Lifelong Learning Programme Implementation of the European Agenda for Adult Learning Peer learning activity on supporting adults into work by connecting European instruments EQF, ECVET and validation of non-formal and informal learning. The Hague, The Netherlands 21, 22 and 23 May 2014 Final Report Rinske Stelwagen 1
CONTENTS 1. INTRODUCTION... 3 2. DAY 1: EXPECTATIONS... 4 2.1 Expectations of PLA participants... 4 3. DAY 2: PRESENTATIONS AND DISCUSSIONS... 4 3.1 Welcome and context... 4 3.2 Dutch Pilot Projects on connecting instruments and employability... 5 3.2.1 Dutch results of connecting the instruments EQF/NLQF, ECVET and Validation of Non- Formal and Informal Learning... 5 3.2.2 NLQF, non-government related education and ECVET units... 6 3.2.2 The benefits for employers and employees... 6 3.3 Presentations... 7 3.3.1 The national coordinator of Sweden Sara Peterson... 7 3.3.2. The national coordinator of Slovenia - Vilič Klenovšek... 8 3.3 Discussion groups... 9 4. DAY 3: PRESENTATIONS REFLECTION AND NEXT STEPS... 9 4.1 Connecting EQF, ECVET and Validation (Continuation)... 9 4.2 Individual Countries next steps... 11 4.3 Ending remark from European Commission... 11 5. MAIN CONCLUSIONS OF THE PLA... 11 5.1 Educational Systems and programs... 11 5.2 Combining European Instruments... 12 5.3 Quality and Communication... 12 2
1. INTRODUCTION 1.1 Peer Learning Activity on supporting adults into work by connecting the instruments EQF, ECVET and non-formal and informal learning A Peer Learning Activity (PLA) on supporting adults into work by connecting the instruments EQF, ECVET and non-formal and informal learning, hosted by the Dutch Ministry for Education, Culture and Science took place in The Hague on 21-22-23 May 2014. The PLA brought together 21 participants from 11 countries 1, all active in their own countries in de policy making and execution of Adult Education The Peer Learning Activity was organised by the National Coordinator Adult Learning as part of the work programme of the Life Long Learning Programme Implementation of the European Agenda for Adult Learning 2012-2014. The immediate motive of the current Dutch Life Long Learning program is the expected shortage of labour in specific sectors on the one hand, and the surplus of employees due to the economic crisis, a changing labour market and an aging population in other sectors on the other hand. The context of the PLA is centred around adults where the needs of the labour market are leading. Both the program and the PLA explore how collaborating between different parties and connecting the European instruments EQF, ECVET and validation of non-formal and informal learning can help diminishing the (un)employment problem that is becoming increasingly urgent in Europe. 1.2 Overall objective of the Peer Learning Activity (PLA) on supporting adults into work by connecting the instruments EQF, ECVET and non-formal and informal learning The challenges the Netherlands face are not unique. The economic crisis and changing demands on the labour market (and therefore the change in skills that employees need) is Europe-wide and most countries are in the process of matching adults and work by setting up programs that increase and update both their basic and professional skills. The notion that using the European instruments in an integrated way should help people to obtain in a qualification which will help enter or remain in the labour market in a more efficient way is becoming increasingly dominant. The overall objective of the PLA was to enable countries to share their projects and expertise in this area (in particular: and to and learn from other countries experiences. In preparation for this PLA Prof. Dr. Maurice de Greef conducted a small survey on the state of play on both the implementation of and the connection between the European instruments 2. His report concluded that most of the respondents started the development of the EQF system, the ECVET system and the system of validation of formal and non-formal learning. 1 List of participants, Annex 4 (list of total 23, of which 21 participated) 2 Connecting EQF, ECVET and validation of non-formal and informal learning to support people in keeping their work or (re-)integrating on the labour market, Annex 2 3
However, there are differences between countries in the phase of implementation, especially of ECVET. Most of the systems are organized and financed by the government. Stakeholders should be more aware of their existence and possibilities. This report seeks to disseminate the results of the PLA among policy-makers and stakeholders and to support them in the development and implementation of high- quality adult learning. The report sketches the presentations, panels, reflections and discussion during the two days of the PLA and then focuses on its main conclusions as derived from the plenary and working group discussions. 