterised by collaboration, bottom-up
practices (both in traditional and new channels and markets) and where the user
is also a creator of learning content.

Basic skills
training can effectively be offered in the workplace…

The time and
space available to adults is a key factor but also a scarce commodity. As most
adults cite learning for work as a priority, it is important that organisations
are willing to respond to this by adjusting work plans and schedules and being
flexible in how work is organised to allow time for learning. Since the
majority of the low-skilled population in the European Union is active in the
labour market, the workplace is a key setting where low-skilled individuals can
participate in structured learning and basic skills training.

For example,
in Norway, adult education is a well-developed sector with a nation-wide
network of adult education centres run by the municipalities. The Norwegian
“Education Strategy” has a set of mechanisms that facilitate adults in
gaining qualifications, namely: a statutory right; study leave; validation of
prior learning; financial support in the form of loans and scholarships;
flexibility; national primary and secondary school curricula. Yet,
participation among vulnerable groups remained a problem and it was decided to
take learning out to the workplace, where many of them are to be found.

…as basic
skills training can be embedded into a wide range of other learning offers.

Another
successful method of flexible provision, notably for low-skilled workers, is ‘embedded
learning’. Research suggests that people with inadequate basic skills are
often hesitant to take literacy, numeracy or language training; they are more
likely, though, to take the same training if it is part of a course of their
choice. Embedding basic skills with other types of learning gives the
opportunity for individual learners to find themselves the benefits of
improving their basic skills. It has been found that 15% more people stay on
embedded courses than stand-alone basic skills courses and that there is a
higher achievement rate among those learning[44].

For young
adults who have left school early, combining basic skills and VET has been
shown to improve qualification rates as well as providing basic skills. Tutors
from general education and vocational tutors must work closely together to
develop and deliver such programmes, be they inside or outside the workplace.
Basic skills at the workplace will always need the professional competence of
teachers and trainers.

Policy practices in the field of Modularisation

Modularisation for more
flexible learning in Lithuania

In 2007 the Lithuanian government
introduced a revised Law on vocational education with a modularised structure
of qualifications whereby content is regulated by individual guidelines for
higher education study fields and professional standards. According to the Law,
a module in vocational training is a self-contained teaching and learning unit,
leading from a defined input level of the learner to a competence increase
planned in advance. Modularisation has been taken forward to introduce more
flexibility and greater opportunities for lifelong learning.

Structuring initial VET
in units and modules in Luxembourg

The 2008 Law for reforming VET focuses on
reorienting IVET towards a modular and competence-oriented structure. All
vocational training is structured into learning units which can be accumulated.
The development from qualification to curricula is based on a four step
approach: the definition of professional profile (Berufsprofil) includes
working areas/domains, assignments and tasks; the development of training
profiles (Ausbildungsprofil) to which competences are associated; the training
profiles are structured into framework curricula (Rahmenlehrpläne) which
includes units or modules; the framework curricula build the basis for
developing assessment and curricula.           
In
detail see Annex, Policy examples 13

Policy practice: Programme for
Basic Competence in Working Life, Norway

The Programme for Basic Competence in
Working Life (BCWL) was introduced to fund and support basic learning projects
in enterprises that prevent the exclusion of low-skilled people  from work, or
projects aiming at preparing people for working life in co-operation with the
Norwegian Labour and Welfare Administration. The programme requires close
co-operation with employers who agree to the provision of basic skills in the
workplace in return for financial compensation for workers’ time spent on
structured learning.       
In
detail see Annex, Policy example 14

3.3 Promoting openness of
institutions to flexible learning

The capacity
to deliver flexible learning must be expanded by developing the ability and
readiness of existing learning providers…

In addition to
institutional aspects that concern the delivery of flexible learning, the
development of open pathways also depends on organisational capacities of
learning providers such as:

–
Readiness and preparation of staff to work with
diversified groups of learners.

–
The role of leadership in driving the
development of the LLL agenda and flexible pathways within an institution and
keeping it high on the agenda. As in any change management process strong and
convinced leadership is a supportive element for motivating staff towards
implementation of change and innovation.

…and
adapting funding mechanisms to stimulate institutional flexibility…

Mechanisms
for the funding of learning can pose further system level barriers to flexible
learning pathways. Under certain conditions, funding mechanisms may discourage
providers from recognising credit and non-formal and informal learning (e.g. if
funding is provided per taught hours) and they can also discourage individuals
from participation (e.g. if through returning to education and training
learners lose unemployment benefits).

The concept
of flexible pathways inevitably challenges established funding methods in
education and training which were designed to fit the model of linear learning
trajectories (public funding is often based on per-capita yearly basis or per
hours taught). This model can create situations where providers have
disincentives to provide flexible pathways to their learners in order to
safeguard funding streams. For example, for higher education programmes in a
number of countries (e.g. Portugal, Norway, Finland) validation and recognition
of non-formal and informal learning in view of exemption is free of charge for
the individual, but no financial incentive is provided for the higher education
institution. This requires innovative solutions to overcome obstacles and
financial incentives to encourage promotion of flexible pathways.

Project based
funding can also be considered as giving providers flexibility to adjust to the
needs of a range of target groups. However, project based funding is typically
a one-off source of revenues and it therefore caters for the creation and early
implementation of innovative measures but it does not provide sustainable
sources of funding.

… with
services integrated and working together to support learning, especially
guidance

To allow
individuals take advantage of the range of opportunities for the development
and recognition of skills made available by lifelong learning policies,
effective provision of guidance is a necessity. Citizens need support in
planning their individual learning pathways to acquire the right mix of skills
that will enable them to access further learning or the labour market. They
need support in the identification, documentation and validation of the skills
and competences that they have already developed through study, work, volunteering,
leisure and life experience. Integrated guidance services need to be able to
accompany citizens to both plan voluntary transitions and tackle external
changes. The more education and training systems become open and flexible, the
more crucial guidance becomes to help citizens reap the benefits of such
programmes.

Policy practice: Turning a
university into a lifelong learning centre - University of Graz/Austria

The University implemented its lifelong
learning strategy within several steps including research on the state of LLL
within the university, on models of lifelong learning in universities and by
consulting internal stakeholders. As a key result of the strategy development a
Centre for Continuing Education was established, which is in
charge of developing and promoting education and training activities and
programmes of interest to the general public.          
In detail see Annex, Policy example 15

Policy practice: Adapted
funding solutions to support flexible learning pathways

In Denmark, Higher education
institutions are paid a one-off taximeter funding if the competence assessment
to enter higher education results in an exemption of at least 15% of the study
programme.

In Belgium/Flanders,
the funding model for higher education, introduced in 2008, includes
multi-annual agreements between the minister and each higher education
institution setting out agreed objectives and targets and the commitment of the
institution to deliver on them and the amount of funding involved. The
performance agreements include objectives aimed at widening participation and
incentives for the institutions to support achievement and success of students
from more vulnerable backgrounds, from ethnic minorities, students with a
disability, or students who are already in work.

