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1 Políticas de Validación, Acreditación, Reconocimiento de Aprendizajes Obtenidos Fuera del Sistema Educativo Proposition for the forthcoming publication Validation and Recognition Policies: The Comparative Vision from the International Experience Dr. Patrick Werquin Paris, the 24 th of September o----- Table of Contents i. Keywords... 1 ii. Summary Context National Qualifications Systems for Promoting Lifelong Learning Definitions: recognition, non-formal/informal learning and learning outcomes Recognition (and Validation): Social Recognition Non-formal and Informal Learning Learning Outcomes Conclusion and Recommendations Rationale for Recognising Non-formal and Informal Learning Outcomes For Individual Users: Lifelong Learning and the Labour Market Systemic Benefits Conclusion: Creating New Routes to Qualifications Applications in Countries A Continuum of Usages From Quality Assured Recognition for Regulated Occupations to Light Recognition for Personal Consumption Countries Applications Conclusion: The Cost of Recognition depends on the Objectives Issues Barriers to Recognition of Non-formal and Informal Learning Outcomes Possible Ways Forward Bibliography i. Keywords Learning outcomes; formal learning; non-formal learning; informal learning; validation; recognition; visibility of knowledge, skills and competences; qualification. ii. Summary This paper is based on a large-scale study that the author undertook when he was with the OECD (see Werquin, 2010a and 2010b). It is based on documents prepared by countries and experts (see as well as on the existing literature, especially the documents prepared by and for the European Union Commission. Interestingly enough, this OECD study went beyond the OECD borders, and countries from all five continents were involved in this activity, including three Spanish speaking countries (Chile, Mexico, Spain). To that extent this paper has benefited from an

2 exposure to many different systems 1 and sheds light on the somewhat different approaches that countries have taken in the area of recognition of non-formal and informal learning outcomes. The concept of learning outcomes is at the heart of many research programmes and policy responses. International statistical surveys on individual skills, National Qualifications Frameworks or the European Qualifications Framework engineered by the European Commission, and the most recent laws and policies on recognition of non-formal and informal learning, all rely on the concept of learning outcomes. In addition, qualifications frameworks and recognition of non-formal and informal learning processes share an ultimate objective of social justice: the former because qualifications frameworks have to be built so that all individuals find their place in the framework, and not only those who achieved a qualification/certification in the formal learning system; the latter precisely because recognition of non-formal and informal learning is a necessary step to create new routes to qualification/certification, especially for those who do not cope with the formal learning system but still have knowledge, skills and competences. In short, it is very unlikely that qualifications frameworks will fly without recognition of all learning outcomes, whether formal or not. 1. Context National Qualifications Systems for Promoting Lifelong Learning It is only recently that national qualifications systems have been seen as a policy tool for promoting lifelong learning. Coles and Werquin (OECD, 2007) 2 show that there are many potential mechanisms that can promote lifelong learning from within qualifications systems. Together with establishing a qualifications framework, providing credit transfer, organising information and guidance, for example, recognition of non-formal and informal learning outcomes appears as on of the most powerful of these mechanisms. It is at the heart of this paper. All individuals are constantly learning, everywhere and all the time! While there is nothing new about this observation, the idea of exploiting learning that takes place outside the formal system of initial education and training seems to have emerged on a large scale only recently. Taking advantage of such learning requires it to be visible and therefore recognised. The production of skills, knowledge and/or competences concerns all human activities, not only, nor obviously, in the context of formal learning situations. Learning that occurs on a daily basis could also represent skills, knowledge and/or competences that are more interesting and longer lasting because they take place in a practical setting, at work or in daily life. Whatever the case, skills, knowledge and/or competences representing non-formal and informal learning outcomes are likely to be very valuable, to judge by the interest shown by public authorities aiming to catch the train of economic growth, global competitiveness and human development. In many countries, recognition of non-formal and informal learning is seen as a possible solution to make skills, knowledge and/or competences visible as well as to deliver partial or full qualifications directly to individuals that meet the expected and agreed standards; without additional formal learning. Recognition must be understood here as social recognition; whether what is delivered to successful applicant to a recognition process has value and