Training strategy European Agency for the Management of Operational Cooperation at the External Borders of the Member States of the European Union Plac Europejski 6 00-844 Warsaw, POLAND T +48 22 205 95 00 F +48 22 205 95 01 frontex@frontex.europa.eu www.frontex.europa.eu
2 3 This strategy supports the implementation of Frontex s Multi Annual Plan and promotes the achievement of the Agency s mission and strategic objectives. It sets out the objectives and measures to be taken to implement Frontex s training mandate, establishing the basis for further developing the Agency s training activities. This strategy does not address the corporate training of Frontex staff. 1 Legal Basis Frontex s mandate in the field of training is defined in Articles 2, 5 and 14 of the Frontex Regulation1. According to the Regulation, Frontex shall assist Member States in training national border guards, including establishing and further developing common training standards. The Agency shall establish and develop common core curricula for the training of border guards and provide training at European level for instructors of Member States national border guards, including training on fundamental rights, access to international protection and relevant maritime law. borders in the context of operational cooperation coordinated by Frontex2. These rules specify that border guards and other staff participating in a sea operation shall be trained with regard to relevant provisions of fundamental rights, refugee law and the international legal regime of search and rescue. Furthermore, the Agency is tasked to provide training at the European level for trainers of the national border guards of the Member States. Additional training courses and seminars are also to be offered to officers of the competent national services of the Member States on subjects related to Frontex s main tasks. An exchange programme for EBGT members shall also be established to allow them to acquire knowledge or specific know-how from experiences and good practices abroad, by working with border guards in a Member State other than their own. In addition, the Agency shall, when needed, provide members of the European Border Guard Teams (EBGT) with advanced training relevant to their tasks and powers, and shall conduct regular exercises with those border guards. The Agency is also obliged to ensure that prior to participating in operational activities organised by the Agency, all participants receive training in relevant Union and international law, including fundamental rights and access to international protection and guidelines for the purpose of identifying persons seeking protection and directing them towards the appropriate facilities. This obligation is further emphasised in article 4(8) of the Regulation, which establishes rules for the surveillance of the external sea According to the article 14(2) of the Frontex Regulation, the Agency may, within the framework of working arrangements, cooperate with the authorities of the third countries competent in matters covered by this regulation. Furthermore, Frontex may invite observers from third countries and other European Agencies to participate in the training activities referred to in Article 5. Finally, according to article 14(5), the Agency may launch technical assistance projects in third countries. In this regard, training activities are an important element of the support on capacity building Frontex provides to the competent authorities of third countries. 1 Council Regulation (EC) No 2007/2004 of 26 October 2004, establishing a European Agency for the Management of Operational Cooperation at the External Borders of the Member States of the European Unit, with amendments Regulation (EC) No 863/2007, 11.7.2007; Regulation (EU) No 1168/2011, 25.10.2011. 2 Regulation (EU) No 656/2014 of the European Parliament and of the Council of 15 May 2014 establishing rules for the surveillance of the external sea borders in the context of operational cooperation coordinated by the European Agency for the Management of Operational Cooperation at the External Borders of the Member States of the European Union.
4 5 2 Basic Principles and Contextual Framework Frontex supports the Member States3 to achieve an efficient, high and uniform level of border control, and develops capacities to tackle challenges focusing on migration flows. The Agency contributes to the fight against serious cross-border crime and terrorism at external borders. Its mission in the field of training is to contribute to these long-term objectives by utilising cooperative networks. In all of its activities, a European approach is emphasised, focusing on the operational needs and the specific context of the stakeholders, including Partner Countries4. Frontex strives to fulfil its training mission by providing education and training for border guards in the Member States, aligned to the Bologna and Copenhagen principles and the European Qualifications Framework for Lifelong Learning (EQF). As an overarching frame of reference for all border guard education and training, Frontex has developed the European Sectoral Qualifications Framework for Border Guarding (SQF). 3 The term Member State includes the Member States of the European Union and the Schengen Associated Countries 4 A Partner Country is a third country with which Frontex has agreed on a Working Arrangement The SQF is a platform for a coherent strategy that links all training products and contributes to the harmonisation of Border Guard education and training. It supports the national integration of all common curricula, as it offers specific reference points for all border guard learning requirements, consistent and aligned with the EQF. The SQF is thus ensuring comparability of qualifications and creating the premise for the recognition of learning in all its forms formal, informal and non-formal. For Frontex, the SQF is an instrument for reviewing training and for quality assurance that will lead to the development of courses that can be accredited. SQF-aligned curricula and courses are competence-driven, focusing on learning outcomes based on curriculum design and integration of fundamental rights across all learning, as an underpinning principle. Frontex s vision in the field of training is to represent excellence in border guard education and training, promoting the development of a common European border guard culture with high professional and ethical standards. This is achieved by supporting capacity building in Member States and Partner Countries, and by developing and implementing harmonised, learner-centred and cost-effective training products, based on the implementation of an integrated border management approach. Frontex common values also provide guidance in the field of training: Humanity Our training has a strong formative part, making border guards aware of their responsibilities and able to understand people and the communities. Respecting fundamental rights is a natural part of all activities. Professionalism Our work has to reach the highest standards and has to make use of the most recent means and tools associated with the professional identity awareness in the context of education and training. Open communication Our organisation promotes communication both internally and externally. New ideas and critical views are welcomed and freely discussed in all training activities. Teamwork Working at the borders is designed and developed as teamwork. This is also visible in the way training activities are designed. Trustworthiness We promote solidarity, commitment and respect at work, in training as well as at all other levels of professional cooperation. These values are also applicable to the activities carried out in the cooperation with third countries. fulfil the mission based on the principles outlined above, Frontex s strategic objectives in the field of training are to be: 1. a promoter of excellence in border guard education and training; 2. a developer and provider of harmonised, learner-centred, accreditable and cost-effective training products of high professional quality and ethical standards, supporting operational needs; 3. a facilitator of the development and the implementation of professional standards aligned with the SQF for border guarding and the Bologna/Copenhagen principles, and a promoter of the alignment of national curricula, and 4. a supporter of capacity building in the Member States and Partner Countries.