In Finland a performance based funding system has been introduced to support the VET
reform in view of competence-based and individualised provision. The main
indicators for the performance based funding are employment after
graduation, proportion of students completing their programmes and students
continuing on to further studies.          
In detail see Annex, Policy examples 16

Policy
practice: National Plan on Adult Education in Slovenia

Slovenia developed
and established an Adult Education Plan. Key features are: holistic access and
the connectedness of all forms of learning; diversity and flexibility of
learning offers; key competences and learning for personal growth, work and the
development of society; possibilities for the recognition and validation of learning;
appropriate information and guidance infrastructure. The network of fourteen
lifelong learning centres in Slovenia is central in the achievement of improved
quality and effectiveness of education and training systems.      
In detail see Annex,
Policy example 17
3.4 Tackling barriers at individual level

Improved
flexibility of pathways and removal of structural barriers is a pre-condition
for increased take up, but not sufficient in itself to make people progress to
new fields or higher levels of learning. The reasons why people opt for a
specific pathway can only partially be influenced by the education and training
offer. Aspects such as attitudes towards a certain type of education, the
self-perception of their capacities, and notably the behaviour of their peers
influence, to a large extent, the choices individuals make. People’s choices
are rarely linear and affected by their interests, prior experience, their
aspirations or the guidance they receive[45].

For example,
in France the success rate of students holding the vocational upper-secondary
leaving certificate (Baccalaureat Professionnel) in achieving a Bachelor
degree is 20 percentage points below the success rate of people who hold the
general education qualification (this figure does not take into account those
who drop out during their studies and many drop out in the first year in fact)[46].
The indication of EQF levels on individual diplomas and certificates should
have a positive impact on attitudes and self-confidence, helping people to
perceive progression as separate from institutional considerations and more
confidently plan personal learning pathways.

Integrated
approaches show good results…

Increasing
use of flexible pathways requires approaches that combine more flexible offers
with measures for outreach to non-traditional learners, targeted (financial)
support to individuals and institutional capacity building, and, crucially,
adequate lifelong guidance.[47]

Research and
analysis of practice[48]
show that for vulnerable groups learning is usually not the only problem.
They tend to have multiple problems: social, financial, health and others, as
well as learning needs, which are best addressed in a holistic way, and in
partnership with relevant agents. Addressing their skills needs may require a
joined-up solution which addresses a combination of learning and other
challenges such as housing, unemployment, etc. In general, they are
"non-learners" who have been alienated and deterred from education and
training through failure, disaffection, disappointment with the initial
systems, social and financial constraints, etc., and as a result their
confidence in themselves and their abilities are low. Their disengagement with
learning means that they will not come looking; learning must be brought to
them in settings which are meaningful to their lives and work and
socio-cultural context. Also voluntary and community organisations, as well as
cultural and creative sector organisations, can play a powerful role in
engaging vulnerable groups back into learning, Motivating them will also
require raising their awareness of the personal benefits of learning and
improving their competences.

The European
Guide[49]:
Strategies for improving participation in and awareness of adult learning
is rich in examples of how countries are effectively designing awareness
campaigns and reaching vulnerable target groups. Outreach and awareness
raising should be followed up promptly by guidance to provide
information on the learning offer and to develop individual learning plans. For
many who have gained extensive experience and non-formal and informal learning,
validation of outcomes of their prior learning and experience should be
the basis for developing their individual plans. Once their interest has been
stimulated, learning opportunities should follow immediately. However, they
will not and should not be attracted back to the same institutions and
programmes of which they dropped out or failed at.

…with a focus
on raising aspiration and changing stereotypes…

When aiming
to tackle a negative cycle of under-achievement in education and competences in
a community, it is important to raise or change young people’s aspirations.
This also matters for example for breaking gender stereotypes in choice of
learning pathways and career pathways[50].
Lack of progression towards higher levels among disadvantaged groups is also
linked to the low aspirations that education and training staff tend to have of
them and their future learning careers. There is evidence that positive
aspirations of teachers for their students are related to students’ success[51].
Other approaches that appear effective are: mentoring, support by peers and
positive examples, empowering learning approaches.

…an including
adaptation of learning methods to the needs of target groups…

The
approaches used for second chance learners should be learner-centred,
and related to work and daily life, based on less formal, blended and embedded
methods. Persistence is an issue as these people have full and often
complex personal and family lives competing for their time and attention.
Flexible programmes that they can dip in and out of are therefore suitable.
Modules and units of content will help their progression and re-entry.

It is not enough
to simply attract these groups into learning, they must also have real
opportunities to progress and raise their level of qualification. This needs formative
assessment approaches to sum up their achievements but more importantly to
help the learning process and identify specific needs and adapt teaching
accordingly.

There is
likely to be a wide digital gap between most vulnerable groups and mainstream
citizens. Developing their ICT skills will broaden their learning
opportunities by giving them access to Internet and social media, but also
distance learning and OER, as well as enhance their basic skills.

Policy practice: System level
measures to support equity of access to higher education in Ireland

In 2008 the Irish Higher education
authority defined a strategy to strengthen the access of people from
disadvantaged backgrounds to enter higher education including a range of
actions e.g. Building capacity through a range of supports, including
continuing professional development, practitioner workshops and seminars
through the Strategic Innovation Fund.
In detail see Annex, Policy example 18

Policy practice: Competence
agencies (‘Kompetenzagenturen’) in Germany

Competence agencies in over 200 locations
in Germany aim at the social and professional integration of disadvantaged
young people (for example young people having left school without
qualifications, long term unemployed, people facing family difficulties or
those in debt and at improving their transition from school to work. The
initiative focuses on encouraging them to reflect on their own skills and
competences and empower them to develop these.          
In
detail see Annex, Policy example 19

Policy practice: Effective
practice in raising aspirations of young people – UK England

Effective practice in raising
aspirations of young people was identified in the UK/England and
highlighted the importance of several aspects, including: engagement with young
people at an earlier stage and at key transition points, alternative offers to
mainstream schooling, use of mentors, role models and peer support, advice and
guidance, empowering etc.      
In detail see Annex, Policy example 20

3.5 Lessons learned from Flexible
Pathways and Learning Offers

Flexible pathways
are vital for participation…

Evidence suggests that
flexible pathways have important potential for encouraging participation in
lifelong learning as they allow individuals to build upon prior learning and
link their competences and qualifications gained across different phases and
contexts of life – leisure and working life, inside and outside formal
education and training.

…and barriers
must be removed as both system and individual levels

While removing
system-level barriers between different sub-sectors (e.g. restricted
progression from VET to higher education) is a precondition for flexible
pathways, this is not sufficient in itself.

EU transparency
instruments can support flexibility…

The implementation of
learning outcomes based approaches and transparency tools (EQF, NQFs, ECVET,
EQARF) is expected to clarify progression possibilities for individual
learners. This needs to be supported by the establishment of structures that
give easy access to integrated learning services, including guidance and
validation of prior-learning in order to effectively support learners who are
willing and motivated to follow such paths.

…alongside
changes in the way education and training is delivered and funded

Flexible pathways also
require more flexible learning offers including new modes of delivery of
learning content (e.g. modularisation of programmes, distance learning, evening
classes, etc.) and adapted funding mechanisms to provide incentives for
institutions to develop such offers.  In addition, institutions need to develop
their internal lifelong learning capacities, including abilities of staff to
deal with non-traditional or adult-learners.