is used in the society they live in; in particular in the labour market and in the lifelong learning system. In the most advanced countries indeed, recognition of non-formal and informal learning outcomes has a double currency: it may give people access to the labour market as well as it allows them to re-enter the formal education and training system. The paper will try to address all these issues. It will deal with the definitions (Section 2), the rationale for implementing systems for recognising non-formal and informal learning outcomes (Section 3), applications and usages in different countries (Section 4) and will conclude with some issues for discussion (Section 5). In doing so, this paper will necessarily touch upon without analysing them thoroughly the many issues that must be addressed when thinking about recognising non-formal and informal learning outcomes. Those are ranging from the legitimacy of the learning activities in terms 1 The countries that were formally involved were: Australia, Austria, Belgium (Flemish Community), Canada, Chile, the Czech Republic, Denmark, Germany, Greece, Hungary, Iceland, Ireland, Italy, Korea, Mexico, the Netherlands, Norway, Slovenia, Spain, South Africa, Switzerland and the United Kingdom. 2 All relevant publications can be found at:

3 of the outcomes to be recognised, through the cost of the necessary assessment, and essential elements such as quality assurance, the standards used, the potential benefits and the real obstacles. 2. Definitions: recognition, non-formal/informal learning and learning outcomes As said above, the starting point of this work on recognition of non-formal and informal learning outcomes is the study of the role of national qualifications systems in promoting lifelong learning (Coles and Werquin, 2007). This study has identified 20 mechanisms that have the potential to promote more and better lifelong learning. Two mechanisms are of special relevance here: establishing a national qualifications framework and recognising non-formal and informal learning; especially the latter. For the sake of this paper, it is therefore important to realise that qualifications framework and qualifications system are different concepts. The former is only one of the many components of the latter. A national qualifications system consists of everything that leads to the recognition of learning, in a country most of the time. It may include the culture what has value in this country in terms of learning, the cost or the financing, as well a qualifications framework or not. A qualifications framework is merely a classification device to organise all the qualifications that exist in a country; or even a continent if we refer to the European Qualifications Framework (EQF). All countries have a national qualifications system. Not all countries have a national qualifications framework. In the case of recognition of non-formal and informal learning outcomes, there are three key terms or group of terms to define: recognition (and validation), the context of learning (formal, not formal and informal), and learning outcomes Recognition (and Validation): Social Recognition There are many definitions of recognition when it comes to learning (see Werquin, 2010a, for a survey). Recognition must be understood here as social recognition; whether what is delivered to successful applicants to a recognition process has value and is used in the society they live in; in particular in the labour market and in the lifelong learning system. To that extent, it is recognition that matters. It is the reason why the term validation is not used for describing the main objective of the process. Validation is merely a technical process by which an assessor or a group of assessors (academics, experts, professionals ) decide whether the applicant meets the predefined criteria for obtaining credits, exemption of academic prerequisite, partial or full qualification or any other of the many awards that countries deliver at the end of recognition processes for successful candidates. It is of paramount importance especially for policy makers to realise that an assessor or a group of assessors may well validate the non-formal and informal learning outcomes of an applicant without the society accepting that the corresponding award has any value. What matters to applicants is that the award delivered to them is recognised by the society they live in and, among the key stakeholders in this society, the employers in particular. This concept of social recognition is not specific at all to recognition of non-formal and informal learning outcomes. The same rule applies in the formal learning sector: qualifications awarded to successful candidates in the formal learning sectors (upper secondary system, university, TVET sector for example) must have value and be used in the society, and by employers for these qualifications to be useful to graduates. The fact is that, in the system for recognition of non-formal and informal learning outcomes, the input process is unknown, by definition as it were. So, the social recognition must be among the top priorities of any system recognising nonformal and informal learning outcomes; otherwise the entire recognition system may collapse due to lack of trust. Once recognition is defined social recognition for that matter the next obvious question is recognition of what?. The different forms of learning are now defined.

