N orway. V ET in Europe Country report

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1 N orway V ET in Europe Country report 2014

2 Title: Norway VET in Europe Country Report 2014 Author: The Norwegian Directorate for Education and Training with contributions from members of ReferNet Norway. This country report is part of a series of reports on vocational education and training produced for each EU Member State plus Norway and Iceland by members of ReferNet, a network established by Cedefop (European Centre for the Development of Vocational Training). The opinions expressed in this report are not necessarily those of Cedefop. Please note that ReferNet reports are based on a common structure and are available at: The preparation of this report has been co-financed by the European Union. Page 2 of 53

3 Table of contents 1. External factors influencing VET Economy and labour market indicators Population and demographics Political and socio-economic context Labour market and VET qualifications Educational attainment Historical context Providing VET in a lifelong learning perspective Diagram of the Norwegian education and training system Government-regulated VET provision Upper Secondary VET Tertiary education and training Master craftsperson education VET for adults and re-integration to education and training Other forms of training Private VET at the initiative of the individual Training for employment and integration Enterprise-based learning Shaping VET qualifications The role of social partners and anticipation of skill needs Upper secondary VET Tertiary VET Anticipation of skills needs and changing VET provision The qualification process Main characteristics and elements of the curricula Developing new curricula Quality assurance mechanisms and inspections Promoting participation in VET Early intervention and focus on basic skills Career guidance Financial incentives Subjects promoting VET and work-based learning Making common core subjects relevant to VET Page 3 of 53

4 4.6. Provision for learners with special needs Regional follow-up service Skills competitions Social contract for VET Bibliography List of acronyms and abbreviations Annex 1. VET programmes at upper secondary level, EQF level List of figures and tables Figures Figure 1. Diagram of the Norwegian education and training system Figure 2. The 2+2 Model with structure of subjects Figure 3. Responsibility for upper secondary VET Tables Table 1. Employment by production sector Table 2. Employment status November 2012 for learners with completed trade or journeyman s certificate during the school year Table 3. Education attainment for persons age 16 and above in 2013, in per cent Table 4. VET programmes at upper secondary level, EQF level 4A Table 5. Distribution of pupils in upper secondary VET between public and private schools, Table 6. Number of apprentices by VET programme in Table 7. Share of VET learners opting for supplementary third year instead of starting a two-year apprenticeship period, Table 8. Number of training candidates per VET programme in Table 9. Completed trade or journeyman s certificates, 2013 by age group Table 10. Completed trade or journeyman s certificates for the experiencebased candidate, 1. October Table 11. Enterprise training by sector (%, 2012) Table 12. VET learners who completed upper secondary training successfully, measured five years after they started (cohort 2008), per Page 4 of 53

5 CHAPTER 1. External factors influencing VET 1.1. Economy and labour market indicators Norway has a small, open economy with the second highest GDP (approximately ) in the OECD area (Statistics Norway, 2014c). Export constitutes an important part of the economy thanks to a large oil and gas sector, fishing and fish farming, shipping and power-intensive manufacturing sectors such as metal production, industrial chemicals and paper industries. Norway s great access to energy resources has been important in the development of energy-based business sectors, wealth and growth. Unlike many other countries, the main part of Norwegian industry is located outside the metropolitan areas. Production was traditionally established either close to an energy source or at a location offering good transportation links. Despite the dependency on natural resources, Norway is a modern industrial nation. A high level of investment ensures a continuing modernisation of machinery and production equipment. Small and medium sized enterprises (SMEs), i.e. enterprises with less than 200 employees, constitute more than 99 per cent of all enterprises. Together the SMEs employ approximately 61 per cent of the labour force. 86 per cent of the SMEs have fewer than 5 employees, mainly because 60 per cent of the enterprises have no registered employees (Ministry of Trade and Industry, 2012). Only about 3000 enterprises have 100 or more employees (Statistics Norway 2014, d). These numbers indicate that apprenticeship training in Norwegian upper secondary VET often takes place in SMEs. Table 1. Employment by production sector 2014 Sector Per cent Primary sector and utilities 5.0 Manufacturing 8.7 Construction 7.5 Transport and domestic trade 19.9 Business and other services 23.2 Non marketed services 35.3 Total Source: Statistics Norway, 2014e. The Norwegian unemployment rate was at 3.3 per cent in the 2nd quarter of It has remained stable since 2010 when it was 3.6 per cent (Statistics Page 5 of 53

6 Norway 2014, f). The youth unemployment rate, measured as the age group of year-olds, is relatively stable and was at 8.2 per cent in the 3rd quarter of 2014 (Statistics Norway, 2014g). Demographic change, structural and technological developments pose challenges on the education system as they alter skills demands in different ways. A report by OECD (2014) shows that Norway has a small excess demand for workers with upper secondary vocational education in manufacturing, construction, mechanics and electronics, teachers, nurses and health workers, and engineers. Whereas there is a tendency towards excess supply of workers with tertiary education in economics, administration, social sciences, law, humanities and the arts (OECD 2014) Population and demographics Norway has a population of 5.1 million. It covers a wide geographic area ( km2) and is no. 6 in Europe in terms of size (no. 8 excluding the islands of Svalbard and Jan Mayen). The population density is 16 persons per sq. km on average, 36 per cent of the population are located in the five counties surrounding the Oslo fjord. Almost 80 per cent of the population live in urban settlements, with a population density of 1634 persons per sq. km (Statistics Norway, 2013). Demographic projections indicate that the growth in the number of young people will be lower than the average population growth. Moreover, the age group 67+ is expected to increase more than other age groups in the years to come. Currently this age group constitutes 13 per cent of the population and is expected to increase to 17 per cent in 2030 and to 21 per cent in 2050 (Statistics Norway, 2014a). In 2014, immigrants and those born in Norway to immigrant parents comprised close to persons, about 14 per cent of the total population (Statistics Norway 2014, b). Approximately of this part of the population originate from other European countries (Statistics Norway, 2013). The immigrant population is spread all over the country. However, 13 per cent ( people) live around Oslo, constituting 31 per cent of the capital's population (Statistics Norway, 2014b). Page 6 of 53