2. DAY 1: EXPECTATIONS 2.1 Expectations of PLA participants Following the opening welcome extended by Caroline Liberton (National Coordinator Adult Learning, Life Long Learning Program, Ministry of Education, Culture and Science) and Marijke Dashorst (Project leader on connecting the European instruments and independent consultant/expert) where the program 3 of the PLA was explained and participants were invited to share their expectations. The majority of participants focused on learning from each other s experiences in implementing and connecting the European instruments. Three were in particular interested in the system of validation of non-formal and informal learning, and three were struggling with the implementation of ECVET and sought good practices and arguments for that. Others wished to learn from other systems in order to make policy about or improve their system of adult education. Three were in particular looking for good practices and challenges in other countries in order to derive key success factors. One participant added that she wanted to learn how other countries succeed in involving all relevant stakeholders. 3. DAY 2: PRESENTATIONS AND DISCUSSIONS 3.1 Welcome and context Day 2 of the PLA focussed on sharing experiences. Anneke Tjalma from the Dutch Ministry of Education, Culture and Science sketched the motives of the Dutch government to invest in Life Long Learning and in particular in subsidising pilot projects in the health care and technical sector in order to support people in and into work by using the European instruments. The Netherlands is a small open economy, that has to adjust to rapid innovation and a changing labour market, where occupations change or disappear. Life Long learning can contribute to a manoeuvrable economy, an active and flexible labour market and an investment in human capital. The ministry likes to stimulate a more efficient education system for adults, where it is not always necessary to be educated on the whole qualification. A flexible and modular system will, apart from its efficiency, motivate adults better to keep learning 3 Program of the PLA, Annex 1 4
3.2 Dutch Pilot Projects on connecting instruments and employability The PLA is part of the work programme of the Life Long Learning Programme Implementation of the European Agenda for Adult Learning 2012-2014. The work program itself is built around specific pilot projects to help adults from work to work. At the moment, five projects in the healthcare and technology 4 sector are running, and several more are in sight. In part 3.1.1 of this section the process of the pilots is described and in part 3.1.2 one of the involved employers shares her experience. In section 4.1 the process of building units and the challenges that are faced are further elaborated upon from the point of view of the Validation of Prior Learning. 3.2.1 Dutch results of connecting the instruments EQF/NLQF, ECVET and Validation of Non-Formal and Informal Learning Regina Kleingeld, Director of the Partnership Life Long Learning, and director of the NCP NLQF explains the process of the pilots and their background. During the last years the instruments NLQF, ECVET and Validation were developed separately. Due to the common basis (all three are validation instruments based on learning outcomes) and goals, it was decided to connect them by setting up the partnership Lifelong learning. The philosophy is that connecting the instruments supports people to move from work to work, to up skill their knowledge and competences or to reintegrate into the labour market. New ways of validation will be found. It will support labour mobility and reduce cost. Moreover, it will strengthen flexible and tailor-made learning pathways. The Pilot projects are focussed on adults, where the demand of the labour market is leading. Qualifications are divided into units of learning outcomes (ECVET) that are described with descriptors of the NLQF. The Learning Outcomes of the ECVET units will be used as standards for validation. The outcomes are accommodated with behavioural indicators and professional products on the basis of which assessment of the pilot candidates can take place. The Learning Outcomes are also the standards for the tailor made education program. The three mean pillars of the pilot projects are ECEVT UNITS, Validation, Tailor-made education program. The employees are assessed and validated to fit their individual needs in three steps, depicted in the Figure that is depicted below Education Quick scan intake Exemption of education: exam only Exemption of exam: direct qualification All employees undergo a quick scan in which the first distinction is made between employees that need to be educated in (parts of) the program, and those who already (seem to) master the skills. Where the first group follows (parts of the) regular program, the second group is subjected to a detailed intake, in which he can proof with products, assessments, portfolio, etc 4 Resato, see section 3.2.3 5
whether he masters the required Learning Outcomes, and can be either exempted of education, exam or both. The project is being piloted in five different projects in the healthcare and science sectors, all with a direct need form the labour market, i.e. an employer with an actual need to up- or reskill their own employees. The issues the pilot projects seek to explore are: 1. How and will ECVET support further development of validation and tailor-made training programmes? 2. Does ECVET contribute in reducing costs in time and money? 3. Does ECVET contribute to labour mobility? 4. Who will be responsible for the settlement of standards for the units? 5. Additional questions may arise from the pilot phase. 