4 2.2. Non-formal and Informal Learning There are several definitions for each of the different contexts of learning: formal, not formal and informal. For the purpose of analysing, theorising and implementing recognition of non-formal and informal learning outcomes, the following definitions are possible choices. Formal learning is not the focus of this paper which mainly deals with recognition of non-formal and informal learning outcomes but it is a good starting point to define and understand non-formal and informal learning. The definition of formal learning is rather consensual. It is learning that is structured in terms of content, scheduling, organisation and financing. As a consequence, formal learning has clear learning objectives for instance. Interestingly enough, the definition of formal learning has evolved quite significantly over time. Werquin (2007) notes that, at the end of seventies, formal learning could only be applied to young people in initial education and training. With some exceptions, most countries or systems now accept that formal learning can take place at the workplace for instance, and/or for the adult population; a long as it is structured. The definition of formal learning is rather consensual in international fora. Informal learning is also rather consensual among international experts. It is often called experience and it consists of learning that takes place everywhere and all the time merely by living at the workplace, at home or in the community; outside of any structured settings. By definition, informal learning does not easily fall under any statistical categories and can barely be observed in non-specific statistical surveys. Informal learning is never intentional. Non-formal learning is the least consensual concept of the three. It is sometimes associated with adult learning. It sometimes consists of some sort of second chance basic education, especially in Africa. What matters is that it should be placed between formal learning on one side and informal learning at the other extreme on the other side. It is then for the users a country, a region, an enterprise to define where the cursor should be placed in between formal and informal learning according to the needs. When it comes to defining non-consensual terms such as the different categories of learning, what matters is that definitions are reasonably mutually exclusive. To that extent, set of definitions that say that formal learning is always intentional, that non-formal learning is intentional and that informal learning can be intentional are not very useful. Such an approach with fuzzy overlapping concepts creates blurred boarders that do not help the analysis and the implementation. It may lead to the creation of additional categories such as random learning (see the definitions wrongly proposed by Eurostat and European Commission) to bring non-intentional learning on board. It is claimed here that informal learning is non intentional and it has to remain so. It is also important to realise that definitions aim to evolve over time and that no definition can be carved in stone. As said above, the definitions have considerably changed over the last two decades and what matters is that experts and policy makers define the definitions they need when and where they need them; and that they accept they may be subject to change. For example, rather outdated definitions of the different sorts of learning include whether formal, non-formal and informal learning [usually] leads to a qualification. As it is clear from the definitions proposed above, this characteristic has not been retained here. Indeed, if systems are implemented throughout the world for recognising non-formal and informal learning outcomes too, so that they possibly lead to a qualification; then this characteristic cannot be included in the definition. Ideally, any form of learning could lead to a

5 qualification whereas the three forms of learning (formal, non-formal and informal) must remain. If recognition systems aim at awarding qualification whether the learning context is formal or not, then leading to a qualification is not a distinctive characteristic anymore. The last point regarding definitions is that there may not be any need for internationally agreed definitions. What matters is a general understanding of the different concepts and definitions used. What matters even more is that definitions are chosen according to local and current needs and objectives Learning Outcomes Learning outcomes is the core concept of the recognition of non-formal and informal learning because it is mainly the outcomes of learning that can be recognised. The working definition proposed by Kennedy et al. (2007) states: Learning outcomes are statements of what a learner is expected to know, understand and/or be able to demonstrate after completion of a process of learning. Tissot (CEDEFOP, 2010) proposes: The set of knowledge, skills and/or competences an individual has acquired and/or is able to demonstrate after completion of a learning process, either formal, nonformal or informal. Although these definitions is largely agreeable, the term completion could be questionable in both cases as it may indicate that there is an actual beginning and an end to the learning process which is clearly not the case when learning is not happening in a formal setting. Learning outcome is used to make a clear distinction between the process of acquisition of knowledge, skills and competences, and the tangible demonstration of such knowledge, skills