…and a focus on
raising aspiration especially of disadvantaged groups

This needs to be
coupled with measures to promote the educational aspirations of disadvantaged
groups, including through guidance, mentoring and targeted support.

Annex
- Examples of policy practice

Policy example 1: Coordinating
implementation of an overarching LLL strategy in Austria

After several years of development and
stakeholder consultation, in July 2011 the Austrian government adopted its
National Lifelong Learning Strategy "LLL:2020", which bridges
education and training with labour market and social issues. It identifies 10
areas of priority and a total of 73 measures. The intensive consultation
process, inspired by EU-wide developments such as increased focus on
learning outcomes, key competences, validation, etc. helped to base the
LLL:2020 strategy on a broad common understanding among stakeholders about the
principles and objectives of LLL.

For the implementation
process of the strategy, a National Task Force for Lifelong Learning
brought together four federal ministries covering the areas education and
training; science and research; labour and social affairs; economy, youth and
families. A National Platform for Lifelong Learning with an advisory and
monitoring function has also been established, representing all relevant
stakeholders i.e. other federal ministries and governmental agencies such as
PES, the social partners, the regions and communes, universities, researchers,
NGOs etc.

Remarkably, for the
first time the Austrian government has committed to reach agreed benchmarks on
a number of LLL issues by 2020. To monitor this, a yearly implementation report
is submitted to the federal council of ministers to analyse developments and
progress as well as identify obstacles and under-performance. A final report
will be submitted in Autumn 2020.

Source: “LLL:2020: Strategie
zum lebensbegleitenden Lernen in Österreich”/ : http://www.bmukk.gv.at/medienpool/20916/lllarbeitspapier\_ebook\_gross.pdf

Policy example 2:
"Learning and working" programme in the Netherlands

"Leren en
werken", operational between 2005-2011, focused on coordinating the
education and training and guidance provision in the area of adult learning
with the labour market needs at regional level. The main principle behind the
national funding programme presented was that the government decided to
subsidise not specific programmes organised by the involved stakeholders (these
are funded through other sources) but the contact and coordination among them.
By setting up regional networks, the stakeholders can mutualise their
activities and reach common objectives more effectively. These success factors
were highlighted:

- The cross sectoral
management of the programme through a joint directorate set up by the two
involved ministries (ministry of education and ministry for social affairs and
employment) helped to overcome sectoral thinking and strengthened commitment.

- The importance of leaving
autonomy to the actors on the ground to define their own objectives and
actions: the funded networks needed to have clear objectives which had to be
agreed among the partners;

- The new role of the
government as a “partner” and a provider of a service going beyond the
usual functions of subsidiser and controller (the civil servants in charge of
the programme went directly to the regions, on a frequent basis, and
“recruited” partners for these networks and advised them on their actions);

- The stimulation of
commitment through co-funding requirements: The networks had to provide 25% of the
funding – this can be in the form of human resources rather than budget.

Source: Summary report
of the EU peer learning seminar on critical factors for the implementation of
LLL strategies (2010), http://www.kslll.net/Documents/
Summary%20report%20%20seminar%20critical%20factors%20for%20LLL%20implementation.pdf;
see full case study GHK (2010)[52], http://ec.europa.eu/education/moreinformation/
doc/2010/strategies \_en.pdf, p. 160

Policy example 3: How Sector
Skills Councils function in the United Kingdom

Partially funded by the
UK government Sector Skills Councils (SSCs) are independent, employer-led,
UK–wide organisations designed to build a skills system that is driven by
employer demand with a view to enhance competitiveness of industries. SSC
boards include representatives from employers, employees, education and
training institutions, as well as government observers. There are currently 22
Sector Skills Councils covering over 90% of the economy and they all work
towards the following four key goals:

1) reducing skills gaps
and shortages; 2) improving productivity, business and public service
performance; 3) increasing opportunities to boost the skills and productivity
of everyone in the sector's workforce; 4) improving learning supply through
National Occupational Standards, apprenticeships, and further and higher
education.

The main rationale for
the sector skills councils is to create platforms which bring together
employers representatives, employees’ representatives and the education and
training sector to continuously ensure that training provision is up-to
date and responsive to labour market needs. The role of these councils is to
support information exchange and common decisions about themes outlined above
and to be proactive in developing actions in the areas of education and training.
This includes: working with employers to identify future skills needs;
developing skills and training solutions; setting occupational standards;
influencing and shaping the future development of qualifications; designing
apprenticeship frameworks; encouraging greater investment in training;
providing labour market information that assists in long-term business
planning.

Their performance was evaluated in 2009/2010. 22
of the 25 Sector Skills Councils were successfully relicensed. An evaluation of
impacts of SSCs showed gains of between £100m and £130m a year from Government
and Industry funding of £5m a year.

Sources: http://www.ukces.org.uk/sector-skills-councils/;
http://www.sscalliance.org/Home-Public/SectorSkillsCouncils/SectorSkillsCouncils.aspx

Baker Tilly (2010): Alliance of Sector Skills Councils. Evaluating economic impact

Policy example 4: The industry
competence fund for paid training leave in Denmark

In Denmark in 2007 CO-Industri and Dansk Industri signed a new collective
agreement allowing Danish workers to increase their right to paid continuing
VET and to undertake a two-week paid vocational training course of their
choice. The Industriens Kompetencefonden (industry competence
development fund) has been set up for this purpose, starting activities in
January 2009 and intended to coexist with the industry training fund. The competence
development fund is expected to change the traditional Danish STF model. The
rationale behind this competence development fund is the matter of
delocalisation; there is a need for employees to get relevant skills and
competences in new sectors/jobs before their transfer to other areas of the
world. In the present Danish CVET system, the employee has to agree on training
activities with the manager/employer, which makes it difficult for employees to
train in competences for a different job in a different sector. Therefore, the
idea was to set up a more flexible and proactive CVET system intended to
facilitate training for other jobs/sectors. This industry competence
development fund secures up to 85 % of employee salaries while they are
training. The public sector pays salary compensation up to the level of
unemployment benefit, whereas the competence development fund pays the
difference between the unemployment benefit and the specified 85 %.

Source:
Cedefop (2008), Sectoral training funds in Europe, http://www.cedefop.europa.eu/en/Files/5189\_EN.PDF,
p. 43

Policy example 5: Educational
Partnerships between Schools and Companies in Baden Württemberg/Germany

In order to optimally
prepare all pupils for their transition into working life, partners from the
worlds of school and business decided in 2012 to renew their cooperation on
school-business partnerships, which started in 2008.

Every secondary school
providing general education should establish and maintain at least one business
partnership. Such cooperation can also be formed with a network of several
companies and with vocational training institutions. Partnerships enable
schools to use a more in-depth and defined approach in their work concerning
the requirements and demands of working life and give companies the chance to
prepare themselves for their future members of staff and contribute towards the
provision of knowledge concerning complex business contexts.

Against this background,
the Government of the Land Baden-Württemberg, the Association of Chambers of
Industry and Commerce, the Confederation of Skilled Crafts and the Union of
Employers’ Associations have decided to conclude an agreement on the
establishment of partnerships. Since the first agreement of 2008 around 90% of
all lower secondary schools have entered into contractual partnerships with one
or several companies (some schools have up to 20 partners), involving around
3.500 enterprises throughout the region.