7 1.3. Political and socio-economic context Norway is a parliamentary democracy. Through the European Economic Area (EEA) Agreement, Norway is a member of the single market and participates in several EU programmes and institutional arrangements. The Norwegian Parliament (Stortinget) decides upon major political principles and goals, as well as budgets and legal frameworks for activities under each ministry. Education and training is a public responsibility where equal access to quality education is a fundamental political principle. In the public education system, there are no school fees at any level, including higher education. Only a small share of pupils and students attend private education. Norway has three administrative levels: state, county (fylkeskommuner) and municipality (kommuner). There are 19 counties and 428 municipalities. Each of these units has a locally elected decision-making body and an executive body appointed by the relevant assembly. Local autonomy is a strong political principle. The municipalities are responsible for primary and lower secondary education, while county authorities are responsible for public upper secondary education and training. Central to the Norwegian education and training system is the Education Act of 17th of July 1998 no. 61, (the Education Act, Opplæringsloven, with the latest amendments in force as of 1st August 2010). It covers primary, lower and upper secondary general education and VET, including apprenticeship training, for young people and adults, delivered by both public and private institutions. It states that the Ministry of Education and Research (Kunnskapsdepartementet) has overall responsibility for national policy development and administration of all levels of education and training. Counties (fylkeskommuner) and municipalities (kommuner) are responsible for developing comprehensive plans, organising and financing within their jurisdiction. Norway has a well-established and regulated system of cooperation between social partners and government. They negotiate through collective bargaining to control wage levels and influence prices. The tripartite cooperation is also important in upper secondary VET (see more in chapter three) Labour market and VET qualifications A study examining people with an upper secondary VET qualification (trade or journeyman's certificates) found that their employability was generally high. The study examined graduates from years 2003 to 2012 and found that three years after their graduation their unemployment rate were lower than the Page 7 of 53

8 unemployment rate for the general population (ages 25-54). The researchers suggest that the high employment rate for people with trade or journeyman's certificates indicate that they have competence and skills demanded in the labour market (Nyen, Skålholt and Tønder, 2014). However, there are differences between the qualifications in the nine VET programmes offered in Norwegian upper secondary education. In some sectors, VET qualifications enjoy strong links to the labour market, and enterprises participate actively in the training through the apprenticeship scheme (see section 2.2.1). Sectors such as traditional crafts- and industrial trades, holders of trade or journeyman's certificates tend to enjoy high status. Moreover, they are often preferred over unskilled labour and enterprises often hire apprentices after the trade or journeyman's examination. For other VET sectors, such as the health and service sectors, the upper secondary VET qualifications have a slightly weaker link to the labour market. A VET qualification in these sectors is not the only qualification needed for employment. To a larger extent, these sectors recruit people from upper secondary general education without occupational qualifications (Nyen, Skålholt and Tønder 2014; White paper no. 20. On the Right Track). Nyen, Skålholt and Tønder (2014) conclude that VET qualifications to a varying degree establish a strong and lasting link to the labour market. VET graduates generally find a job after completing their apprenticeship period, and their employment situation is stable. Table 2. Employment status November 2012 for learners with completed trade or journeyman s certificate during the school year The nine Norwegian VET Programmes In work In education Outside work and education Service and transport Restaurant and food processing trades Technical and industrial production Agriculture, fishing and forestry Design, arts and crafts Health and social care Building and construction Electrical trades Media and communication Total Source: Directorate for Education and Training, 2014a. Page 8 of 53

9 1.5. Educational attainment Table 3. Education attainment for persons age 16 and above in 2013, in per cent Level of education % Below upper secondary level 27.9 Completed upper secondary level 41.7 Tertiary education up to four years 22.4 Tertiary education more than four years 8.0 Total 100 Source: Directorate for Education and Training, 2014a. Significant differences in educational attainment exist between regions in the country. In Oslo for instance, 18 per cent of the population have tertiary education of more than 4 years. In the counties of Nordland and Nord-Trøndelag the corresponding share is 4 per cent. The population with education below upper secondary level is 37 per cent in Finnmark and 34 per cent in Hedmark and Nordland (Statistics Norway, 2014h). The educational attainment in the immigrant population in Norway varies with country background. The proportion of people with a long tertiary education is higher among immigrants than the rest of the population. Meanwhile, the proportion of immigrants without any completed education or with educational attainment below upper secondary level is also higher than in the population as a whole (Statistics Norway, 2014h). The unemployment rate for all immigrant groups were at 7.2 per cent in August 2014, which is higher than the national average at 2.2 per cent (Statistics Norway, 2014i) Historical context The apprenticeship scheme is integrated as an equal part of the upper secondary education system. Nevertheless, Skule et al (2002) describe a historic divide between general schooling and VET in Norway, the former growing out of the eighteenth century Latin boys schools and the latter growing out of the guildsbased apprenticeship system. The history of Norwegian upper secondary education, they claim, has seen many attempts to bridge the general and vocational divide and particularly the gap between the vocational schools and the apprenticeship system. In 1976, Norway got a unified structure for upper secondary education, which encompassed both general and vocational studies. However, the most important reform in this regard was the Reform 94 from 1994, which encompassed rights, structure and content. Page 9 of 53

10 Norway has always enjoyed a high degree of decentralisation, and in the Knowledge Promotion Reform in 2006, the central government delegated even more responsibility to the local level. Since then, counties have been responsible for all aspects of public upper secondary general education and VET, including apprenticeship training. Tertiary vocational education at EQF level 5 has a more recent history. Today s institutions have developed through one of the following four main paths: county tertiary vocational education colleges building on vocational secondary education, often leading to qualifications as master craftspersons or certificates for seamen; state-funded private schools originally recognised as secondary education without parallel to public provision, several of which are in art, culture or Bible studies; state- and county-funded programmes in health and social studies; other private provisions, generally developed through training needs resulting from new and emerging technologies and demands in the labour market since the 1980s, particularly in media, design, communication, administration, logistics and ICT. Page 10 of 53

