LLL Policy in Georgia Report

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1 LLL Policy in Georgia Report September, 2016 TBILISI 1

2 Table of Contents Abbreviations... 3 Chapter 1. Introduction Rationale Objectives of the report... 4 Chapter 2. Brief Situational Analysis Policy Background Lifelong Learning in Universities in Georgia... 6 Chapter 3. Gap Analysis... 7 Chapter 4. Gap Filling... 8 Chapter 5. Recommendations... 9 References

3 Abbreviations CVET CEG EU EUD HEI LLL LM MES NCEQE NQF VNFIL SP SPs VET WBL Continuing Vocational Education and Training Career Education and Guidance European Union European Union Delegation Higher Educational Institution Lifelong Learning Labour Market Ministry of Education and Science of Georgia National Center for Quality Enhancement National Qualification Framework Validation of Non-formal and Informal Learning Social Partnership Social Partners Vocational Education and Training Work-based Learning 3

4 Chapter 1. Introduction 1.1 Rationale Georgia is in the process of reforming its educational system according to the European priorities including Lifelong Learning (LLL)1 principles. Lifelong learning plays a crucial role in modern societies worldwide as it can contribute positively to the employability of adults, economic growth, personal development and social inclusion. Besides, LLL supports the reduction of expenditure in areas such as unemployment benefits, welfare payments and earlyretirement pensions, increased social returns of improved civic participation, better health, and greater individual well-being. Educated, active and healthy populations contribute to community well-being through their expertise and services (Merriam & Kee, 2014). Thus, Georgia recognizes the importance of the development and implementation of LLL policy at least for some reasons such as: to support integration of Georgian Educational System with European System, to support social and economic development of the country through strengthening financial and material-technical capacities of the LLL institutions and development of human capital of the country, to support skills matching as well as closing gaps between supply and demand, to support employability of adults and meeting local and regional Labor Market (LM) needs. This report reflects the current situation about the LLL in Georgia, identifies gaps and achievements that is important for the development of the realistic LLL policy. The primary focus of this report is on LLL in Higher Educational Institutions Universities Objectives of the report This report has been prepared within the Tempus project A Network for Developing Lifelong Learning in Armenia, Georgia and Ukraine (LeAGUe) in 2016; LeAGUe aims to address the urgent need for enhancing social inclusion, active citizenship, personal development, competitiveness and employability of Armenian, Georgian and Ukrainian citizens through quality Life Long learning (LLL) programs. There are four objectives with this report: 1) to provide an overview of the state of Lifelong Learning (LLL) policy and practices in the Higher Education Sector in Georgia. 2) to analyse the legal framework of LLL policy in Georgia; 3) to identify existing gaps and achievements as well as 4) outlines challenges that the Universities are facing in becoming Lifelong Learning Institutions. The Georgian Team involved in the project has drafted the report. The methodology used for the preparation of this report was a combination of the desk research and meetings/consultations with stakeholders. Desk research covered analysis of existing documents related to the LLL in Georgia, such as legislative and strategic papers, various research findings, documents and reports. Interviews/consultations were conducted with the representatives of the main stakeholders in the educational sector. The report consists of 5 sections: an introduction that covers project-related information and objectives of the report; the next three sections provide information about the situational 1 In this Report Lifelong Learning (LLL) is a functional improvement, expansion, and consolidation of the voluntarily and continuously obtained knowledge skills and abilities for professional, educational and personal purposes throughout the whole life of an individual. LLL includes specialization, retraining, career development and internship. 4