6 7 3 Areas of Activities and Organisation of Work Frontex strategic objectives constitute the basis for the four central areas of the Agency s training activities: Educational Standards: Educational standards are cornerstones in building harmonised competencies within border guard education and training. They promote quality assurance principles for learning development and recognition at national and European levels. Such standards support the integration of the SQF, including the curriculum review and alignment process, as well as the integration of the quality assurance principles for course design, delivery, and certification. They also include sets of common core curricula and courses for border guard education and training that are competence-driven and learning outcomes-based, covering all stages of career development. EBGT Training: European Border Guard Teams (EBGT) are a pool of border guards who, when needed, receive specialised profile training before being deployed for Frontex Joint Operations, Pilot Projects or Rapid Border Interventions. Training focuses on the specific needs of the EBGT pool members for carrying out their duties effectively, according to the profile defined for their deployment. It ensures flexible and up-to-date delivery according to the situation, and envisages direct access to trained human resources during operations. Thematic Training Support: Frontex complements national training programmes for border guards by providing thematic training support. The aim of this support is to ensure the availability of specially trained professionals to perform border guard activities. This is achieved through the development of common training tools, and by qualifying national multipliers and trainers. Based on the input from Frontex Risk Analysis, lessons learnt from Frontex-coordinated Joint Operations, Member States and prior needs assessment, the thematic training support measures offer common training tools in specific areas. Training infrastructures and networks: The Training Infrastructures activities aim to promote excellence in Border Guard education and training by maintaining effective cooperation with European stakeholders in Law Enforcement education and training. This goal is achieved by establishing reliable and effective networks of partnerships with relevant authorities of Member States and Partner Countries and by maintaining an ICT network for education and training. Frontex Training activities are carried out on the basis of regular activities and training projects. Regular activities refer to the continuous process of training implementation and delivery, in the context of curricula and course programmes, which are designed through joint efforts of Frontex and experts from the Member States, supported by other EU Agencies and international organisations. Outcomes of these activities are (common) curricula, courses/ course programmes, manuals, and other tools supporting the scope of work, such as computer-based simulations, software for self-directed learning or reference tools. All training activities follow a systematic approach: identifying training needs and target groups; planning and designing training by establishing a methodology and tools; delivery by selected trainers and experts, then implementation. The process ends with evaluation of training outcomes and quality control. Planning, development and further revision of training activities will be linked to prior needs assessment, carried out together with Member States and Partner Countries. During or at the end of a regular activity or project, evaluation is carried out and leads to a periodical report, circulated to and discussed by relevant stakeholders. Activities are planned, budgeted and presented in the annual Programme of Work, which is accompanied by a portfolio of activities. Frontex also maintains readiness to manage and coordinate training financed from external sources.