Sources: Earlall 2012,
"One step ahead" project, Baden-Württemberg report http://www.mutual-learning.eu/documenti/en/pub\_w\_40.pdf
and http://www.kultusportal-bw.de/servlet/PB/menu/1241669/

Policy example 6: Roadmap for
employment – Academic Partnerships (REAP), Ireland

REAP is a collaborative
project, involving eight Higher Education Institutional partners, for the research,
development and validation of a Higher Education /Employment Partnership Model
and Roadmap. It has been developed in response to the Irish National
Development Plan (NDP) 2007-2013, which identified one of two key areas for
action in labour force development as: “Ensuring the development of a
high-skilled, adaptable workforce through continued emphasis on lifelong
learning and training of those in employment.” as a key area, which can
best be achieved by coherent, consistent and well developed tripartite
relationships between Learners, Employers and Higher Education Institutions.

The strategy for the
REAP project is based on an initial analysis on the learning needs of workplace
sectors, followed by partnership model development. The initial learning
need-analysis strand has key actions including a review of employers, learning
needs and partnership approaches, and regional and sectoral research. The
partnership model development activity has three key strands: implementation
and validation, integration and dissemination aimed at establishing a framework
of employer, and HEI collaboration based on specific activities and context.
The REAP project adopted a ‘trial implementation approach’ specifically
delivering demonstration programmes in specialist targeted courses,
co-operative placements, academics and researchers into the workplace,
professional postgraduate programmes, and industry into academia.

Source:
Science-to-Business Marketing Research Centre (2011), 30 best case studies of
good practice in the area of UBC within Europe; Full case
study accessible at http://ec.europa.eu/education/higher-education/doc/studies/munstercase\_en.pdf

Policy example 7: Local
learning networks in Germany (Lernen vor Ort)

Lernen vor Ort is a
national funding programme (60 Mio EUR, ESF supported, 2009-2014) supporting
the setting up and operating of partnerships for a better local education and
training systems. The programme tries to address the lack of long term vision
at the local level shared by stakeholders active in the educational field. The
types of stakeholders concerned are: relevant public administration departments
at the local, regional and national levels; public providers; for profit and
not for profit private providers; social partners; enterprises; and
associations. Currently, each stakeholder is responsible for a fragment of the
lifelong learning provision, but the role of the different institutions is not
always clearly defined and overlaps exist. This makes the learning offer hard
to understand for both individuals and policy-makers, and undermines vertical
and horizontal permeability, especially for those who have fewer resources to
find and process the relevant information. The complexity of provision is
combined with a lack of coordination, making it difficult to ensure the offer
as a whole matches needs of the labour market.

The design of Lernen vor
Ort draws on the lessons learnt during the implementation phase of the previous
‘Learning Regions’ program114. The main
lesson learnt is that for a strategic vision to be implemented successfully, it
has to be anchored in a permanent structure, close to the people, with a
mandate, decision-making power and financing capacity, such as a municipality.

The broad objective of
LvO is that municipalities put in place a well-functioning local education
management based on a monitoring and reporting system and involving all
relevant stakeholders. Municipalities should get a good overview of who is
doing what in education and training, and undertake a coordination function to
make sure each actor is pursuing the same objectives, defined collectively, on
the basis of quantitative information provided by a monitoring system. Special
attention needs to be given to the smooth management of pathway transitions and
efficiency of guidance and counselling.

Knowhow on innovation in
education management is provided by around 180 German foundations who are key
partners of LvO.

Sources: http://www.lernen-vor-ort.info; and case
study by GHK (2010), http://ec.europa.eu/education/more-information/doc/2010/strategies\_en.pdf,
p. 129

Policy example 8: Community
based access to further and higher education in Ireland

Community-based
access to further and higher education is an approach developed as from 2000
and aimed at increasing participation in tertiary education of people from
lower socio-economic backgrounds. The approach involves local community
organisations, including third and private sector organisations, to engage with
and support people from these target groups throughout their education, with a
particular focus on bringing them up to tertiary level. Key elements of the
approach include stakeholder cooperation and communication, outreach to people,
and support to learners, including financial.

The approach has been
put into practice in various programmes, most notably the Millennium
Partnership Fund for Disadvantaged (2001-2010). The Fund operated as part of a
broad continuum of work being done by partnerships/local development
communities. This work, which covered a spectrum from pre-primary school
education through to mature students, was considered critical in raising the
aspirations of learners within the local community.

The fact that
community-based organisations managed the Millennium Partnership Fund was seen
as vital in successful delivery. It engendered trust with learners from the
local communities involved. It also allowed local consortia to be created, e.g.
in Cork City and county where the local organisations in receipt of the
Millennium Partnership monies worked with University College Cork, Cork
Institute of Technology and six local further education colleges.

A variety of ways of
raising aspirations were developed including visits to the local tertiary
educational institutions for school children, including Easter or summer camps;
homework clubs run by universities; more focussed mentoring and tuition;
parents’ programmes to explain to the advantages of tertiary education. Thus
action addressed also the wider environment of individuals.

Source: GHK (2010) case
study, http://ec.europa.eu/education/more-information/doc/2010/strategies\_en.pdf, p. 151

Policy example 9: Flexible
pathways to higher education in Austria

Since 1997
vocational education and training students have had the possibility to obtain
the professional baccalaureate (Berufsreifeprüfung or Berufsmatura) and in 2008
the possibility to combine an apprenticeship with preparation for the
professional baccalaureate (Lehre mit Matura) was introduced and preparatory
courses made free of charge. In the academic year 2007/2009, 2 609 students
received the professional baccalaureate certificate, about 2.7% of the
comparable age cohort (Klimmer, Schlögl and Neubauer, 2009). 45% of these graduates
start a university programme, 23% go to a Fachhochschule science, about 10% a
university college of education and 20% a VET college (Klimmer et al., 2009).
Good general education is a pre-requisite for students to enrol in higher 
education, including tertiary education at university and Fachhochschule, and
the option to move into higher education is not only valuable in itself, it
also directly confers status on VET programmes.

Source: OECD (2010)
Learning for Jobs – OECD Reviews of Vocational Education and Training – Austria, http://www.oecd.org/edu/45407970.pdf

Policy examples 10:

In Portugal a specific infrastructure for
validation was set up, namely the New Opportunities Centres (NOC, 454 in total)
where people could apply for validation and receive guidance, and the National
Agency for Qualifications (in 2007) as the responsible body responsible for
both the coordination of the national validation system and for vocational
training reform. The New Opportunities Initiative has had significant outreach:
more than one million low qualified adults were encouraged to improve their
educational attainment

The New Opportunities Initiative (NOI) was
officially announced and launched in December 2005. NOI is a vast public
sponsored programme contemplating Accreditation of prior learning (APL),
Recognition of prior learning (RPL) and adult education, targeted at the entire
Portuguese low-skilled adult population (estimated at around 72% of the labour
force below secondary studies, or circa 3.5 million adults according to the
2001 Population Census).