3.2.2 NLQF 5, non-government related education and ECVET units In the Netherlands all qualifications in government regulated education are classified in the NLQF framework. Apart from governmental education, the Netherlands have a large number of private educators. The NCP NLQF is the competent body that classifies levels of qualifications offered by private providers into one of the levels of the NLQF/EQF. It is possible that in the future also ECVET units can be classified in one of the levels of the NLQF/EQF. By addressing a NLQF level to a unit, an employee can prove that he is able to operate on the area of the unit on a certain level. He receives a certificate. It is easier for another company, a school or a foreign organization to recognize and validate the employees knowledge and competences. The basis for recognition of the unit is that it is transparently described in Learning Outcomes, linked to a NLQF/EQF level. In order to address an NLQF/EQF level to a qualification (in the private sector) a strict and quite extensive procedure has to be followed before registration in the NLQF/EQF register. This procedure is needed to ensure quality and trust. 3.2.2 The benefits for employers and employees One of the employers involved in the pilots projects is Resato international BV. Arianne Stenvert, the director of HR, relates about the company s pilot experiences and educational policy. Resato is an independent company that produces high pressure machines for oil and gas industry. The company philosophy is to invest in their employees education, to keep them up to date, to stimulate and to increase a form of loyalty to the company. Resato has developed a Life Long Learning strategy that centres around the employees development. The individual educational needs of the employees are identified, and the company helps the employee (who is responsible for his own education program) to find the right educator and the right place for him within the company. It is in the employees interest to have his or her skills updated and validated. The hopes, expectations an anticipated results of the project for Resato is that ECVET will help them to continue building and developing an future- oriented organisation. 5 www.nlqf.nl 6
Resato welcomes the building bricks character of ECVET. It helps them identify the knowledge, skills and competences that are needed in this specific area, and create an ECVET unit, specifically for Resato. It is not taught in any school, and it exists next to other units, that are more general, and that can be implemented into official qualifications. The units are linked to an NLQF/EQF level, which gives insight in what level knowledge and skills exists in the company. The division of the occupation into blocks can help the employees move up in the most efficient, flexible and personal way, even when the blocks are parts of different qualifications. 3.3 Presentations 3.3.1 The national coordinator of Sweden Sara Peterson The Swedish have a result oriented steering system that is Learning Outcome based. The central government sets the goals, but local authorities design and execute the programs. School inspection is newly installed to ensure it happens according to the rules. Not only the execution and design is decentralises, but also the finances; the municipals pay for their own systems out of their taxes. Status of implementation of the instruments There is a proposal to implement the SEQF 6 in two steps form august 2014: inside the formal system as the first step, and the non-formal system as the second step. It should be applicable to all types of learning on all levels, and is as near the EQF as possible, with broad descriptors. There is no entry level. In 2011 the government mission was to link all qualifications to the SEQF, including quality criteria The qualification criteria include the demand to use Learning Outcomes linked to the appropriate SEQF level that have national legitimacy and relevance to its activity area. The provider must clearly describe how to assess the outcomes. The owner of the qualification must be recognised. Sweden has established a legal framework, has a NCP ECVET and has a national team of ECVET experts. The Swedish point system will be converted to ECVET points. The Swedish system at upper secondary level is modular, with LO-based (not time-based) credits attached to them, and in line with ECVET. In adult education, partial courses are possible and can be accumulated (and validated) to a complete course. The documentation of LO s is regulated but a Learning Agreement and a Memorandum of Understanding were not mandatory before, but will be applied after the government s decision on EQF and ECVET. In validation, the government will make national regulations in line with EU regulations, in order to remove and identify barriers. Development work between sectors needs to be coordinated but is only in adult education in place (and university admittance requirements). Qualifications from the labour market are non-formal. The national agency for Higher VET coordinates a validation (RPL) contact point. Sweden makes a distinction between assessing and grading. Validation is about the explorative approach (assessing) whereas with grading formal requirements have to be met. The issuing body can validate a certificate after assessing. 6 www.seqf.se 7