8 9 4 Training Design and Delivery Frontex training products are developed and implemented on the basis of course programmes and curricula designed jointly by Frontex and experts from Member States, supported by other agencies and international organisations. Frontex supports lifelong learning through professional development and training of border guards, improving quality by making use of synergies in Law Enforcement training. Focus is set on the development of training tools to be implemented by the Member States and on the support to Joint Operations. Information and communication technologies (ICT) play a significant role. enhance interoperability Frontex supports and complements national border guard education and training. The capacity to work together is achieved by developing common training standards. Frontex also trains multipliers national trainers who train border guards in their home countries. This approach is recognised as the most efficient way to cascade competences to all Member States. Standardised results are ensured through the use of Frontex training tools and through guidelines given to multipliers. With this approach, translating the training products and qualifying the national multipliers, all Border Guard officers can be trained in the same training standards in their mother tongue. Training products and standards are developed using the expertise available within Member States border guard authorities (law enforcement organisations with border guarding responsibilities). This approach ensures that the training tools and methodologies are tailored to the needs of the stakeholders and represent identified best practices. Training at European level is delivered by Frontex-certified trainers. The trainers and national experts are nominated by the Member States as contributors to Frontex activities. The availability of high-level expertise is additionally ensured by maintaining a pool of external experts, selected based on open calls for expression of interest. Training is delivered through different phases: independent learning, a contact phase and experiential learning. The training for border guards is carried out in a participatory environment, using methodologies that support the learners in upgrading their qualifications and performing their responsibilities effectively and professionally. For doing so different approaches are applied: training sessions (e.g. face-toface, blended or online), self-directed learning e.g. elearning tools and mobility/exchange programmes. Training aims to facilitate learning, taking into account the characteristics of adult learning. This means adopting a problem-based and interactive approach to learning, recognising learners experience in terms, for instance, of accountability for training, applying life experience, current needs and relevant work-related issues, as well as use of training to manage professional challenges. The learning outcomes shall not be perceived by the amount of information transferred or memorised, but by knowledge, skills and competences achieved. this end, encouraging critical reflection and decision-making skills are important elements of the training process. Frontex trains border guards to understand and apply procedures and working methodologies to quickly find solutions to any kind of operational problem they encounter in a responsible, powerful and positive way. Frontex uses different training approaches: Training sessions e.g. face-to-face, blended or online, self-directed learning e.g. elearning tools and mobility/exchange programmes. All Frontex training aims to meet the educational needs and objectives of stakeholders and to promote the development of an efficient, high and uniform level of border control at the external borders, and the evolution of a common European border guard culture with high ethical standards. Evaluation is essential for improving the effectiveness and quality of the training programmes whereas an important role is given to the assessment of learning as well.
10 11 5 Quality Assurance Frontex strives to continuously enhance the quality of its training processes and products, applying relevant European standards for quality assurance. As well as allowing all types of learning delivered by Frontex to be recognised in national training systems, this approach enabling the accreditation of the courses developed at national level based on the Frontex training curricula and learning standards. The quality assurance concept focuses on certain key principles: Commitment to a culture of peer review and quality enhancement, engaging all relevant stakeholders (internal and external quality assurance); Formal mechanisms and standards for design, quality check, evaluation, approval, monitoring and periodic review of the courses and curricula; Collaborative curriculum design driven by learning outcomes, based on the SQF for Border Guarding and updated methodologies for teaching, learning and assessment; Consistent application of transparent, fair and standardised criteria, regulations and procedures for assessment of learning; Systematic follow-up on the implementation of recommendations resulting from the periodic reviews and evaluation, and timely reporting; Quality assurance of teaching staff: ensuring they are suitably qualified and competent, implementing policies and procedures to ensure teaching staff are properly selected, developed, monitored and evaluated; Effective management of the course delivery, ensuring course participants have the necessary learning support in all relevant forms; effective management of the entry and access to Frontex courses, and Monitoring the implementation and integration of Frontex courses and curricula at national level and reporting on the status of accreditation and recognition of learning and exit qualifications, aiming at consistently validating the EQF SQF referencing of learning descriptors.
12 13 6 Stakeholders and Cooperation Training is understood as a shared responsibility for all involved stakeholders (Frontex, Member States, training providers, learners) to identify and develop relevant competences that must be considered within the training programmes, along with the necessary skills to apply this knowledge effectively. The principal stakeholders of Frontex training products are: Border guard authorities in Member States and Partner Countries, along with their border guard officers; Frontex operational units; Partnership Academies, and national education and training institutions; Members of the European Border Guards Teams (EBGT); National multipliers, in charge of organising and carrying out training at national level, while acting as multipliers for the dissemination of Frontex training products; EU institutions, Justice and Home Affairs agencies and international organisations dealing with migration. The expertise available in the Member States is utilised in all training activities to ensure a European approach. Close contact and direct involvement of the national stakeholders are maintained through a formal network of National Training Coordinators (NTC), who play a key role in training cooperation between Frontex and Member States. Frontex Partnership Academies, a network of national border guard/law enforcement academies from Member States, allow the sharing of experiences and best practices in an authentic training environment, by supporting exchange and other training activities. Frontex also maintains a reliable and effective network of partnerships with relevant authorities of Partner Countries.
14 15 7 Strategic Measures The strategic measures needed to implement this training strategy will be carried out within the framework of allocated resources. The main strategic measures to be implemented are: n enhance the capabilities of the Member States to respond to the operational needs at the external borders; n ensure that border guard officers deployed in joint operations are properly trained; n design and deliver high-level specific training products for national border guards and trainers of border guards, based on prior needs assessment; n strengthen the interaction and establishment of current training networks and to utilise the support from the educational community; n align Frontex curricula and courses with the SQF and support the Member States in the alignment of their national curricula; n develop and implement a quality assurance mechanism for Frontex training; n develop and implement exchange and mobility programmes; n maintain a powerful state-of-the-art platform for knowledge management and learning, supporting effective online learning and shared resources; n promote training cooperation among Justice and Home Affairs agencies and international partner organisations, sharing good practices and n cooperate with Partner Countries in the field of training, based on EU standards. These measures will be reflected in the annual Programme of Work of the Agency.