These NOC register a record 1.6 million
enrolments and have topped the impressive figure of 430,000 certifications (9th
and 12th grades).[53]

In France individuals can apply for
validation by submitting a portfolio of experiences including detailed
descriptions of skills and competences to the ministry responsible for awarding
qualifications. An established jury appointed by the responsible ministry
decides upon the award of a full or partial qualification based on the
application.

In the Netherlands individuals can apply
for validation of experiences by submitting a portfolio of experiences to a
recognised provider of "experience certificates". Assessors within these
providers can deliver an experience certificate to be used either for job
search or for official recognition by an examination board of a formal
education and training provider. The Dutch validation system is further
supported by a knowledge centre which set up a quality code for validation that
has to be respected by the providers of experience certificates. In 2009 the
government provided funding for validation as a means to cope with collective
redundancies, allowing dismissed employees to obtain an experience certificate
facilitating their recruitment by other employers. A comprehensive evaluation
study on the Dutch experiences, in which more than one thousand individuals,
stakeholders and employers participated, made it clear that the Dutch system of
validation has been successful as an instrument for enhancing the qualification
level of individuals. The same study showed that the impact of the validation
system for individual career development is more mixed, but that validation of
non-formal and informal learning is an important catalyst in situations where
individuals invest in the management of their own career and where employers
invest in the careers of their staff[54].

Policy example 11: NQF and credit system for flexible pathways in Slovenia In Slovenia the qualifications framework and the credit system are used to enable the design of pathways within a specific field/ professional area. In Slovenia pathways are developed by enabling people with lower level qualifications to have their credit recognised in view of higher level qualifications (mainly in VET). There are three levels of vocational upper-secondary qualifications in Slovenia each having a different level but also a different typical duration. The objective of these pathways is to enable young people or adults with lower level qualifications to have their credit transferred if they want to achieve higher level qualifications. The credit is transferred across pathways on the basis of providers’ decisions. Some modules for general education are identical and can therefore be transferred easily. The transfer of credit for vocational components is decided not only on the basis of completion but also on basis of the level of performance as expressed in grades. It is also possible to award them partial qualifications (NVQs) if they did not succeed in achieving the full qualification. Equivalence between partial qualifications and units of qualifications is established when qualifications are designed. This will have a two-fold purpose: it will on one hand enable learners who fail the full qualification to hold at least a partial qualification and on the other it will facilitate accumulation for adult learners who achieve a partial qualification through validation and wish to achieve a full vocational qualification. Source: Cedefop (2010) Linking credit systems and qualifications frameworks, http://www.cedefop.europa.eu/EN/Files/5505\_en.pdf

Policy examples 12:

In Estonia, the 2003 University Act
requires that universities accredit prior and experiential learning and obliges
them to elaborate their own rules and procedures for recognition. The legal act
Standard of Higher Education (Kõrgharidusstandard, updated in 2007) sets
a very broad framework for common regulations for recognition of prior learning
and states that all HEIs need to have such regulations within the institution.

In Finland, a set of 21 recommendations
for universities and polytechnics (universities of applied sciences) regarding
the validation of informal and non-formal learning were prepared in 2009 by the
Council of University Rectors and the Rectors’ Conference of Finnish
Universities of Applied Sciences. This set of recommendations covers various
aspects of validation, from both the perspective of HEIs and students’
perspectives and general recommendations for implementation.

Source: Cedefop (2010), European Inventory on
Validation of Non-formal and Informal Learning 2010 Country Report Finland: http://libserver.cedefop.europa.eu/vetelib/2011/77460.pdf
and Country Report Estonia: http://libserver.cedefop.europa.eu/vetelib/2011/77456.pdf

Policy examples 13:

Modularisation for more flexible learning in Lithuania

The 2007 revision of the 1997 Law on vocational
education introduced a modularised structure of qualifications whereby content
is regulated by individual guidelines for higher education study fields and
professional standards. According to the Law, a module in vocational training
is a self-contained teaching and learning unit, leading from a defined input
level of the learner to a competence increase planned in advance.
Modularisation has been taken forward to introduce more flexibility and greater
opportunities for lifelong learning; it also links to the expected development
of validation of non-formal and informal learning in vocational education and
training.
Modularisation is also conceived as part of creating better conditions for
learning mobility and an overall internationalisation of studies.

The modularised approach has been tested in a
European project for the trade of decorator/builder (funded by Leonardo da
Vinci /Lifelong learning programme). As this trade is offered by 40 of the 70
VET institutions testing of modularisation involved more that 50% of all VET
providers. This project took as a starting point the Scottish modular VET to
develop a European modular training programme for decorator/builder with the
associated credit system.

Mechanisms to recognise non-formal/informal
learning

According to the existing procedure, individuals
with at least one year of work experience and those over 18 can apply to VET
institutions for the recognition of their competences. The level of skills and
knowledge of an applicant is defined on the basis of VET standards and relevant
VET programmes. Furthermore the applicant and the school agree on a timetable
of courses as necessary and a final qualification exam. Individuals who
successfully pass the exam are awarded the qualification certificate or
qualified worker’s diploma which gives access to further formal education. For
those who continue learning according to a chosen VET programme prior learning
is recognised as part of their training programme.

Non-formal education may be taken into account
at sectoral or employer level for improvement of professional position (when
participating in validation (atestacija), annual activity assessment, etc.).
For example, for receiving a license in health care sector nurses must prove
participation in qualification development events in the five years prior to
the assessment. The documents (certificates, diplomas, etc.) provided by nurses
are assessed by experts in charge of validation and certification.

Source: Vilnius Builder Training Centre et al.
(2010); Cedefop ReferNET Lithuania (2011).

Structuring initial VET in units and modules in Luxembourg

The 2008 Law for reforming VET focuses on
reorienting IVET towards a modular and competence-oriented structure. The
changes setting up requirements for ECVET and EQF/NQF implementation will run
in the period 2009-13. The reform concerns 119 initial VET programmes over
three qualification levels. All vocational training is structured into learning
units which can be accumulated.

The reform includes dividing IVET programmes
into components (units and modules). It is new to the Luxembourg VET system
that units correspond to assessable partial qualifications and are further
structured into modules. Units run from six to a maximum of twelve months; the
model foresees six units corresponding to a full qualification. The development
from qualification to curricula is based on a four step approach: the
definition of professional profile (Berufsprofil) includes working
areas/domains, assignments and tasks; the development of training profiles
(Ausbildungsprofil) to which competences are associated (competences are
defined following a 2008 law as encompassing knowledge, skills and attitudes
necessary to master one profession or trade; they are also broken down into
cognitive competence, social competence, self-competence); the training
profiles are structured into framework curricula (Rahmenlehrpläne) which
includes units or modules; the framework curricula build the basis for
developing assessment and curricula.

Source: Euler and Frank (2011); Ministère de l’Education
nationale et de la formation professionnelle (2011).