5 analysis, existing gaps and filling in the gaps. The last section makes recommendations for improving LLL policy and strategies in Georgia at the system and university levels. Chapter 2. Brief Situational Analysis 2.1. Policy Background During the recent years, some progression has been achieved in Georgia in the process of development of LLL policy. The concept of LLL is reflected in the Legislation at all levels of education: General, VET, and Higher, though there is no fundamental policy about the LLL. The table below summarises the documents that contribute to LLL. # Name Contribution to LLL 1 The Law on VET Approved in 2007 and revised in 2010; It takes into consideration the principles of the EU Memorandum Lifelong Learning, promotes the development of non-formal and informal education along with the formal education, and creates a basis for recognition mechanisms for adults. The Law aims to support the establishment of unified vocational-educational network promoting lifelong learning possibility of any person, multi-step and variety learning. The result of ongoing reforms in VET is that the vocational training is already open for adults in Georgia. 2 The Strategy of VET reforms Law on Higher Education 4 National Qualifications Framework 4 Policy Concept Paper for Development of a System for the Validation of Non- Formal and Informal Learning (VNFIL) in Georgia 5 Electronic Development Strategy of Georgia and action plan for Emphasizes the impotence of access to a diversified system of VET as well as life-long learning possibilities for all citizens. It promotes flexible training arrangements (initial and continuing VET) such as e- learning, evening training, training at the workplace, in-company training, etc. The Strategy supports flexibility of educational pathways and VET Educational Programs. Approved in It emphasizes the importance of the provision of lifelong learning opportunities to all interested adults; provision of higher education opportunities over the entire life span. Approved in 2010, unifies all existing qualifications in Georgia, reflects the results of different study levels of general, vocational and higher education. National Qualifications Framework consists of 8 levels and is based on the Lifelong Learning System provided by the European Qualifications Framework for Lifelong Learning. Starting from 2014, NCEQE has been implementing a project directed at the development of NQF and ensuring its compatibility with EQF. The NQF will be upgraded, and it will encourage the process of elaboration of result-oriented education programs and quality assurance; it will also support transparency of the existing qualifications in Georgia and their recognition abroad. Was prepared in with support of the European Training Foundation (ETF). The Policy Concept Paper, with action oriented recommendations and an accompanying draft Action Plan, was prepared with contributions by a VNFIL Working Group including representatives of key stakeholders in Georgia s TVET system. provides a substantial basis for the lifelong learning. The usage of information and communications technology (ICT) is the key to the modernization of governments, economics, and the society. The strategy aims to ensure the development of ICT skills at all levels of 5

6 education via mobile and diversified access. 6 Signing of the Bologna Declaration in EU-Georgia Action Plan 8 Association Agreement Adult Education Strategy in the Context of Lifelong Learning (AEAG, 2009) After the, after signing of the Bologna Declaration in 2005 Higher education institutions in Georgia are obliged to implement the basic principles of the Bologna Process such as continuing education and Lifelong Learning(LLL). This process is essential for integration of Georgian Education System with European education systems. Though the analysis of the available data shows the shortages of implementation of the LLL principles in accordance to the Bologna Process. EU-Georgia Action Plan, elaborated within the framework of the European Neighbourhood Policy; Basic Data and Directions (BDD), Association Agreement, signed in According to these agreements Georgia takes responsibility for the development and effective implementation of LLL policy in Georgia according to the EU priorities. The Adult Education Strategy in the Context of Lifelong Learning (AEAG, 2009) is not an officially approved public document. Though, it has been elaborated by the Adult Education Association of Georgia within the framework of the Cooperation Memorandum signed with the Ministry of Education and Science of Georgia. Therefore, it still has a certain amount of legitimacy Lifelong Learning in Universities in Georgia During the last decades important changes have been introduced to the Georgian Higher Educational System. The approval of the Law on Higher Education in 2004 prepared the basis for structured changes in the system; the Voucher funding system has been introduced, ECTS implementation process has started, meeting LM needs became an important issue, practice component has been increased; during the last decades students international mobility improved. Though the important changes still limited number of universities have been fully engaged in the process of integrating LLL into their strategies. The higher educational institutions offer short courses for raising qualification and retraining. They appear to have more preferential conditions since these institutions already hold technical and pedagogical basis for successful implementation of these classes. Situational Analysis carried out in 2009 by Support of the Tempus Office shows that Universities are implementing LLL policy and practice though it is not well planned and is less systematic or systematized. 6% of the surveyed HEI had the unit responsible for LLL; 5% had LLL and Adult education in their mission and/or strategy; 15% had LLL courses (certificates) (Darchia, 2009). The Research carried out by the MES with 44 Higher Educational Institutions in 2015 shows that: Only 26 institutions have LLL courses out of 44 surveyed institutions; Only people from socially unprotected families and individuals with disabilities have access to financial benefits for the study of LLL courses; During the people within the age group of dominated at LLL courses; men participants predominate over woman; The primary source of informing is university Web and Facebook; More LLL courses are available in the capital city than in the regions. Georgia has a centralized system of LLL; ECTS is not widely used in the LLL; 6