and competences. It is often said, especially in international forums among non-native English speakers, that the word outcome is not totally satisfactory. Indeed, the French word acquis, which is a non-literal but exact translation of outcome, carries a lot more meaning. It refers to what people have acquired in their prior learning, whether it has been formal or not, whether it is meant to be used and valued or not, and whether it has been intentional or not. In Spanish, the use of the term adquiridos seems also highly relevant, instead of resultados typically. The concept of learning outcomes is at the heart of many research programmes and policy responses. International surveys (from the International Adult Literacy Survey, IALS, back in the mid nineties, to the forthcoming Assessment of Higher Education Learning Outcomes, AHELO), National Qualifications Frameworks or the European Qualifications Framework (EQF) engineered by the European Commission, and the most recent laws and policies on recognition of non-formal and informal learning (RNFIL), all rely on the concept of learning outcomes Conclusion and Recommendations There is no or little agreement about definitions and concepts. Nevertheless, the paper makes the case that an international agreement may not be needed for recognition processes to be implemented and to deliver promising results. Trying to agree on definition often involves a lot of time and efforts and it may not be an absolute priority when time is short and needs are huge for implementing recognition systems. What is called here recognition of non-formal and informal learning outcomes has different names. It is often called Recognition of Prior Learning (RPL); in South Africa or Australia for instance. It is called Prior Learning Assessment and Recognition (PLAR) in Canada. It is sometimes called Recognition of Acquired Skills (Flemish Belgium), which is a rather convincing name. Again, all terms are agreeable, and what matters is that social outcomes is granted to successful candidates. The next section is analysing the benefits they can reap from undertaking a recognition process.

6 3. Rationale for Recognising Non-formal and Informal Learning Outcomes The general more or less explicit objectives of the applicants to the recognition of their non-formal and informal learning outcomes can be found in the lifelong learning system and in the labour market. There are benefits that go beyond the world or education or the world of work but the explicit objectives are usually phrased into resuming formal learning and/or finding a job or progressing in the labour market For Individual Users: Lifelong Learning and the Labour Market Recognition of non-formal and informal learning outcomes has value in the lifelong learning system. Individuals whose non-formal and informal learning outcomes have been recognised are often granted access into the formal learning system, if they wish, through exemption of academic prerequisite. In countries where qualifications can be awarded solely on the basis of recognition of non-formal and informal learning outcomes, based on nationally accepted standards, automatic access to preparation of the next level up in the formal learning system is an obvious immediate consequence. Often time, the availability of recognition of non-formal and informal learning outcomes creates motivation to enrol in further studies because individuals appreciate having their experience valued and recognised. Potential learners not only welcome the possibility to resume further studies but they appreciate that the system, and the assessors for that matter, value and recognise their already acquired knowledge, skills and competences; especially if they have a poor background in terms of initial education and training. This recognition of the knowledge, skills and competences they already have gives them confidence to engage in further formal learning typically. Recognition of non-formal and informal learning outcomes also has value in the labour market. This is because the knowledge, skills and competences of the successful applicants to a recognition process become visible. This visibility makes it easier for job applicants and to candidates for a job mobility/promotion to achieve their goals. In an ideal labour market, employers would know exactly the knowledge, skills and competences job applicants and employees possess; even their own employees that is. Employers need to know better who is applying on the job vacancies they advertise; this is rather obvious. In addition, employers need to know better their own workforce for better job matching in the first place which is not systematically granted: many employers do not have an optimal efficiency due to the misuse of their employees knowledge, skills and competences. Those are the two main sets or argument for direct users of recognition systems. There are many more arguments for justifying the use of recognition of non-formal and informal learning outcomes from a more systemic point of view, for the benefit of an entire country, region or enterprise Systemic Benefits In detail, the specific argument the most often used for justifying the use of recognition of non-formal and informal learning outcomes is the shortening of formal learning forthcoming spells and the reduction of the cost of formal learning, and certification if any. The latter is clearly a consequence of the former: the cost is lower because forthcoming learning spells are shorter. The argument of lowering the duration and cost of further