Policy example 14: Programme for
Basic Competence in Working Life, Norway

The Programme for Basic Competence in Working
Life (BCWL) was introduced to fund and support basic learning projects in
enterprises, or projects aiming at preparing people for working life in
co-operation with the Norwegian Labour and Welfare Administration. The overall
goal is the prevention of exclusion from working life because of insufficient
basic competence. Key features of the programme include: co-operation between
companies and providers; the provision of guidance and information; and quality
assurance for providers. The programme requires close co-operation with
employers who agree to the provision of basic skills in the workplace in return
for financial compensation for workers’ time spent on structured learning.

Implementation is evidence-based: the
responsible Norwegian Agency for Lifelong Learning Vox carries out research,
analyses and evaluations in the field of lifelong learning. Data are collected
from public registers and Vox surveys relating to enterprises and to the
general public, which contribute to the body of statistical evidence on adult
learning and documents needs and effects of measures and methods – for the
individual and for society. Consequently, Vox contributes to the development of
provision for individually adapted training in literacy, numeracy, ICT skills
and oral communication skills for adults, and is also engaged in the
development of an integrated service for career guidance and validation.

In
co-operation with education providers and enterprises Vox developed competence
goal descriptions for adult basic skills and contributes to the development of
screening tools, as well as the continuing professional development for
teachers and facilitators delivering these skills. Since 2008 BCWL applicants
are obliged to relate their proposals to the Norwegian Framework for Basic
Skills for Adults. The framework comprises: competence goals in literacy,
numeracy, digital competence and oral communication; guidelines for providers;
mapping tools and tests; didactic models and teaching resources; and a model
for teacher training. Source: GHK (2010) case study, http://ec.europa.eu/education/more-information/doc/2010/strategies\_en.pdf,
p. 166

Policy example 15: Turning a
university into a lifelong learning centre - University of Graz/Austria

The University started to develop its lifelong
learning strategy in 2000 and adopted it in 2002, following a long internal
consultation process, including the following steps:

1) Internal survey on the state of continuing
education within the university – including an assessment of strengths and
weaknesses; 2) Research on models of lifelong learning in universities and an
internal project for the development of services and products in continuing
education; 3) Consultation of internal stakeholders (Rector’s office, heads of
departments, staff, etc.) and establishment of an internal project group.

The implementation of lifelong learning
activities within the university requires pooling of expertise, time and
commitment from a large number of staff, i.e. the key internal stakeholders.
They are initiators and designers of learning activities but also participants (and
learners) in some cases. Therefore creating a genuine lifelong learning culture
among the staff members was crucial to the success of the development as well
as implementation of the strategy. A central feature of the strategy is that
LLL has become an intrinsic element of the University’s activities and is among
the core internal performance indicators. In other words LLL activities are not
a secondary activity but are of equivalent importance to the core teaching and
research activities. As a key result of the strategy development a Centre
for Continuing Education was established as an independent
organisational unit which is in charge of developing and promoting education
and training activities and programmes of general interest to the broad public.
The creation of an innovative learning offer, based on the University's
scientific knowledge and expertise, is combined with information and guidance
to non-traditional target groups of learners. A further result of the strategy
process is the "Uni for Life" programme, offering continuing
professional development training for business and industry (for
graduates/post-graduates).          
Source: GHK (2010) case study, http://ec.europa.eu/education/more-information/doc/2010/strategies\_en.pdf, p. 97

Policy examples 16: Adapted
funding solutions to support flexible learning pathways

In Denmark, Higher education institutions
are paid a one-off taximeter funding if the competence assessment to enter
higher education results in an exemption of at least 15% of the study programme[55];

In Belgium/Flanders, the funding model
for higher education, introduced in 2008, includes multi-annual agreements
between the minister and each higher education institution setting out agreed
objectives and targets and the commitment of the institution to deliver on them
and the amount of funding involved. The performance agreements include
objectives aimed at widening participation and incentives for the institutions
to support achievement and success of students from more vulnerable
backgrounds, from ethnic minorities, students with a disability, or students
who are already in work.[56]

In Finland a performance based funding
system has been introduced to support the VET reform in view of
competence-based and individualised provision. The main indicators for the performance
based funding are employment after graduation, proportion of students
completing their programmes and students continuing on to further studies. An
additional incentive is the vocational education award of excellence given by
the Ministry of Education to the top three schools each year. The excellence
award competition has been organised annually since 2001.[57]

Policy example 17: National Plan
on Adult Education in Slovenia

In Slovenia, a National Plan on Adult Education
was adopted in June 2004 and its implementation is determined by the Annual
Programme of Adult Education passed by the government. The development of
lifelong learning practices is closely associated with the adult education
field, as well as with social, political, economic, cultural and technological
changes. Key features are: holistic access and the connectedness of all forms
of learning; diversity and flexibility of learning offers; key competences and
learning for personal growth, work and the development of society;
possibilities for the recognition and validation of learning; appropriate
information and guidance infrastructure. The network of fourteen lifelong
learning centres in Slovenia is central to the achievement of improved quality
and effectiveness of education and training systems. Their activities include
counselling services to local communities, outreach, a mobile unit to serve
Roma communities and self-directed as well as organised learning at lifelong
learning points.

Source: GHK (2010) case study, http://ec.europa.eu/education/more-information/doc/2010/strategies\_en.pdf, p. 172

Policy examples 18: System level
measures in Ireland to support equity of access to higher education

In 2008 the Irish Higher education authority
defined a strategy to strengthen the access of people from disadvantaged
backgrounds to enter higher education. Building on the findings of an earlier
evaluation[58],
the strategy presents a range of actions to reach this global objective,
including:

      -
Institution-wide access plans to promote greater equity of access and
participation in higher education.

      - Building
capacity through a range of supports, including continuing professional
development, practitioner workshops and seminars and through the Strategic
Innovation Fund.

      -
Supporting exchange of good practice in widening participation for
practitioners, registrars and all interested staff.

      -
Recognising good equality practice:  The National Access Office promotes
equality training for staff in higher education institutions and recognition of
good equality practice as part of promotional criteria.

      - Expansion
of part-time/flexible learning opportunities and student support for part-time
learners

      -
Diversification of entry routes to higher education: Key issues include:
progression, national policy for higher education access courses, higher
education access route, supplementary admission route for students with
disability and recognition of prior learning

      - An
early second-chance strategy for 17-22 year olds

      -
Promotional campaign

      -
Transition year module on access to further and higher education

The mid-term review[59]
showed progress in several areas namely participation of mature students and
students with disabilities, flexible learning opportunities but also
development of institutional access strategies.

Extracts from: National Office for Equity of
Access to Higher Education, HEA (2008) National Plan for Equity of Access to
Higher Education 2008-2013, http://www.hea.ie/files/files/file/
National\_Access\_Plan\_2008-2013\_(English).pdf

Policy example 19: Competence
agencies (‘Kompetenzagenturen’) in Germany

Competence agencies in over 200 locations
in Germany aim at the social and professional integration of disadvantaged
young people and at improving their transition from school to work. The young
people targeted (for example young people having left school without
qualifications, long term unemployed, people facing family difficulties or
those in debt) face multidimensional problems and are not often reached by the
existing support system. The initiative focuses on encouraging them to reflect
on their own skills and competences and on developing these. Competence
agencies empower these young people to manage their own lives and support them
in the development and implementation of a realistic career plan.