Adult Education The Swedish adult education policy goal is to give all adults the opportunity to extend their knowledge and develop their competences in order to promote personal development, democracy, gender equality, economic growth, employment and participate in an equitable society. A new curriculum for adult education has been established focussing on work and labour, strongly focussed on the individual, with an individual study plan and career guidance that can be constantly revised. The normative and regulating parts are downplayed. Validation, entrepreneurship of education and the European key competences are mentioned in this new curriculum. Studies at different AE levels can be combined. Employers are a new target group of the National Agency for Education. There is collaboration on apprenticeship basis. A national and local (mandatory local connection to the labour market) programme council advise national upper secondary VET. Government agencies between European instruments cooperate, but a formal decision from the government is still awaited. It is a challenge to explain the benefits of EQF and ECVET to all stakeholders, although the word is spreading and the interest seems big. 3.3.2. The national coordinator of Slovenia - Vilič Klenovšek The goals of assessment and Recognition of Non-Formal and Informal Learning of adults are to make the learning visible, and centred about adults and their personal development (where non formal learning is encouraged) as well as increasing employability by recognising (key) competences of adults. Assessing NFIL can have three goals for adults: Entering or continuing formal education, acquiring a qualification or for documenting and assessment individual knowledge to provide better flexibility on the job market or everyday life. The process of recognition of NFIL in Slovenia includes admission, identification/documentation/assessment, recognition and certification. The quality of the whole process is thoroughly monitored and trust between the different partners is a very explicit and important factor. Slovenia developed a list for the validation of eight EU competences, that centres around a e- portfolio and includes other tools that are specific to the competences, to which Slovenia has designed its own descriptors. Different target groups are addressed. Real life experiences are used in training and assessment processes. In cooperation with employers initially the goal was awareness raising about the key competences. The employers however expressed the need for help with assessment of the professional competences rather than the basic skills. The focus was then shifted to this area, but kept the key competences involved by linking them directly to the professional competences. Employers can be sceptical because they are afraid employees will leave after improving their skills, or demand a bigger salary or are just unaware of the possibilities provided to them. The SQF contact point is hosted by the institute for VET. The main role of the SQF is to explain horizontal and vertical relations between different types of qualifications and degrees. Key competences are also relevant in higher levels. 8
Slovenia has a fully developed credit system for initial VET that is modular and has credit points allocated to modules. Credit points are calculated on basis of LO s and their relative weight (60 points in one year) Plans for the future are to extend the system by focussing more on disadvantaged groups, unemployment, promotion of involvement of stakeholders. Slovenian national guidelines: A national coordination is established for directing and coordinating the development, research, assessment and national promotion of non-formal knowledge Secondary and higher education organisations for adult education will provide assessment and recognition procedures. A national qualification framework will be developed and implemented. It will include qualifications acquired in formal education as well as those acquired outside the formal system 3.3 Discussion groups The presentations were followed by reflection and discussion in two different sessions of working groups. In the first session the following questions were discussed: 1. Based on the presentations, what has triggered you most? 2. Would connecting EU instruments support people to move/change to other jobs and reintegrate them into the labour market? 3. Is there a role for the government and why? What includes Government: Ministry of Education of broader? What is the involvement in the development of other stakeholders such as social partners, employers, education and training providers, etc. 4. What is the relation between basic skills, vocational education and training and higher education and could the implementation of EU instruments improve this relation? Is there anything to mention concerning non formal and formal learning? In the second session the following questions were centralises: 1. Who is setting the criteria and standards and who is responsible for certification? 2. What are the criteria for giving credit points for modules? 3. If we want to connect the instruments, is a modular system conditional? 4. Do we need to downplay the normative and regulating parts in our education system? Feedback from the working groups is presented as part of the conclusions of the PLA under Section 5 below. 4. DAY 3: PRESENTATIONS REFLECTION AND NEXT STEPS 4.1 Connecting EQF, ECVET and Validation (Continuation) Thijs Pijls (Partnership Life Long Learning, Director of Dutch Knowledge Centre APL) continues the experiences of the Dutch Pilot projects. Combining the instruments aid the one 9