formal learning is the most convincing argument, but it has a little drawback. It is a convincing argument because, when used as a first step before additional formal learning, the recognition of prior learning can lead to a significant shortening of formal learning spells. If applicants meet all the requirements for a full qualification and if the country offers such a possibility then the impact on the cost of formal learning is even more obvious because there is no requirement for additional formal learning at all. Recognition of non-formal and informal learning outcomes is a complement to formal learning, not a competitor. For individuals seeking a qualification, it is a natural first step for them to be assessed for their prior learning outcomes. In a nutshell, if those learning outcomes are validated and recognised by the formal learning system, then the forthcoming formal learning spells are made shorter or are not required. This is probably the most rationale way to explain and implement recognition of non-formal and informal learning as a first step before any additional

7 learning is undertaken but it is largely misunderstood and lot of communication, with employers and other lifelong learning stakeholders is still needed. Recognition of non-formal and informal learning outcomes is an interesting way, for instance, to attract part time adult learners into universities for which the flow of traditional students coming from upper secondary education is drying out. The little drawback is that some policy makers may believe that recognition of non-formal and informal learning outcomes is free. It is not the case! Recognising non-formal and informal learning outcomes requires quality assessment and some sort of organised process to formally award exemptions, credits, partial qualifications and/or full qualifications. Recognition of non-formal and informal learning outcomes is not free. It is not necessarily cheap. The only point that is relevant and acceptable is that recognition of non-formal and informal learning outcomes is cheaper than formal learning: as seen above, if applicants are recognised some of their prior learning, then the subsequent formal learning is shorter (or non existing in the case of full qualification) and therefore less costly (see above). Many countries use different other arguments, to a different extent according to their background, to justify the implementation of recognition system. Some countries experience a demographic low and need to open up their lifelong learning system to the entire adult population in order to maintain a reasonable level of wealth of the providers of learning, through the fees they collect. Some countries have got to realise there is a lot of untapped human capital in the poorly qualified population: many individuals are self-learners and may have knowledge, skills and competences despite a low initial education and training background. This difference between observed knowledge, skills and competences through qualifications and real knowledge, skills and competences which is unobserved is at the heart of recognition of non-formal and informal learning outcomes. There are also the recurrent crisis that many countries are experiencing and that lead to making redundant many workers: before reskilling them, identifying their knowledge, skills and competences through recognition of non-formal and informal learning outcomes is a suitable approach Conclusion: Creating New Routes to Qualifications A key question many countries should definitely wonder about is whether the so called skills shortages that are said to exit in many if not all countries are actual shortages or whether it is that there is a lack of visibility of skills. It may well be indeed that people have knowledge, skills and competences but that they do not possess the qualifications corresponding to their actual knowledge, skills and competences. It is important to realise that the ultimate objective of recognition system is not to distribute undeserved qualifications to the entire population. The ultimate objective of recognition is to create new routes to qualifications so that individuals that have knowledge, skills and/or competences are awarded a qualification even if they have a poor initial education and training background. In an ideal system, the qualification would document the actual knowledge, skills and competences of individuals. The qualification seen as the reflection of knowledge, skills and competences is a promising approach. The ways recognition systems are organised vary a lot (see Section 4). The rationale for implementing systems for recognising non-formal and informal learning outcomes is manifold. The key argument remains that recognition of non-formal and informal learning outcomes allows for the visibility of knowledge, skills and competences individuals may have; however they have been acquired. Beyond this argument of visibility of knowledge, skills and competences, there is a wider argument of equity. At a time where countries are establishing national qualifications frameworks, one cannot think of a framework where only people having achieved a reasonable level in the initial education and training formal system are admitted. Again, recognition systems are meant to create new routes to qualifications, so that all individuals are potentially welcome to be somewhere in their own national qualifications framework, regardless of their initial educational attainment. The next section details how this translates into country practices.