11 CHAPTER 2. Providing VET in a lifelong learning perspective 2.1. Diagram of the Norwegian education and training system Figure 1. Diagram of the Norwegian education and training system NB: ISCED-P Source: Cedefop and ReferNet Norway. Page 11 of 53

12 2.2. Government-regulated VET provision Upper Secondary VET People who finish compulsory lower secondary education in Norway have a statutory right to three years of upper secondary education. They may choose from three general study programmes and nine general VET programmes (see Table 4 below). Most upper secondary VET programmes lead to a trade or journeyman s certificates (fag- og svennebrev) at NQF level 4A (EQF 4). Currently approximately 180 such certificates are available at this education level. Norway has a well-developed upper secondary VET apprenticeship system, which enjoys a high degree of confidence among stakeholders. About 52 per cent of learners who started the first year of upper secondary education in 2014 chose one of the nine vocational programmes. Most learners in upper secondary education are in the age group of years. Table 4. VET programmes at upper secondary level, EQF level 4A Technical and Industrial Production Electrical Trades Building and Construction Restaurant and Food Processing Trades Agriculture, Fishing and Forestry Source: Directorate for Education and Training, Health and Social Care Design, Arts and Crafts Media and Communication Service and Transport Most upper secondary VET programmes follow a 2+2 model. The model entails two years of education in school, followed by two years of formalised apprenticeship training. The apprenticeship entails training and productive work in an enterprise or public institution, known as a training enterprise. Some VET programs deviate from the 2+2 model. For instance, some programmes follow a 1+3 model or 3+1 model, which implies either one year in school followed by three years of apprenticeship training, or vice versa. Some trades in the Electrical Trades programme follow a 2+2½ model, which implies half a year longer apprenticeship period than ordinary programmes. A few programmes are entirely school-based; however these do not lead to trade or journeyman s certificates. For the VET programmes that follow the 2+2 model, the schools are responsible for the education and training the two first years, while the training enterprises are responsible for the two last years. However, the county authorities have an overarching responsibility for all aspects of public upper secondary education and training, including the apprenticeship training. Page 12 of 53

13 Figure 2. The 2+2 Model with structure of subjects Source: ReferNet Norway. The curricula and the number of teaching hours per subject at each level are laid down in regulations, and the schools and training enterprises are required to comply with them. As shown in Figure 1, the first two years the subjects of school-based VET are divided into three main categories. Common core subjects (fellesfag) (Norwegian, English, Mathematics, gymnastics, natural sciences and social sciences) are the same for all nine VET programmes. Common Programme Subject (programfag) is trade specific theory and practice. The first year (upper secondary level 1) this subject consists of a general introduction to the vocational field. The second year (upper secondary level 2) this subject becomes more trade specific as the learner chooses a trade of interest this year. The In-depth study project (prosjekt til fordypning) is usually hands-on training in workshops at schools and short work placements in enterprises. The alternation between school-based and work-based training gives the learners valuable experience at an early stage. Learners often sign apprenticeship contracts with the enterprise where they had short placements. Learners competences are assessed continuously throughout the four (three) years of education and training. In addition, they have to sit for exams in individual subjects developed at local and county level. Learners may also be Page 13 of 53

14 randomly selected to sit for nationally arranged examinations in common core subjects. The majority of the pupils have exams in vocational subjects after two and four (three) years of training. After two years in school, there is an interdisciplinary local practical exam that covers all the vocational subjects. Learners may be allowed a preparation period of up to two days prior to the examination. In 2013, 95 per cent of the learners in upper secondary VET attended public schools, while only 6.8 per cent attended private schools, see Table 5 below. Learners attending private VET schools have to pay tuition fees. However, they may receive financial support from the State educational loan fund (Statens lånekasse for utdanning) that covers most of these expenses (see more in chapter 4). Table 5. Distribution of pupils in upper secondary VET between public and private schools, 2013 Number of pupils Share Private , 9 % Public , 1 % Source: Statistics Norway, Organising apprenticeship training After two years in school, two years of apprenticeship in a training enterprise follows for most VET programmes. This period equals one year of work-based training, and one year of productive work at the training enterprise. The apprentice signs a legally binding apprenticeship contract with the training enterprise, and a representative from the county authorities. By law, apprentices are employees of the enterprise and have the rights and duties as such. They are entitled to a salary that increases with the apprentice's productivity during the two-year apprenticeship period. It normally starts with 30 per cent and increases to 80 per cent of a skilled worker s salary. The school year 2013/2014, apprentices are registered in Norway (Table 6). Table 6. Number of apprentices by VET programme in 2013 Sectors Apprentices 2013 Male Female Total Per cent Building and Construction Design, Arts and Crafts Electrical Trades Page 14 of 53

15 Sectors Apprentices 2013 Male Female Total Per cent Health and Social Care Media and Communications Agriculture, Fishing and Forestry Restaurant and Food Processing Trades Service and Transport Technical and Industrial Production Total Source: Directorate for Education and Training 2014a. There is no statutory right to an apprenticeship placement in a training enterprise. However, learners have a right to upper secondary education. As of December 2013, 5750 people applied but did not get apprenticeship contracts in training enterprises. As they have a right to upper secondary education, county authorities are required to provide one year of practical school-based training (Vg3 opplæring i skole), equivalent to the apprenticeship training. Of the 5750, 357 learners nationwide attended such practical training in 2013 (Directorate for Education and Training, 2014b). This alternative is costly for VET schools and county authorities alike. Considerable potential lies in recruiting more training enterprises. As a study by Høst, Skålholt and Nyen (2012) found, training enterprises are similar to the enterprises that do not train apprentices. In addition, one third of the enterprises that do not train apprentices have considered becoming a training enterprise. County authorities must approve enterprises that want to provide apprenticeship training. Approval is granted if the enterprise meets training requirements for the trade curriculum. County authorities also have the right to revoke approval if training is not conducted according to contractual agreements and national curriculum. Training enterprises regardless of their size receive a state grant, approximately per apprentice in 2014 for the entire training period. The grant is supposed to cover all costs related to training the apprentice at the training enterprise. Additional grants are given to enterprises either offering apprenticeships in small trades in need of protection (små og verneverdige fag) or for taking on apprentices with special needs. Training enterprises often establish umbrella organisations called Apprenticeship Training Agencies (ATAs) (opplæringskontor) to secure training according to curricula and regulations, and to reduce administrative burdens. About per cent of training enterprises are associated with such agencies. Page 15 of 53