step up approach. For low-skilled people, being able to obtain successive parts of an education lowers the threshold of acquiring a whole qualification at once. The Netherlands has experience with the recognition of prior learning with a RPL cycle that consists of information, documentation, validation and ultimately qualification. The process is bound by a quality code that concerns all parties. Despite a high number of RPL procedures, there are still problems. RPL is found to be too time consuming, too complex, too expensive and it is difficult to write a good certificate of experience. We hope to diminish these challenges by combining the three instruments in our pilot projects. In the pilot three steps are taken: design units design validation procedure design tailor made education programmes The procedure that has been used in the pilots (Intake-Experience Scan Validation) is depicted in section 3.2.1 of this report. The procedure is not directed at the whole qualification but at one or more units of the specific qualification. The units consist of two parts. The first part describes general information, e.g. the characterisation/context of the profession, the professional attitude, the complexity and the laws and regulation. The second part is the description of the content of the unit. Activities are described in terms of an NLQF level: knowledge, skills and competences. Activities are divided into sub activities also related to Learning Outcomes. Linked to these sub activities are guidelines for validation and the required evidence (e.g. reports, portfolio, products, etc.) Involvement of stakeholders is an important factor in the pilot projects. In the project team, RPL providers, VET institutions, exam committees, Experts, Employers, Centres of Knowledge and (only in healthcare projects) Healthcare Insurance work together. In the steering committee are employment agencies, ministry of Education, Ministry of Social Affairs, VET council, Inspection of Education, Cooperation of VET and Labour market (sbb) and the Labour Foundation, Association for private providers. The main tasks of this committee are: - To give advice to the pilot projects - To give recommendations to the ministry - To communicate and involve other stakeholders needed for further development and implementation Challenges faced: - The government- regulated qualifications are mainly developed for youth, not for adults. Not all that is relevant for youth in initial VET is also relevant for adults who have years of working experience - The value of the ECVET unit for exam committee and employers. The certificate has no legal status yet. Because we do not have a modular system - Trust by: guidelines, cooperation between providers and exam committee. Trust is difficult to establish and conditional for success. Quality code alone is not enough. Cooperation and communication is essential. - Efficiency of validation. The procedure that is used is comparable to the existing RPL method, but shorter and quicker 10
- Tailor made programme for adults. Designing is not so much the problem but organising it, in particular for public providers, is. Tailor made can be individually or per group, depending on the need. - The exam committees that can validate are used to target youth and initial education. They have problems with the mind shift to adults and non-formal education and the flexibility that it demands. Suggested solutions are to involve the social partners (involved in steering committee) and expect that it takes time. 4.2 Individual Countries next steps The PLA was ended by a session in which the individual countries contemplated and shared their next steps and ambitions, equipped with the information that was handed in this PLA. The following questions were addressed: 1. What are you going to do with what you picked up in this PLA? 2. What support do you need? 3. How can the Call for Adult Learning support you? The results of these discussions are presented as a part of the PLA s conclusions in section 5.4 4.3 Ending remark from European Commission As a closing statement, Ann Vanden Bulcke from the European commission made the following statement. It was a very positive experience for me, and very rewarding to see that the guidelines of the Commission are actually taken into account in practice. It is enriching to learn about the diversity of practice and systems and culture. It is very challenging to cooperate and work together, and at the same time it is very joyful. I am happy that the Call is perceived as a positive instrument. It is extremely helpful to see how different countries handle the same obstacles differently. We are looking to find solutions that maybe readily available in other countries Many of the countries have similar concerns. We have a platform 7 for Adult Education that can be used to share information. I have a very positive feeling about this PLA and believe that working in small groups is a very efficient way. 5. MAIN CONCLUSIONS OF THE PLA 5.1 Educational Systems and programs In guiding adults from work to work in general, and in creating individual, flexible and efficient learning pathways it is conditional to have a modular education system. A modular 7 EPALE, note from report writer: http://ec.europa.eu/epale/nl#welcome 11