7 There is a lack of LM research for the development of LLL courses; there is a lack of using teaching methods relevant to adults. Official statistics for the engagement of adults in LLL does not exist in Georgia; however, some research findings are available. Studies reveal that the adult population of Georgia is less engaged in various educational programs as compared to the most European countries. The engagement of certain groups, like elderly, rural population and handicapped in the LLL programs is relatively small (Based on the research of CRRC database, 2005). Based on the same research the average age of those people, who receive any education, is 26 (minimum 19, maximum 76). Documents issued by the training providers (certificates, diplomas), in most occasions, are not officially recognized; however, based on the survey, these documents serve as an asset during the employment. Training providers actively cooperation both with the employee and local and international organizations of similar profile (AEAG, 2009). Barriers such as a lack of finances and information, as well as enough time required for commitment to study, exclude adults from educational opportunities. Chapter 3. Gap Analysis Based on the analysis there can be identified the following gaps/challenges: Lack of consistency/integrity of the LLL policy Though some policy developments considered in the previous chapter LLL policy remains fragmented. LLL is not fully integrated with legal documents; some aspects are missing such as adult education. LLL is not integrated with the mission and the strategy development of the Universities; There is a lack of data, LM research and analysis. Flexible learning pathways One of the obstacles of the educational system in terms of LLL is so called dead-ends. There is a barrier for students with Basic Education background either to progress to higher levels of VET or university education. The main problem is that students can start VET after grade 9 while for entering the HE students need to have a certificate of the secondary education. Students need to pass national exams to graduate the school (if they do not have graduation diploma from 12th grade), and at the same time, they have to pass national examinations to get to BA level. The presence of these so-called dead-ends hinders acceptance and effective implementation of the concept of lifelong learning. Though there is available a draft Law on VET that elements all dead-ends in VET (the Law is not approved). There is a lack of focus on informal and non-formal learning as well as RPL opportunities; the educational system including universities are more focused on formal learning. There are some elements as well as practices about RPL, but it needs development. The National policy of RPL in the context of LLL is not well developed in accordance with EU priorities. Funding The lack of financial support and stability can be considered as one of the barriers for development and implementation of the LLL policies. There are lack of resources, including 7

8 from public as well as from private sector to support LLL policy development and implementation (Darchia, 2009). The research (AEAG, 2009) shows that 79% of the providers are self-funded; only the one-tenth of the institutions receives state funding. It is remarkable that the majority of providers (62%) use only one source of funding. Ministry of Education and other Tempus programs are financing LLL activities in partner Universities. One of the main problems regarding the funding policy of the VET sector is that, the state provides finance only those students who are enrolled in public vocational education institutions and those students who are enrolled in private vocational institutions they have to finance y themselves. Relevance to LM There is a lack of LM research in the process of development of LLL courses. Employers participation in the development or provision of LLL courses is limited. Universities have weak partnership with Social Partners; WBL opportunities in universities is also limited. There are different groups of learners with different needs; Nowadays LLL approach, courses, teaching method and etc. at the university is not flexible enough to meet the needs of different learners. Quality assurance LLL quality assurance mechanisms are subject to internal university QA policies. Each university within its institutional autonomy develops internal mechanisms to develop and administer LLL programs/courses, recruit students and liaison with industry in relevant fields. Career guidance and counselling There is the lack of support services for the Learners. Career counseling system needs strengthening; such as infrastructure for these services, service provided, personal capacity. Another issue is the capacity of personal in guiding and counseling. There is lack of information about LLL opportunities as well as achievement or priorities for the public and stakeholders. Image of LLL LLL does not have a central place in the educational system. LLL policy and practices, as well as instruments and strategies, are not visible at universities. As a result implementation of LLL strategy is not fully achieved in Universities; it is a volunteer process. Chapter 4. Gap Filling During the last decades various support has been provided to the development and implementation of LLL policy in Georgia. Flexible learning pathways The new VET Law (including Higher VET) that is in the process of development considers elimination of all dead-ends of the system. The new Law about Vocational Education will regulate this process when it comes into the force. The NQF will be upgraded, and it will encourage the process of elaboration of result-oriented education programs and quality assurance; it will also support transparency of the existing qualifications in Georgia and their recognition abroad. The system of VNFIL in VET is in the process of piloting and implementation. 8