16 The ATAs assume responsibility for training apprentices and formally enter into contractual agreements with county authorities. Nonetheless, county authorities must approve each individual training enterprise. ATAs often take responsibility for the recruitment of new training enterprises and coach staff involved in tutoring apprentices. A recent research report (Høst et. al. 2014) found that the ATAs often carried out the county authorities' tasks and worked actively in assuring the quality of the apprenticeship training. ATAs have formal status as training enterprises, however they operate somewhere between the county authorities and the individual training enterprises, making their legal status unclear. Nonetheless, research shows that the institutional support given by the ATAs is important for the apprenticeship scheme to work (Høst, Skålholt and Nyen, 2012). After two years of apprenticeship training, learners in upper secondary VET take a practical-theoretical trade or journeyman s examination (Fag- og svenneprøve). In the exam, the candidate demonstrates vocational skills, and explains and justifies the methods chosen to solve the test assignments. Successful candidates are awarded a trade certificate (Fagbrev) for industrial and service trades, or a journeyman s certificate (Svennebrev) for traditional crafts. The two certificates have equal status based on similar sets of theoretical knowledge and practical skills. A county appointed trade-specific examination board, with social partner representatives, prepare and assess the examination. County authorities award the certificate. In 2013, 93 per cent of the candidates passed the exam. In some subjects, for instance in some electrical trades and in gun smithing, there is an obligatory centralised written exam (marked locally) that the apprentices must take prior to the trade- and journeyman s examination Supplementary studies qualifying VET learners for higher education Learners can after two years in a VET programme transfer to a third year of supplementary studies that qualifies them for entry to higher education (Påbyggning til generell studiekompetanse). It leads to a qualification at NQF level 4B and EQF level 4. The path replaces the two-year apprenticeship period, and the learners will thus not receive a trade or journeyman s certificate. In 2013, about pupils, 27 per cent, selected this option after their second year of VET. In 2013, pupils took the supplementary course after their apprenticeship training, and trade or journeyman's certificate examination. The third year is a 'packaged' course in the six key academic subjects Norwegian, English, mathematics, natural sciences, social sciences, and history so that those who succeed satisfy the general admission requirements to higher education (on par with those taking general study programmes). However, about 40 per cent of Page 16 of 53

17 the VET learners who embark on this path fail in one or more of the subjects (Directorate for Education and Training, 2014a). As Table 7 shows, the proportion of VET learners who transfer to the third supplementary year varies significantly between the nine VET programmes. The lowest proportion of transfer is from technical and industrial production programme with 6.4 per cent of the learners. Media and communication programme has the highest share with 89 per cent of the learners making the transfer. Considering the employment status of VET graduates (Table 2, section 1.4), one can observe that a smaller proportion of VET learners tend to transfer to the supplementary course from the VET programmes with strong labour market links. Most pupils that select this path have planned for it. For others, the supplementary year becomes an option if they fail to obtain an apprenticeship contract. Of the 5750 pupils that applied but did not get apprenticeship contracts in 2013, 560 pupils transferred to the supplementary year (Directorate for Education and Training, 2014b). Table 7. Share of VET learners opting for supplementary third year instead of starting a two-year apprenticeship period, 2013 Sectors % Building and Construction 10.0 Design, Arts and Crafts 26.2 Electrical Trades 13.3 Health and Social Care 32.3 Media and Communication 89.0 Agriculture, Fishing and Forestry 15.4 Restaurant and Food Processing Trades 9.9 Service and Transport 27.7 Technical and Industrial Production 6.4 All programmes 27.2 Source: Directorate for Education and Training, 2014a The Training Candidate scheme The training candidature scheme (lærekandidatordningen) targets learners that for various reasons struggle to meet the requirements for the trade or journeyman s certificate. The scheme started in 2000, and in 2013 there were about 1800 training candidates (lærekandidat) distributed across the nine different VET programmes (Table 8). The scheme gives learners a possibility to obtain a specially adapted qualification of a lower degree than a trade or journeyman's certificate. The training candidate signs a training contract Page 17 of 53

18 (opplæringskontrakt) with a training enterprise, and has to pass a competence exam (kompetanseprøve) at the end of training. While apprentices must fulfil all the objectives set in the curriculum, a training candidate receives adapted training targeted towards a limited number of the objectives in the curriculum. A training candidate therefore has a less comprehensive exam that leads to a vocational training certificate (kompetansebevis) at EQF level 3 when completed. A training candidate may convert the training contract to an ordinary apprenticeship contract while in training, should the candidate aim towards trade or journeyman s certificate. Training contracts may also be an option for VET learners who struggle to get ordinary apprenticeship contracts. Out of the 5750 that applied but did not get an apprenticeship contract in 2013, about 540 signed training contracts with training enterprises (Directorate for Education and Training, 2014b). The scope of the training candidate scheme has gradually increased, as there were 1505 training candidates in 2011 and 1762 in Table 8. Number of training candidates per VET programme in 2013 Sectors Training candidates Male Female Total Per cent Building and Construction Design, Arts and Crafts Electrical Trades Health and Social Care Media and Communications Agriculture, Fishing and Forestry Restaurant and Food Processing Trades Service and Transport Technical and Industrial Production Total Source: Directorate for Education and Training, 2014a VET teachers and trainers There are three main groups of training staff at the upper secondary level VET: VET teachers who provide formal school-based education and training; training supervisors (faglige ledere); and trainers (instruktører) who provide training in enterprises. The formal qualification requirements for VET teachers at schools are specified in national regulations. In principle, there is no difference between teachers in VET and other teachers. Both groups must have two sets of formal qualifications: qualifications in the relevant subject and in education (pedagogics and didactics). VET teacher education programmes follow the general degree system, with a three-year bachelor degree and a two-year master degree. To Page 18 of 53