system enables the validation of parts of a qualification. Either as a part of a regular educational program, or as part of a customised program. The Netherlands are the only participating country that does not have a modular system. This makes it very difficult to offer adult the possibility to obtain a qualification by accumulating modules at the time convenient for the employee and for the employer. Because of the lack of a modular system the Dutch pilot projects focusses not only on the public education sector, but also on the private sector where the other countries all plan to start their implementation of European Instruments and flexible adult learning pathways in the public sector, because this public sector is in general seen as easier to reach. When creating flexible learning pathways it is imperative to adjust education to adults, taking into account their specific needs, prior learning and experience to keep them motivated to keep learning and developing their skills.. Not all countries have a credit system. When a credit system is implemented it is important to take not only input and effort into account, but also experience, complexity and relevance to the labour market. The credit system should fit both VET and HE. ECVET points can be attributed as additional information on the relative weight of the unit. 5.2 Combining European Instruments European Instruments can be treated as individual instruments and but will have added value when they are combined. EQF, ECVET and Validation of Formal and informal learning are all validation instruments (with a different angle) and based on learning outcomes. Connecting European instruments will facilitate mobility in the labour market because it gives the possibility of more flexible learning pathways and a more transparent system for all involved stakeholders. It will also help to reduce the costs in time and money and avoid frustration of repetition of what has been learned in in earlier phase of one s life. Therefore it is important to build bricks (ECVET units) so that adults are not obliged to follow the entire education programme, but can accumulate the ECVET units. European instruments can be used in both Formal and Non Formal Learning. Non-formal qualifications can be classified in one of the EQF/NQF levels. This will facilitate transparency in the educational market. 5.3 Quality and Communication Involving all stakeholders is an essential part of guiding adults from work to work. Communication and trust are crucial factors. It is imperative to speak each other s language and agree on terminology. A competent body should be responsible for setting the standards and criteria of (units and) qualifications. In most countries this is true for the formal sector but not for the informal sector. Setting up a competent body for the non-formal sector is useful to ensure the quality. When involving employers some are found to be reluctant to facilitate Life Long Learning in fear of using their employees loyalty and newly found knowledge by mobility, or demands for more pay whereas other companies (mostly internationally oriented ones) emphasise the needs of educating their staff and stimulating personal development. 12
5.4 Next Steps All attending countries expressed the wish for further cooperation and knowledge sharing between countries and the informing of relevant stakeholders at home on the information that was shared in this PLA. Individual Countries added the following: The Czech Republic wants to implement the idea of the different approach for youth and adults and start a project on that. Malta will further develop its RPL system and improve cooperation at ministerial level and stakeholders. Germany will advise its Ministry to continue the NCP ECVET from a broader perspective of linking the instruments, and ask the coordinator of Non Formal Education to join this group. Sweden will look into organising a PLA on the connection of European Tools. Their Call will focus on Life Long Learning in a broad perspective, not only basic on basic skills and employment. Estonia will explore if the adult courses can be linked into the national qualification system. Also, they want to learn about the Slovenian e-portfolio system. Italy will organise a conference in October on nonformal and informal Learning and invites all participants of this PLA. France will organise a customised seminar at national level between the members of the NQF and ECVET experts and will propose a (very pragmatic and technical) study visit. Portugal will make a report with a comparative analysis between the Dutch and Portuguese situation. These countries have different approaches while using the same instruments. Also Portugal will make a comparative analysis of other European Countries. Spain will find additional funding and apply for a study visit. Slovenia will encourage new development of professional materials and will arrange support for mobility for providers to learn from other countries. Secondly, Slovenia will make a further agenda to convince stakeholders. The Netherlands will explore the possibilities of a modular system, since it is the only country without one and the urgency of such a system has become very clear in this PLA. Also it will concentrate further on the difficult part to (re)build trust between the relevant parties (exam committees, RPL providers, etc). Finally, they would like to set up a competent body that will set the standards for adult and non-formal learning. 13