9 Projects that support LLL implementation National Tempus Office supports of Higher Education Reform in Georgia including in the area of LLL (2009). Higher Education Reform Experts (HERE) provide counseling on institutional and national level in the following areas: Quality Assurance (internal and external); National and European Qualification Frameworks (NQF/EQF); Recognition; ECTS; Diploma Supplement; development of guides on specific issues of HE reform. In 2013 two projects were funded with the focus on LLL. Project A Network for Developing Lifelong Learning in Armenia, Georgia and Ukraine LeAGUe aims to address the urgent need for enhancing social inclusion, active citizenship, personal development, competitiveness and employability of Armenian, Georgian and Ukrainian citizens through quality Life Long learning (LLL) programs. The project produces a suggestion for the framework for implementing LLL in Armenia, Georgia and Ukraine. LeAGUe proposes a legal and administrative framework within which the educational institutions can act and will provide guidelines for the educational institutions to actually implement LLL. One of the benefits in this project is creation of experts and teachers networking which presents the solid platform to get and share the experience in various fields. The project gave an opportunity to the partner universities to develop LLL pilot courses based on the best practices of European partner universities such as in Computer Networks (CCNA) in UG and in Agriculture in TESAU. Ilia State University has prepared the new program for science teachers. The new program is structured according Blue Print and all recommendations from the project partners are considered. The pilot courses were implemented in June - July The program is blended part of it is Face to Face and part is online. Teachers learn how to conduct inquiry in the classroom, design and prepare experiments with everyday materials and implement them on primary level of the secondary school. Science Equipment for this program was purchased with the project funding from LD Didactic, Germany. The new national curricula for primary level of the secondary school in Georgia will be implemented from September 2017 by the ISU. The project Strengthening the Specific Rile of Universities as LLL institutions (SSRULLI) aims at strengthening capacities for University Lifelong Learning in Countries of South Caucasus. The duration was Specifically, the project aimed at benchmarking of potentials and development of Institutional recommendations for boosting the role of PUs as LLL institutions. The focus of the project was strengthening the strategic, infrastructural and human capacities in 9 partner universities as a model for the development and implementation of management of ULLL. The consortium involved 16 member institutions including 3 European partners Chapter 5. Recommendations Development of the modern society, rapid social and economic changes, aging the society, as well as new labour market demands, require development of the flexible LLL approaches in Georgia. This report outlines the main priorities in the process of development of LLL policy and practices: Relevance of LLL policy to the socio-economic development and LM needs of the region as well as the country; taking into account best international practice and developments; Development of the integral LLL system covering all stages of education; Development of evidence-based LLL system; 9

10 Support flexible learning pathways free from dead-ends ; support horizontal and vertical progressions; Development of the active platforms for communication and sharing of information with relevant stakeholders, social partners in the process of development and implementation of the LLL policy Recommendations at the System level LLL should have a well defined Legal status/legal framework and place in Georgian educational system; It is important to ensure reflection of the LLL principle in the revised version of the NQF; Ensure compatibility with EQF-LLL principles; to involve qualifications that a person can get through adult education, non-formal education. To include mechanisms for awarding whole or part qualifications by VNFIL Ensure involvement of SPs in the process of formulation and implementation of LLL policy; It is important to support flexible approach and compatibility between general, VET and HE; Elimination of dead-ends ; Development of the mechanisms for recognition of prior learning and VNFIL; Development of the tools to support inclusive approach - increase access and participation of all types of learners (especially disadvantaged groups); Sound financial support, as well as more funding opportunities for regulating professions are to be established to reinforce and improve LLL practices and strategies. Adult education should become the priority of the education policy. Support development of evidence-based LLL system. It is recommended to establish a UNIT (or identify staff responsible for LLL) under the MES to coordinate LLL system development at the beginning of the LLL system development; Support strengthening of a communication and sharing of information at all levels including e-platforms. Inform stakeholders about the LLL priorities, LLL opportunities, implementation process of LLL policy and achievements Strengthening the results of LLL system by stimulating the interest of the population towards LLL (changing the public's beliefs and attitudes etc.) Recommendations at the University Level Strategy and Mission LLL should become an integral part of the University mission and development strategy; Universities should develop more integrated strategies for LLL according to national LLL policy. Universities should have a broad vision about LLL; LLL should be relevant to the broader segment of the society. It should cover development of various professional skills and competences as well as general skills. Universities should take into account social dimension of adult education as well; learning should have a function of enhancing qualification of adults, but at the same time to fulfill their social needs as well, such as to fulfill their hobbies, interest and etc. Funding HEI should ensure relevant funds for the LLL courses; It should cover diversified funding schemes, such as public and private funds, to international donors funding and etc. LLL should be included in the budget of the institutions. Relevance to LM needs Universities should become more flexible in responding social, economic and technical development of the country. Universities should start the process of reorganizing of LLL to reply effectively to the flexible labor market needs. 10