19 become a qualified VET teacher, one must either complete vocational practicalpedagogical education or vocational teacher education. Vocational practical-pedagogical education (consecutive model) is a 1-year programme (2 years for part-time study) for students who already possess a vocational/professional degree or some other qualification. The main fields of study are pedagogical theory, vocational didactics and supervised teaching and training practice. Admission requirements are: (a) a professionally oriented bachelor s or master s degree plus minimum two years of professional experience, or a qualification as a skilled craftsperson/worker; and (b) two years of occupational experience; (c) two years of further studies (technical, professional, managerial); and (d) general matriculation qualifications or recognition of informal and non-formal qualifications. Vocational teacher education (concurrent model) is a comprehensive 3-year bachelor programme that covers both vocational training and pedagogy. It is also available as part-time study and through work-based provision. The admission requirements are: an upper secondary vocational qualification; two years of relevant work experience; and general matriculation qualifications or relevant informal and non-formal qualifications. All teacher education programmes for the lower and upper secondary levels (grades 8 13), including those for VET teachers, were revised as part of the implementation of the Norwegian National Qualifications Framework of 15 December 2011, following up both the European Qualifications Framework for Higher Education in the Bologna Process (QF-EHEA) and the European Qualifications Framework for Lifelong Learning (EQF). New regulations on the relevant framework curricula were laid down in March Competence for quality is a scheme that offers continued training with European Credit Transfer and Accumulation System (ECTS) credits to teachers. It is a partnership between the Norwegian association of local and regional authorities, higher education (HE) institutions and national education authorities. Teachers are temporarily freed from their duties to enable them to take part in further studies. The partners have agreed on specific subjects and areas where specific teacher programmes are established. Some of these training programmes target VET teachers. However, few VET teachers apply for the training. Page 19 of 53

20 A training enterprise taking an apprentice must appoint a qualified training supervisor (faglig leder) and one or more trainers (instruktør). How the training is conducted varies between enterprises. However, other employees in the enterprise are often involved in the training. The training enterprise must be able to document how the training is planned, organised and assessed, to ensure that apprentices can develop the necessary skills and competences. These skills are not assessed by tests or grades, but through continuous evaluation by the enterprise and two meetings a year between the trainer (instruktør) and the apprentice. Training supervisors (faglige ledere) in enterprises or other workplaces with apprentices must ensure that the training meets the requirements set by the Education Act (Ministry of Education, 1998). They must have one of the following qualifications: trade or journeyman s certificate in the relevant trade or craft; master craftsperson s certificate in the relevant craft; relevant higher education in the trade or craft; adequate educational background in the parts of the trade which, according to the curriculum, will be taught in the enterprise; six years of experience in the trade or craft. Trainers (instruktører) in training enterprises are vocationally skilled often with a formal vocational qualification. They are not required to have a teaching certificate. Some trainers have not formalised their vocational skills, but perform solely based on skills developed through work practice. Formal regulations simply state that the management of the training enterprise must ensure that trainers have the necessary qualifications (The Education Act) Routes to further education and training Holders of a trade or journeyman s certificate may pursue further studies at a tertiary vocational education college (fagskole) leading to an EQF level 5 qualification (see also section 2.2.2). They also qualify for higher education under certain conditions. Access to higher education is facilitated through multiple routes: (a) upper secondary school leaving certificate based on successful completion of a general or academic programme in upper secondary education; (b) the third year of supplementary studies qualifying for admission to higher education for VET learners (see more in 2.2.1). (c) an upper secondary vocational qualification (a craft or a journeyman's certificate), plus successful completion of the one-year supplementary study qualifying for admission to higher education; Page 20 of 53

21 (d) the '23/5' route: applicants aged 23 or above with at least five years of work experience, or a mixture of education and work experience, and who have successfully passed the course in the six key subjects mentioned above (see more in section below); (e) recognition of prior learning (RPL): access based on individual assessment of formal, informal and non-formal qualifications is open to applicants aged 25 or above. Applications for admission on the basis of RPL are handled locally at each institution (see more in section below); (f) VET pathway to higher education (Y-veien): For certain specially designed courses, particularly in engineering, specific vocational qualifications from the upper secondary level satisfy the admission criteria. The Y-veien measure was first introduced in 2001, and the first programme was as a three-year bachelor programme designed for certified electricians. Since then, there has been an increase in the number of institutions wishing to offer a VET pathway to such adapted or tailor-made engineering programmes. Following two white papers, one in 2008 and one in 2013, both addressing actions to improve the quality in VET, it was decided to open up the possibility for VET pathway programmes in other fields, too (the Ministry of Education and Research, 2008 and 2013b) Tertiary education and training In Norway, the term tertiary (tertiær) is used for all formal post-secondary education and training, i.e. both tertiary VET (fagskoleutdanning) at EQF level 5 and higher education (EQF levels 6, 7 and 8). In higher education (HE), all vocationally oriented courses and programmes are part of the ordinary higher education system. There is no formal or other distinction between vocational, professionally oriented and non-vocational higher education. Tertiary VET The Act relating to tertiary vocational education (lov om fagskoler 2003, latest amendment December 2010), regulates public and private tertiary vocational education colleges at EQF and NQF level 5 (fagskoleutdanning). This level of education and training is not part of the higher education system. Providers at this level offer courses and programmes lasting 6 months to 2 years. Providers design their own courses and curricula, with learning outcomes being an integral part of all programme designs. Programmes must be approved by the Norwegian Agency for Quality Assurance in Education (NOKUT Nasjonalt organ for kvalitet i utdanningen), the agency responsible for accreditation and quality control. Page 21 of 53