8 4. Applications in Countries A Continuum of Usages If the general principles for recognising non-formal and informal learning outcomes are quite similar across countries, the usages remain quite varied. They respond to specific needs and depend on the promoters of these recognition systems. The degree of formalisation of the recognition process may vary. As a matter of fact, the key point to understand is that there is a continuum of usages, from quality assured recognition of non-formal and informal learning outcomes to light self recognition processes for personal consumption From Quality Assured Recognition for Regulated Occupations to Light Recognition for Personal Consumption Some countries have opened their recognition system to applicants aiming at occupying a regulated occupation; in the health sector for example. In these countries, as in most countries in the world, holding a qualification is a prerequisite for even applying for such a job. An example is given by assistant nurses that wish to become nurse. In that case, the recognition process whether it leads to a full qualification directly or to some credits toward a full qualification need to be highly formalised and quality assured. There is no other choice as the individual who will be awarded the qualification or the credit will eventually occupy a job that falls under the category of regulated occupations. The system needs to create the necessary trust so that end users have confidence in the professionals. The access to regulated occupations must be carefully monitored and subject to the possession of a qualification but it does not mean that it cannot be achieved through recognition of non-formal and informal learning outcomes. This is precisely the main objective of the entire system to allow for the possibility of achieving a qualification without necessarily undertaking formal learning. At the other end of the continuum, there is a fraction of the population that is only interested in taking stock on their own learning in their life so far. In that case, it is not necessary to organise a heavy highly formalised recognition process. Self-recognition, with some guidance from professionals of the recognition centre, is a possible option. It could mean, for instance, the preparation of a portfolio of competences, which is an excellent tool for individuals to reflect on their own prior learning and on the learning outcomes they have acquired. The existence of such a continuum, from highly formalised recognition processes to light self recognition processes, make recognition of non-formal and informal learning outcomes an interesting policy tools as it may meet several objectives according to the needs of a country, a region or an enterprise Countries Applications As already established above, country practices and policies are quite different even if most countries share the same issues (slow economic growth; high cost of training; skills shortages; high rates of unemployment, especially among poorly qualified people; lack of visibility of knowledge, skills and competences ). Therefore, the applications may vary from a country to another. Evidence suggests the main applications of recognition of non-formal and informal learning outcomes are 3 : - Second chance school certificates (Canada, Chile, Mexico, Norway, Spain ); - Entry to higher education (Belgium-Flanders, South Africa, United Kingdom ); - Exemptions from formal programmes (Belgium-Flanders, Chile, Hungary, South Africa, United Kingdom ); - Labour competences certification (Belgium-Flanders, Chile, Germany, the Netherlands, South Africa ); 3 Exemplar countries are given in brackets.

9 - VET system redesign (Australia, Hungary, Mexico, Spain, United Kingdom ); and - Discrete applications such as language certificates, professional bodies (Belgium-Flanders, Canada, Germany, Greece, Hungary ). Some countries propose almost the entire range of these applications, some others propose only very few. Countries can therefore be ranked according to whether they have a system or not. A typology of recognition systems is difficult to establish. However, it seems rather clear that Denmark, Ireland, France, the Netherlands or South Africa have a rather complete system. Countries such as Australia, Belgium, Canada and the United Kingdom have a consistent set of practices. One step down, countries such as Germany, Iceland, Italy, Korea, Mexico or Switzerland have a fragmented set of practices. Countries such as Austria, Chile and Slovenia have only some practices. Finally, countries such as Hungary, Greece and the Czech Republic are at an initial stage. However, it is important to note that country systems are evolving very fast and that any typology is rapidly outdated. For example, South Africa has recently revisited its entire Recognition of Prior Learning system and the Czech Republic is moving very fast toward a full implementation of a recognition of non-formal and informal learning outcomes system. Spanish speaking countries have interesting practices but are rather f-different from one another. Spain is focusing on access to