The support
provided by the competence agencies’ staff is tailored to the situation of each
individual. Teams are made up of social workers and educators who provide an
advisory role with the help of psychologists. Competence agencies follow a
specific method, called "Case Management", to empower disadvantaged
young people and foster their social and professional integration. In this
process, the added value of competence agencies is both to provide services and
to serve as a gate-opener to services provided by the partners. The process can
be described as follows:

Situation
assessment: The focus is on what brought the young person to the
competence agency and on his/her biography. Questions such as “why did you
decide to drop out from what you undertook in the last few years” are explored
(two-three meetings with a case manager).

Test of
competences: A psychologist or social worker undertakes standardised
tests with the young person to evaluate their key competences, including
communication skills and ability to concentrate.

Debriefing: The young
person is given the opportunity to assess the support so far and possibilities
for further support are discussed.

Detailed
career plan: The young person and the case manager develop and agree on
a detailed career plan specifying achievable objectives and the steps needed to
achieve them. It also involves career/vocational guidance generally provided by
the local employment agency133, in partnership with chambers and professional
organisations. Typical objectives are entry into the job market (job,
apprenticeship, internship) or entry into a vocational school.

Follow-up:
Approximately quarterly, an exchange session takes place to follow up on the
implementation of the career plan. Discussions take place on which steps have
been accomplished successfully, what difficulties were encountered and, if
needed, objectives are revised.

Feedback: A few months
after the person has started training or a job, another exchange session is
organised to ensure s/he has not dropped out. If problems are detected, other
exchanges take place. If this is not sufficient, the whole process of case
management can be restarted.

Source: GHK
(2010), full case study, http://ec.europa.eu/education/more-information/doc/2010/strategies\_en.pdf, p. 136

Policy example 20: Effective
practice in raising aspirations of young people – UK England

A review of examples of effective practice which
focused on engaging and re-engaging, and on the progression of young people
(apprentices or NEETs) with regard to education and training showed that the
following aspects of the learning approaches were related to success:

Engage with
young people at an earlier stage and at key transition points: To raise
awareness at an opinion forming stage such as through taster sessions, mentors,
visits. Key transition points include from primary to secondary; between
compulsory and post-compulsory; and between education and labour market.

Provide for
the specific needs of the different sub-groups within the NEET category: The NEET
term is problematic as it refers to different groups of young people with a
range of different and often multiple needs of varying intensity. Key areas of
effective practice include distinguishing between ‘frictional’ and long term
NEET; BME and gender specific initiatives; targeting specific support to
address the specific barriers of particular groups, especially childcare.

An
alternative offer to mainstream schooling: A key element to
raising the aspirations of young people, particularly those currently
disengaged from learning, is for the offer to be something that is not
associated with their experience of formal schooling, yet importantly still
linked to the mainstream so that re-engagement is possible and encouraged, such
as offering young people opportunities to study outside of school, with
different learning styles and experience a new environment and also to engage
in positive activities.

Use of
mentors, role models and peer support to encourage engagement: A
recognised effective approach in the context of funded pathways to employment
and training such as personal tutors, business mentors, peer support, and role
models. Group work as well as one to one mentoring can provide a mechanism for
providing contact with and support from peers and non-peers alike. Developing
group work in this way can be resource intensive, requiring time and particular
skills in facilitating group dynamics.

Impartial,
realistic, tailored and responsive information, advice and guidance: IAG should
be: At the right level, delivered in the right learning style and in the right
environment, specific, impartial, realistic and provided on a one-to-one basis
and provided by experienced and knowledgeable advisers, focused on ensuring all
young people are provided with IAG at the ages of 11, 14 and 16 years,
multi-dimensional and embracing.

Flexible and
tailored support based on trust and respect: Some programmes include
a designated trusted adult with whom they build a strong relationship founded
on advocacy, brokerage and support. Learning should be a co-operative venture
between adults and young people. Practitioners should understand the individual
and be supported in a flexible and tailored way. Staff support and development
is important.

Pro-active
tracking and empowering young people: Need to proactively
track progress to stimulate and reaffirm engagement in a way that captures both
personal development and attainment. This is often the element of support that
is neglected by providers due to competing priorities; this area of work needs
to be recognised and properly resourced. Equally important is allowing young
people to lead on the review process through a package of individualised
support.

Celebration
of achievement: Particularly important for those that have not received a
certificate or qualification previously e.g. end of course awards, celebration
events, such as Youth Achievement Awards.

On-going
support and tracking: Progression is not always about ‘getting a job’
but should also include further skills development and an appreciation of the
value of learning. Relationships and activities which have lifted aspirations
can be difficult to maintain beyond the life of a programme unless support
continues after the programme. In this context, identifying destinations and
monitoring regression is therefore important, particularly for disadvantaged
learners

Extract from: Learning and Skills Council (2009)
Identifying Effective Practice in Raising Young People’s Aspirations, http://readingroom.lsc.gov.uk/lsc/national/nat-raising\_aspirations-re-24sep2009-v1-1.pdf

[1]    See also Commission Communication COM(2012) 299

[2]    Council
conclusions of 12 May 2009 on a strategic framework for European cooperation in
education and training (‘ET 2020’), (2009/C 119/02); Agenda
for New Skills and Jobs, COM (2010)681 final

[3]    2012 Joint Report of the Council and the Commission on the
implementation of the Strategic Framework for European cooperation in education
and training (ET 2020) (2012/C 70/05)

[4]    See Agenda for New skills and Jobs, COM (2010)681 final

[5]    2012
Joint Report of the Council and the Commission on the implementation of the
Strategic Framework for European cooperation in education and training (ET
2020) (2012/C 70/05)

[6]    2012 Joint Report of the Council and the Commission on the
implementation of the Strategic Framework for European cooperation in education
and training (ET 2020) (2012/C 70/05)

[7]    Similar to trends in school governance, a number of countries
have transferred responsibilities for adult learning policy to regional and
local authorities in order to better respond to regional and local needs.

[8]    See e.g. Lifelong Learning 2010 research project (2007): Patterns
of Policy in Thirteen European Countries, http://lll2010.tlu.ee;
and Hungarian national report 2009 on the implementation of the "Education
and training 2010" work programme http://ec.europa.eu/education/lifelong-learningpolicy/doc/natreport09/hungary\_en.pdf

[9]    Lifelong Learning 2010 research project (2007): Patterns of
Policy in Thirteen European Countries, http://lll2010.tlu.ee/

[10]   Ibid pp. 95

[11]   UNESCO (2010), Global report on adult learning and education,
Hamburg: UIL

[12]   The types of partnerships between public and private actors
discussed in this SWD are generally understood as voluntary, non-contractual
collaboration and cooperation between stakeholders in the education system
mainly to support policy development, exchange of knowledge and sharing of
resources.

[13]   Global Education Initiative (GEI) Model of Effective
Partnership Initiatives for Education, World Economic Forum 2007

[14] See summary report on EU peer learning seminar on critical factors
for the implementation of lifelong learning policies, Vienna, 2010, http://www.kslll.net/Documents/Summary%20report%20-%20seminar%20critical%
20factors%20for%20LLL%20implementation.pdf; and Global Education Initiative
(GEI) Model of Effective Partnership Initiatives for Education, World
Economic Forum 2007; Bernard Brunhes International, (2006), EU-Wide
Evaluation of the Community Initiative Equal 2000-2006, Final Report,
Volume 1.