22 There are few students at this level, ca in 2013, compared to in higher education. About 60 per cent of the providers are private, and 56 per cent of the students attend these private colleges (Ministry of Education and Research, 2013b). The public colleges at this level are administered by the county authorities, except for the 16 funded directly by the Ministry of Education and Research. The public colleges are required by law to offer good quality training and cover local/regional labour market skill needs at this competence level (mainly in technical, maritime, health and social studies). Access is based on an upper secondary qualification or recognised prior learning (RPL) (see for details). No work practice is required. However, many programmes, particularly in the health and social sector, are designed as part-time studies in which students are required to work part-time and do project assignments at a work place, often on their own. There are no age restrictions on participation. Candidates with a completed two-year tertiary VET programme, and with completed upper secondary level Norwegian courses, qualify for general admission to higher education. Many tertiary vocational colleges offer such Norwegian courses as part of their education and training. The framework curricula for the bachelor programmes in engineering allow for the recognition of respective two-year technical tertiary VET as one year of the HE engineering programme. Similar options exist through agreements between some tertiary vocational education colleges and higher education institutions allowing graduates to be admitted directly to the second year of engineering. However, such agreements often have conditions for the technical vocational college students. For instance, engineering at higher education level takes college candidates 3½ or 4 years to achieve a bachelor degree. Since December 2011, there are two sets of learning outcome level descriptors in the Norwegian Qualifications Framework (NQF) for tertiary vocational education at EQF 5, called, fagskole 1 for partial level completion and fagskole 2 for full level completion. Higher education institutions The Act relating to Universities and University Colleges, (Lov om universiteter og høyskoler 2005, latest amendment 2014) applies to all higher education (state and private, vocational and non-vocational). The Act regulates organisational and management aspects, provides for the recognition of study programmes, for access, examination and certification, for quality assurance as well as for the learning environment for students. NOKUT is the quality assurance and accreditation agency for higher education. Page 22 of 53

23 Higher education institutions (HE institutions) design their own courses and programmes in accordance with the regulation on quality assurance in HE and tertiary VET. NOKUT has developed further quality criteria for evaluations and accreditation specified according to level (bachelor, master, and Ph.D. degrees). The criteria are laid down in regulations. HE institutions are required to develop their own quality assurance systems, which need to be re-accredited by NOKUT every six years. With the implementation of the national qualifications framework for higher education in 2009, now part of the Norwegian Qualifications Framework for Lifelong Learning (2011), which comprises all levels, learning outcomes are an integral part of all programme design. There are no tuition fees at State HE institutions for ordinary programmes, and there are no age limitations for admission or attendance. Students aged between 18 and 65 may receive financial support from the State educational loan fund (Statens lånekasse for utdanning). To ensure relevance in provision, HE institutions are encouraged to cooperate with business and industry. As a follow-up of the 2009 white paper Education Strategy, all HE institutions are required to have a consultative council for cooperation with working life (Råd for samarbeid med arbeidslivet, RSA) and develop a strategy for such cooperation. Norway Open Universities (Norgesuniversitetet) is an agency under the Ministry of Education and Research mandated to stimulate Norwegian HE institutions to develop and offer flexible programmes and courses based on ICT, and to coordinate activities within the field of lifelong and flexible ICT-supported or multimedia learning in higher education. Flexible modes of provision (parttime, distance, decentralised, media- and/or ICT-based) are common, and the distinction between flexible and non-flexible modes is moreover becoming blurred with the increasing flexibility of ordinary on-campus programmes (web-based course provision and information, registration, assignments, feed-back by , etc.). As a rule, most programmes and institutions in higher education are open to part-time studies. The first MOOCs (Massive Online Open Courses) were offered by Norwegian HE institutions in 2013, and a Royal Commission published a green paper on MOOCs in June It was on public consultation in autumn Master craftsperson education The Act relating to Master Craftsperson Certificates (Lov om mesterbrev, 1986) establishes the framework for the master craftsperson certificate (mesterbrev). Master craftsperson education is VET for trade or journeyman s certificate holders, who also have several years of relevant work experience, and wish to Page 23 of 53

24 set up their own business or hold a managerial position in a craft enterprise. The training, which combines general business management, marketing and vocational theory, is a public certification arrangement under the Ministry of Industry and Trade (Nærings- og handelsdepartementet). It is administered by the publicly appointed Master Craftsperson Certificate Committee (Mesterbrevnemnda -MCC), which determines training standards and practice requirements and awards the certificate. The MCC defines the curricula based on input from professional master craftspersons and relevant social partners. One adult education association, Folkeuniversitetet (FU), has the exclusive right to run the Master Craftspersons academy. The training covers general administrative subjects, e.g. organisation and management, marketing and financial control, as well as craft theory. Common subjects are delivered part-time over two years (the training is typically combined with fulltime work either as an employee or owner of an SME). ICT is integrated in the whole course. Both common subjects and craft theory are offered as evening and part-time classes. Distance education courses are also available. Common subjects are completed with a written examination. In craft theory, a written examination is held for each master craftsperson subject. One may also sit for the examination as a private candidate. Over the last years, MCC has gradually extended the Master Craftspersons related education system. Thus, learning output based degrees from other providers can also be recognised. Successful candidates obtain the title Master craftsperson. The master craftsperson certificate is awarded in 73 different crafts covering all traditional trades in which journeyman s examinations are held and journeyman s certificates issued, as well as some (newer) trades with craft examinations and certificates VET for adults and re-integration to education and training Dropping out of upper secondary education and training in Norway is not necessarily a dead end. A well-developed adult education system and opportunities for validation of prior learning and experience, enables reintegration to education and training. These measures may explain that 18.2 per cent of the population in the age group 25 and 64 participate in some form of education and training. Eurostat statistics show that the EU28 average for the same age group is 8.9 per cent of the population (Eurostat, 2014a). Page 24 of 53