the formal learning system through free application to the upper secondary qualification typically. Mexico is also very focused on the possibility for the adults to obtain the upper secondary education qualification (the bachillerato) through recognition of non-formal and informal learning outcomes. Chile is more focused on competences for the labour market. Finally sub-saharan Africa is too entering the era of recognition of non-formal and informal learning outcomes quite rapidly. They are lagging way behind European countries, for instance, but they are moving fast. In addition to South Africa that has a well-advanced system, countries such as Namibia have a policy in place but it seems the implementation of a system has stalled. In addition, countries differ according to whether they have a legal framework (Latin countries in Europe for example, or Flemish Belgium) or a general consensus obtained by the social partners (Nordic European countries typically). Another difference relates to whether countries recognise academic knowledge and/or practical skills. More significant is the difference between the systems that use existing standards for validating non-formal and informal learning outcomes from the Ministry of Education most of time and those who create standards for validating non-formal and informal learning outcomes that focus on knowledge, skills and competences for direct entry into the labour market. This is an important distinction to make because using standards that are not set by the Ministry of Education may prevent (re)entry in the formal lifelong learning system because the credit or certificates awarded would not be recognised by the world of education, by the universities typically. A final distinction has to do with the nature of what is delivered. Few countries accept that a full qualification may be awarded solely on the basis of validation of non-formal and informal learning outcomes (France, Ireland and Norway are examples) Conclusion: The Cost of Recognition depends on the Objectives All learning should be recognised. However, not all learning outcomes should be formally recognised through a heavy recognition process. The distinction is of high relevance to policy makers because the cost of recognition of non-formal and informal learning outcomes highly depends on the level of formalisation. Formal recognition processes require quality assessment, qualification and certification. This has a cost. Light recognition processes, for self consumption, only require some accompaniment from the part of recognition centres staff. The approaches describe above have come into existence in many countries. The next and final section shows that there are many issues policy makers and experts need to address.

10 5. Issues Despite the rather obvious benefits of a system meant to recognise non-formal and informal learning outcomes, there are still many barriers that cause the initial policies and practices not to turn into a full system yet. Moving from a piecemeal approach to an actual system has proven difficult in many countries. The scaling up of interesting pilot programmes has proven an issue for different reasons including cost and legitimacy that will briefly listed in this section. The starting point is a statement that the take up remains relatively in most countries, even if they have a consistent policy that has been implemented Barriers to Recognition of Non-formal and Informal Learning Outcomes The main barrier to the full utilisation of recognition of non-formal and informal learning outcomes is probably psychological. In most countries, the key actors are not ready to accept that one learn outside of formal learning setting too. There seem to be a need for a culture shift in many instances. There is resistance among employers that do not understand the concept or have trust only in the formal system. Trade unions fear a reduction of commitment to on-the-job formal training and do not understand the philosophy behind this shift of focus from formal learning to assessment of non-formal and informal learning outcomes. Education and training providers fear to be bypassed by a system whereby formal learning would not be necessary anymore. University for example do not always follow the tracks of recognising non-formal and informal learning outcomes, unless they experience a reduction in the flow of traditional students coming from upper secondary education. An efficient communication policy is also missing. Most people are not aware of such a possibility of having their experience recognised. The individuals who are aware miss appropriate information and guidance Possible Ways Forward In order for countries and systems to move forward, several options could be considered simultaneously: - Establishing a suitable communication policy for end users to understand what recognition of nonformal and informal learning outcomes is about (philosophy of the system and practical approaches); - Working on the assessment standards and the ownership of these standards (more actors than those of the Ministry of Education could be invited to