[15]   See Eurofound and CEDEFOP (2009), Contribution of collective
bargaining to continuing vocational training, Dublin: European Foundation
for the Improvement of Living and Working Conditions; and "Framework of
actions for the lifelong development of competencies and qualifications"
signed by the main European social partners in 2002, http://www.gencat.cat/diue/doc/doc\_13227450\_1.pdf.

[16]   See Ecorys (2010),  Sector Councils on Employment and Skills
at EU level - A study into their feasibility and potential Impact

[17]   Several examples exist in different countries where SME
employers/owners are the target group for setting-up human resources strategies,
such as in France (APCMA with COMAFOA) or in Germany (with Elbcampus

[18]   Ecorys (2010) Sector Councils on Employment and Skills at EU
level - A study into their feasibility and potential Impact

[19]   http://www.unionlearn.org.uk/files/publications/documents/211.pdf

[20]   For instance, see Eurofound (2009), Contribution of collective
bargaining to continuing vocational training, Dublin: European Foundation
for the Improvement of Living and Working Conditions.

[21] For instance, see CEDEFOP (2009), Sectoral training funds in Europe; European Commission (2007), Employment in Europe 2007.

[22]   Ibid

[23]   http://ec.europa.eu/education/higher-education/doc/studies/munster\_en.pdf

[24]   http://ec.europa.eu/education/higher-education/doc/studies/munstercase\_en.pdf

[25]   http://ec.europa.eu/education/higher-education/doc/studies/technopolis\_en.pdf

[26]   http://www.deutschland-stipendium.de; 
Further Information on funding of higher education: EC, National Student Fee
and Support System, 2011/12; see http://eacea.ec.europa.eu/education/eurydice/documents/facts
\_and\_figures/fees\_and\_support.pdf

[27]   EUA (2011) Financially Sustainable Universities II: Diversifying
Income Streams http://www.eua.be/pubs/financially%20sustainable%20universities%20ii.pdf

[28]   Ibid

[29] Bernard Brunhes International, (2006), EU-wide Evaluation of the
Community Initiative Equal 2000-2006, Final Report, Volume 1.

[30]   Council
Conclusions of 12 May 2009 on a strategic framework for European cooperation in
education and training (‘ET 2020’) (2009/C 119/02), Bruges Communiqué on
enhanced European Cooperation in Vocational Education and Training for the
period 2011-2020, December 2010

[31] GHK Consulting (2005): Study on Access to Education and Training,
Basic Skills and Early School Leavers; Cedefop (2010) Guiding at risk youth
through learning to work

[32]   Ibid

[33] Cedefop (2012), Working paper No 12, The development of national
qualifications frameworks in Europe. October 2011, in particular pp.
15-16.  Cf. European Parliament, 2012, State of play of the European
Qualifications Framework implementation, in particular Section 4.5.1.

[34]   Cedefop (2012), Working paper No 12, The development of
national qualifications frameworks in Europe. October 2011, in particular
pp. 26-29.

[35]   GHK Consulting (2010) Update to the European Inventory on
Validation of Non-formal and informal learning: Synthesis

[36]   Cedefop (2010) Linking credit systems and qualifications
frameworks

[37]   ECOTEC
(2008) Beyond the Maastricht Communiqué: developments in the opening up of
VET pathways and the role of VET in labour market integration

[38]   Cedefop (2010) Linking credit systems and qualifications
frameworks

[39]   ECOTEC
(2008) Beyond the Maastricht Communiqué: developments in the opening up of
VET pathways and the role of VET in labour market integration; p.170

[40]   R. Carneiro (ed.) (2011), Accreditation of prior learning as a
lever for lifelong learning: lessons learnt from the New Opportunities Initiative, Portugal, UNESCO, MENON Network, CEPCEP, http://www.ucp.pt/site/resources/documents/CEPCEP/Accreditation\_final.pdf.

[41]   Source: Cedefop (2010) Linking credit systems and qualifications
frameworks

[42]   P. Thill (2010) EEO Review: Youth Employment Measures, 2010. Luxembourg Report

[43]   OER, as defined by UNESCO in 2002, are teaching, learning or
research materials that are in the public domain or released with an
intellectual property license that allows for free use, adaptation, and
distribution.

[44]   E.g. Comptroller and
Auditor General (C&AG) (2008), Skills for Life: Progress in Improving
Adult Literacy and Numeracy, HC 482 Session 2007-2008

[45]   ECOTEC (2008) Beyond the Maastricht Communiqué: developments
in the opening up of VET pathways and the role of VET in labour market
integration

[46]   Quérés et
al (2010) Repères et références statistiques sur les enseignements, la
formation et la recherche - édition 2010

[47]   See e.g.
ECORYS (2012) Evaluation of the ESF support to Lifelong Learning, http://ec.europa.eu/social/BlobServlet?docId=7922&langId=en

[48]   See e.g. P. Federighi et al (2009) Enabling the low-skilled to
take their qualifications "one Step Up" - final report and
inventory; GHK (2010) Basic skills provision for adults: policy and
practice guidelines http://www.kslll.net/Documents/ALWG\_Basic%
20skills%20guidelines\_final%20report.pdf

[49]   European Commission, 2012, http://ec.europa.eu/education/more-information/doc/2012/adult\_en.pdf

[50]   See
e.g. Ofsted (2011) Girls’ career aspirations

[51]   See e.g. Ofsted (2011) Removing barriers to literacy, which
cites teachers’ aspirations for students as a key factor in their success in
developing literacy skills

[52]   GHK Consulting (2010), Lifelong Learning Strategies – Critical
factors and good practice in implementation (analytical report commissioned
by DG Education and Culture under framework contract EAC 19/06)

[53]   R. Carneiro (ed.) (2011), Accreditation of prior learning as a
lever for lifelong learning: lessons learnt from the New Opportunities Initiative, Portugal, UNESCO, MENON Network, CEPCEP, http://www.ucp.pt/site/
resources/documents/CEPCEP/Accreditation\_final.pdf.

[54]   D. Stoel & E. Wentzel (2011), Beloften, feiten en ongekende
mogelijkheden: Onderzoek naar de effecten van EVC

[55]   GHK (2010) European Inventory of Validation of non-formal and
informal learning 2010: thematic report on costs and benefits of validation, http://libserver.cedefop.europa.eu/vetelib/2011/77455.pdf

[56]   National Report 2009 of the Flemish community Belgium on the implementation of "Education and training 2010", http://ec.europa.eu/education/lifelong-learning-policy/doc/natreport09/belgiumnl\_en.pdf

[57]   European Employment Observatory (2009): Spring 2009 review

[58]   National Office for Equity of Access to Higher Education, HEA
(2006) Towards the best education for all: an evaluation of access
programmes in higher education in Ireland http://www.hea.ie/webfm\_send/1577

[59]   National Office for Equity of Access to Higher Education, HEA
(2010) National Plan for Equity of Access to Higher Education 2008-2013 :
Mid-Term Review

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