25 Re-integration to upper secondary VET qualifications Statistics reveal high participation rates for adult learners acquiring VET qualifications. Of all trade or journeyman's certificates completed in 2013 (Table 9 below), 43 per cent were by learners above 24 years old. Table 9. Completed trade or journeyman s certificates, 2013 by age group years 21 years 22 years 23 years years years years years Source: Directorate for Education and Training, 2014a. A reason for the high participation rate of adults may also be that adults without upper secondary education and training have a statutory right to receive it. Further, adults can sign apprenticeship contracts with training enterprises. However, the grant given to training enterprises taking in adult apprentices (basistilskudd II) is about per year per apprentice, compared to per apprentice in upper secondary VET. In addition, there are two documentation schemes where adults can assess their practical experience, namely recognition of prior learning (RPL, Realkompetansevurdering) and experience-based trade certification (praksiskandidat). RPL targets adults that have worked in a trade for years without much schooling and no formal qualification. Adults have a statutory right to have their prior informal and non-formal learning assessed against national curricula. The assessment process may result in an exemption from parts of the training schedule and a shorter period of training before the final exam. County authorities are required to provide adult education adapted to individual needs and their life situation. For some adults the validation process is a step towards obtaining a trade or journeyman s certificate. Page 25 of 53

26 The Education Act ( 3-5) gives candidates for experience-based trade certification (praksiskandidat) the right to take the trade or journeyman's examination without an apprenticeship. The candidate must demonstrate comprehensive competence in the field, and cover the objectives in the curriculum (apprenticeship training). The length of the candidate s work experience in the field must be equivalent to the length of the apprenticeship period plus 25 per cent. This period is normally a minimum of five years of practice. Relevant previous education is credited as practical training according to established rules. Table 10 below shows the number of adults that have completed the trade or journeyman s certificate with the experience-based scheme in Table 10. Completed trade or journeyman s certificates for the experiencebased candidate, 1. October 2013 Sectors No % Building and Construction Design, Arts and Crafts Electrical Trades Health and Social Care Media and Communications Agriculture, Fishing and forestry Restaurant and Food Processing Trades Service and Transport Technical and Industrial Production Candidates completing within the old reform (R94) All VET programmes Source: Directorate for Education and Training, 2014a. Re-integration to tertiary education Adults can be admitted to tertiary VET and to higher education based on an individual assessment of informal, non-formal and formal qualifications (RPL). For RPL-based admission to higher education, applicants must be aged 25 or above. In addition, vocational colleges and HE institutions are free to give recognition for parts of a study programme based on non-formal and informal learning, making it possible for adult learners to qualify in less time than the prescribed period of study. Tertiary VET Act (lov om fagskoler) originally only provided for the use of RPL in connection with admission. To ensure quality procedures, Vox, the Norwegian Agency for Lifelong Learning, published guidelines on the use of RPL for admission to tertiary vocational education in autumn 2013 (VOX 2014). Page 26 of 53

27 Through an amendment of the law in December 2010, the use of RPL was formally extended to recognition of parts of programmes, and in August 2013, new regulations were laid down to this effect (Ministry of Education, 2013a). The act relating to universities and university colleges (lov om universiteter og høyskoler) provides for the use of RPL both in connection with admission and recognition of part of study programmes. The use of RPL is widely practised in connection with admission. As it is less used to recognise parts of study programmes, the Ministry of Education and Research asked Vox to promote the use of RPL for the recognition of parts of study programmes. In 2013, Vox published a guide to this effect, which had been developed in cooperation with the Norwegian Association of Higher Education Institutions (UHR) Other forms of training The adult education act (Lov om voksenopplæring 1976, latest amendment 2003) regulates different types of adult training that are not covered by the education act. Education and training for adults is provided by a variety of public and private institutions. Among the most important institutions are private adult learning study associations (studieforbund), labour market training institutions, work-based training and distance training Private VET at the initiative of the individual Adults wanting VET outside the workplace and public education have many opportunities. Publicly recognised adult learning associations (studieforbund) and distance education and e-learning institutions (fjernundervisningsinstitusjoner) throughout the country offer all kinds of courses on a commercial basis, from work-related ones to the more personally oriented. As of 2013 there were 15 recognised adult learning associations and 18 approved distance education and e-learning institutions. Full-time, part-time and evening options are available for most courses, and delivery modes comprise traditional classroom, distance education and e-learning. Many people use distance education to prepare for craft examinations and upper secondary school examinations. Most distance education courses are open to all. For courses leading to higher education qualifications, regular admission requirements for that level apply, see description in section The government subsidises courses offered by recognised institutions. The adult education associations are non-government umbrella organisations for a total of 410 voluntary organisations, including political parties, employers and sector organisations and trade unions, non-governmental Page 27 of 53

28 organisations (NGOs) and other interest groups. In 2010, a total of students attended courses delivered by adult education institutions per cent were women and only 24.2 per cent under the age of 30. Adult students are, under certain conditions, entitled to financial support from the State educational loan fund (Statens lånekasse for utdanning). Twelve publicly recognised distance education institutions provide needsbased training by using specially adapted training materials and long-distance communication with a teacher. Courses cover both training according to national curricula at secondary, tertiary VET and higher levels, and personally oriented courses. These learning opportunities are of particular interest in Norway and other sparsely populated countries. In 2010, participants were registered in these courses: 57.4 per cent were women, and 35.7 per cent under the age of 30. VET courses offered by adult education associations (studieforbund) and distance education associations (fjernundervisningsinstitusjoner) is most often delivered as part-time work by school teachers from the upper secondary VET schools. Hence, there is no distinction between VET teacher at these two training provisions, (more in section above) Training for employment and integration Labour market training for unemployed people as well as language and vocational training for immigrants also constitute important parts of the Norwegian education and training system. Training is embedded in several of the public measures targeted at unemployed people and other vulnerable groups in the labour market. The measures vary according to fluctuations in the labour market and the number of people with specific needs for support. Training in sheltered workshops (Kvalifisering i arbeidsmarkedsbedrift) aims to supply learners with special education needs with practical skills to obtain ordinary work. Maximum duration is two years, but the period may be extended if the participant wants to pursue a trade or journeyman s certificate. The programme takes place in a labour market enterprise (Arbeidsmarkedsbedrift), which is a sheltered workshop. Participants receive financial compensation. Labour market courses (Arbeidsmarkedsopplæring AMO) aim to equip unemployed persons over 19 years of age with vocational skills resulting in (re)employment. Long-term unemployed (26 weeks or more) with limited formal skills are given priority. Courses last between one week and 10 months, and may combine formal VET curricula and informal work practise. They may be a part of and lead to a trade or journeyman s certificate or other formalised qualifications. Page 28 of 53