11 LLL courses of the HEI should be based on the LM research. Institutions should use the available LMR findings as well as carry out local LM research in the process of development of the LLL courses. It is important that HEI has a systematic and systematized cooperation with business organizations, associations, local governments in the process of development as well as implementation of the LLL policy, find additional funding opportunities Universities should improve partnership with SP, business organizations to improve Quality and relevance of their education to LM. Cooperation is recommended during the development of courses and programs, teaching and learning methods and RPL. Universities should develop cooperation by linking research, teaching, and innovation to improve LLL programs. Networking Networking and sharing information among the HEI, VET institutions that important LLL is important. Universities should support dissemination of the best local and international best practices. Teaching and Learning Learning pathways in the universities should become flexible. The further effective integration of formal, non-formal and informal learning with important recognition priorities should be a top priority. Learning pathways should be made more flexible to adapt to the needs of learners; so development of targeted educational programs is important; Development of modern learning approaches with relevant technologies is essential for active learning. Universities should offer learners various learning opportunities, such as evening courses, distance learning, e-courses, full-time and part-time learning; modular educational programs would be flexible for adults; Universities should support Continuous Professional Development of teaching staff according to the LLL courses and their requirements; targeted courses should develop for administrative staff as well. Quality Assurance HEI should develop relevant QA mechanism and procedures relevant to LLL principles. To support QA tools for teaching and assessment within LLL courses Support development of various LLL courses; flexible teaching approaches/methods for adults; ensure Professional development of teachers and relevant infrastructure; Support development of entrepreneurship and WBL Ensure QA of assessment; HEI should have procedures of certification (for formal as well as non-formal learning) HEI should develop Tracer study methodology for graduates of the LLL courses; tracer study should cover assessment of satisfaction of the graduates as well as employers. Regular research should be carried out for improvement of the quality of teaching, practical learning and etc. If the specific LLL program leads to Qualification it should go through Accreditation process Career Education and Guidance (CEG) Establishment of a career guidance systems within LLL is important including methodological materials, up-to-date information as well as a capacity of counsellors and all relevant staff. 11

12 Development of the system to help all learners to progress and within LLL context; mechanism to support employability of learners; Universities should become active in informing their stakeholders about the LLL opportunities, implemented activities future plans and etc. Variety approaches should be used for informing stakeholders and population, such as radio, TV, conferences, seminars, brochures, meetings with stakeholders and etc. Universities should support shaping stakeholders' and potential beneficiaries' attitudes, beliefs and behaviour to view LLL as a realistic positive opportunity for career development and personal fulfilment, Awareness raising LLL has to be better promoted within in and outside of universities. 12

13 References Darchia, I. LLL in Higher Educational Institutions of Georgia. Tempus, 2009 ETF (European Training Foundation), Torino Process 2014: Georgia, ETF, Turin, Government of Georgia, Law of Georgia on Educational Quality Enhancement, Government of Georgia, Law of Georgia on Vocational Education, Government of Georgia, National Qualifications Framework, Government of Georgia, Minister of Education and Science, Conditions and Procedure of Recognition of Informal Professional Education, Order No 8/N, Tbilisi, 3 February Government of Georgia, Socio-Economic Development Strategy of Georgia 2020, November MCA, Situational Analysis and Report on the Quality Assurance Requirements of the Georgian TVET System Kitiasjvili A., & Tasker, P. (2016). Attitudes and Motives of Adults for Participating in Continuous Education and Training - Case of Georgia. International Journal of research and reviews in Education, (3), UNDP. Situational Analysis of the WBL in VET in Georgia University Lifelong Learning _Manual for Higher Educational Institutions. SSRULLI

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