the negotiation so that the sense of ownership is increased and that the participation of more stakeholders is achieved); - Working toward assessment methods that are efficient but cost effective (simulation, observation, tests, interviews, written examinations are all possible options; they all have pros and cons); - Working toward quality assurance when highly formalised recognition processes are required (regulated occupations ); - Proposing alternative methods for self recognition of non-formal and informal learning outcomes, for reason of cost effectiveness; - Elaborating legal framework or creating consensus among social partners; - Communicating about the success stories, for creating a snow ball effect; and - Collecting [better] data for appropriate decision making. This paper has shown that there are many ways to promote the development of policies and practices for the establishment of a system for recognising non-formal and informal learning outcomes. One of the main issues to move forward is that the conditions for the success of a recognition system do not

11 necessarily lie in the recognition system itself. There is strong evidence that recognition would be easier to implement if the supply of learning programmes would be modular. The angle taken here is that recognition of non-formal and informal learning outcomes is a complement a sort of initial stage to formal learning; and not a competitor. The point is that whoever is interested in formal learning should be assessed first in order to optimise the forthcoming formal learning. If the supply of formal learning programmes is modular, applicants to the recognition of their prior learning that have been successful can shop through the modular supply system and select only the modules they need to achieve a full qualification at a reasonable cost, time wise and money wise. Bibliography Adam S., Using Learning Outcomes: A consideration of the nature, role, application and implications for European education of employing learning outcomes at the local, national and international levels, UK Bologna Seminar, 1-2 July, Heriot-Watt University (Edinburgh Conference Centre), Edinburgh, Scotland. CEDEFOP (European Centre for the Development of Vocational Training) and European Commission DG-EAC, European Guidelines for the Validation of Non-formal and Informal Learning, Luxembourg: Office for Official Publications of the European Communities, 96 p. (Last consulted: 12 July 2011: Charraud Anne-Marie and Patrick Werquin, The Implementation of a National Qualifications Framework and a Regional Qualifications Framework in ECOWAS Countries, Policy Document prepared for the UNDP, Dakar, Senegal. Coles M., The use of Learning Outcomes, unpublished note prepared for the working group on learning outcomes, European Commission, 24 April. Coles M. and P. Werquin, 2007a. Qualifications Systems: Bridges to Lifelong Learning, OECD Publishing, 300 pages, Paris. Kennedy D., Á. Hyland and N. Ryan, Writing and Using Learning Outcomes: a Practical Guide; Using learning outcomes and competences; Planning and implementing key Bologna features (Last consulted 12 July 2011: OECD and Statistics Canada, Literacy in the Information Age, Final Report of the International Adult Literacy Survey (IALS), Paris, 187 p. Recotillet Isabelle and Patrick Werquin, The French VAE: Recognition of Non-formal and Informal Learning as a Visa for a Job?, European Journal of Vocational Training, N 48, 2009/3 (Last consulted 12 July 2011: Tissot P. (ed.), Terminology of Education and Training Policy: A Multilingual Glossary, CEDEFOP, Luxembourg. Ulicna, Daniela, Odd Bjorn Ure and Patrick Werquin, Lifelong Learning Policies: Critical Factors and Good Practice in Implementation, Report submitted by GHK Consulting, European Commission, DG Education and Culture, n 99. Werquin Patrick, Recognition of Non-formal and Informal Learning in OECD Countries: an Overview of Some Key Issues. In: REPORT, No. 3 (Last consulted 12 July 2011: Werquin Patrick, Recognition of Non-formal and Informal Learning in OECD Countries: A Very Good Idea in Jeopardy, Lifelong Learning in Europe, , p (Last consulted 12 July 2011:

12 Werquin Patrick, Moving Mountains: Will Qualifications Systems Promote Lifelong Learning, European Journal of Education, Vol. 42, No. 4, p (Last consulted 12 July 2011: Werquin Patrick, Terms, Concepts and Models for Analysing the Value of Recognition Programmes (Last consulted 12 July 2011: ) Werquin Patrick, 2010a. Recognising Non-formal and Informal Learning: Outcomes, Policies and Practices, OECD Publishing, Paris, 91 p. (Last consulted 12 July 2011: Werquin Patrick, 2010b. Recognition of Non-formal and Informal Learning: Country Practices, OECD, Paris, February, 65 p. (Last consulted 12 July 2011: Werquin P., Beyond the Hype: [Recognition of] Learning Outcomes, Journal of Education and Work. (forthcoming) Werquin Patrick and Christine Wihak, Islands of Good Practice: Recognising Non-formal and Informal Learning, in Harris J. (ed.), Researching Recognition of Prior Learning, NIACE, UK.

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