29 In-house training (Bedriftsintern opplæring) aims to prevent exclusion from working life by strengthening the competence of employees who work in businesses that face serious restructuring problems. To counteract dropout from working life because of poor basic skills, the Government established the basic competence in working life programme (Basiskompetanse i arbeidslivet) in The overall aim is to give adults the opportunity to acquire the basic skills they need to keep up with the demands and changes in modern working life and civil society, and encourage them to achieve further educational goals. The awarded grants are to be spent on courses in reading, writing, math and basic ICT. Since 2004, newly arrived refugees, persons granted residence on humanitarian grounds and family members reunited with them, are legally entitled and obliged to follow a 2-year, full-time introduction course (introduksjonskurs) to the Norwegian society. The course covers language training, social studies and training for work. The participants receive a salary from the government Enterprise-based learning Enterprise-initiated learning for employees are relatively widespread among Norwegian employers. A study from the research institute FAFO (Nyen, 2004) indicates that 57.2 per cent of the working force in the age group from 22 to 66 years annually attend in-service courses organised by the workplace or respective social partners. A study conducted by Damvad (2013) with a large dataset of private sector enterprises found that larger enterprises in general offer more training to its employees than smaller enterprises. The study shows that 74 per cent of enterprises that were part of larger business corporations offer some sort of inbusiness training to its employees. In comparison, half the enterprises that were not part of larger business corporation did the same. However, as Table 11 reveals, there are considerable differences between sectors. In the transport and storage sector practically all enterprises that are part of larger business corporations offer enterprise-based learning to its employees. In the hotel and restaurant sector 70 per cent of the larger business corporations and 25 per cent of the enterprises not part of business corporations offer training. However, in the building and construction sector, 68 per cent of the enterprises that are not part of larger corporations offer training to its employees, compared to only about half of the enterprises in larger business corporations. Page 29 of 53

30 Table 11. Enterprise training by sector (%, 2012) Sectors Enterprises part of a corporation Offer training Do not offer training Enterprises not part of a corporation Offer training Do not offer training Transport and storage Retail Industry Service industry Primary industry Hotel and restaurant Building and construction Source: Damvad, When it comes to participation of employees in the training offered by the enterprises, 85 per cent of the enterprises in the study reported that 26 per cent of the employees participated. About 30 per cent of the enterprises reported that all their employees participate in training. In-business training covers many different areas such as professional development, safety, ICT, motivation, organisation development, economy and administration, communication and language training. However, professional development of employees is reported by 75 per cent of the enterprises to be the main purpose of the training. The Damwad report shows that Norwegian enterprises are actively involved in training of their staff. However, most of this training is non-formal, and not conducted through the formal education and training system. A relatively large proportion of the employers express that they have a need to formally approve the non-formal training given to employees. However, the study also shows that the employers have limited insight into what it entails to go through with such processes. As there are only formally recognised qualifications on the Norwegian National Qualifications Framework, non-formal qualifications such as those discussed here, must first be formally recognised before they can be a part of the qualifications framework. Page 30 of 53

31 CHAPTER 3. Shaping VET qualifications 3.1. The role of social partners and anticipation of skill needs Norway has a long standing tradition of close cooperation, both formal and informal, between education and training authorities and the social partners in upper secondary and tertiary VET. As VET is of major importance to the social partners when it comes to working conditions, productivity and profitability, employers, employees, teachers and pupils organisations have considerable influence. More so, close dialogue with social partners is important to secure a relevant VET provision. Thus, social partner representatives from businesses, industries and public sectors hold most seats in all advisory bodies in the decision-making system for upper secondary VET. This enables technological and labour market changes to be continuously communicated from the market actors to the decision-making bodies. For new programmes to be recognised in the VET structure a needs estimate should be in place. The overall aim of the tripartite cooperation is to provide relevant VET skills. Tripartite cooperation and social partner participation has its legal basis in the International Labour Organisation (ILO) Convention 142, ratified by Norway in 1976 (ILO, 1975). It establishes that employer organisations and trade unions shall influence and participate in laying the framework for and develop the vocational guidance and training. The tripartite cooperation is further emphasised in the Norwegian Education Act (Opplæringsloven), which stipulates and formalises procedures for representation in central bodies. Further, the involvement by social partners in VET is institutionalised through formal agreements between social partners. Both the quadrennial national collective labour agreements (Hovedavtalene) and the 2-year wage agreements (tariffavtalene) include sections on objectives, rights, obligations and procedures regarding cooperation on training of staff in member enterprises, including apprenticeships Upper secondary VET According to the Education Act, the social partners have representatives, most often the majority, in all important advisory bodies at national and county level for upper secondary VET: Page 31 of 53

32 The National Council for Vocational Education and Training (Samarbeidsrådet for yrkesopplæring SRY); gives advice on all VET at upper secondary level; Nine Vocational Training Councils (Faglige råd) give advice on training in specific groups of trades one for each VET programme (see table 4 in 2.2.1); The County Vocational Training Board (Yrkesopplæringsnemnda) for each county; gives advice on quality, career guidance, regional development and the provision in the county to meet the local labour market needs; The trade-specific Examination Boards (Prøvenemnder) are situated in each county; National Appeals Boards (Klagenemnder) cater for candidates who fail the trade or journeyman s final examination at county level. The figure below shows how the tripartite cooperation and the governance structure for upper secondary VET is organised: Figure 3. Responsibility for upper secondary VET Source: Directorate for Education and Training, 2014a. Page 32 of 53

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