Simone R. Haasler, Eva Anslinger & Franziska Laudenbach
University of Bremen/Centre for Labour and Political Education (zap),
Germany
Introduction
The validation and recognition of prior non-formal and informal learning (VPL) is a priority of EU educational policies and central to lifelong and life-wide learning. The aim is to strengthen the flexibility of learning pathways to increase labour market inclusion and mobility across Europe. One key objective thereby is to enhance labour market
opportunities and educational perspectives for disadvantaged individuals such as the low skilled, unemployed, migrant workers, refugees and individuals with restricted labour
market andlearning opportunities. Hence, VPL is seen and conceptualised as a tool to
enhance social inclusion and labour market mobility of individuals of all age groups. The approach furthermore emphasises the centrality of the individual, placing, in principle at least, the individual and individual needs, interests and benefits at the centre of validation (Cedefop 2015)
In the past two decades, many different VPL initiatives at the national and European level have been started and implemented and have led to the significant advancement of VPL, particularly in terms of creating policy frameworks and piloting validation methods and procedures. Still, VPL in Europe presents a fragmented picture with some countries not yet having engaged in the process. While continued efforts at various levels as well as the development of common European principles for VPL seek to move from fragmentation to stronger coherence, very limited evidence exists concerning the impact and effectiveness of validation and what benefits actually derive for individuals who have completed or accomplished a validation of their prior learning.
In this paper, we will present initial findings from a recently started ERASMUS+ project that evaluates the advancement and effectiveness of VPL policies and practice in Denmark, Germany, Poland and Turkey. The focus thereby is placed on benefits of VPL for the individual and the impact validation has in terms of social inclusion.In the first part, we contextualise the link between validation and social inclusion to then sketch the national approaches of VPL in Denmark, Germany and Poland against European guidelines and developments. In the second part we discuss the potentials of validation to enhance social inclusion on the basis of developments and qualification needs in the sector of care work, where we find a considerable number of low skilled and unskilled (mostly female) workers. VPL and social inclusion
In the context of promoting lifelong learning, which has influenced international as well as national education policies significantly over the past decades, we can observe a change of understanding of learning and its key processes and elements. The concept of lifelong learning thereby strengthens the idea that a person is learning throughout their entire life and in every context of life. To take account of this multi-dimensionality, education policies started to address and to develop strategies, programmes and qualification frameworks that could support the validation and recognition of competences obtained throughout the lifespan (Bohlinger/Münchhausen 2011). At the European level, lifelong learning is defined along a threefold division: Formal learning, non-formal learning and informal learning. Thereby, formal learning comprises learning that takes place in an organised and
structured educational environment, usually leading to a certificate or diploma, while non- formal learning takes place in similar contexts, but without resulting in obtaining a formal qualification certificate. Informal learning, by contrast, is based on an open, typically non- structured learning process, often taking place in relation to practical activities, including work practice.
During the last decades, informal learning has gained great importance. In the context of vocational and adult education, it is described as being as important as formal learning (Severing 2015). Recognising and validating prior and especially informal learning thereby is considered to foster social inclusion in various ways, particularly as it is set out to
increase the labour market mobility and inclusion of individuals and to prevent social isolation (Schöpf 2015). Particularly for the low skilled workers and workers in non- standard employment increasing the transparency and usability of informal learning outcomes can support them in overcoming precarious employment and working
conditions. Additionally, in labour market segments and sectors where skills gaps are an issue of concern, the validation of already existing skills and competence of individuals can bring qualified people into work more quickly.
VPL in comparative perspective
In the following, we provide insight into VPL approaches in Denmark, Germany and Poland to facilitate a comparative perspective.
Denmark
In Denmark, the validation of non-formal and informal learning has been on the policy agenda for about 20 years. Based on common principles, a legal framework for validation of prior learning in the adult education and training sector has been in place since 2007, regulating the validation of prior learning by law1. Thereby, the implementation of the
legislation is decentralised in Denmark.
According to Danish law, the assessment of the validation application must be conducted by the educational institution that offers the corresponding study programmes. Other bodies can be in charge of providing information and guidance in a broader perspective, in particular, during the preparation phase of the assessment process. This ‘pre-phase’ involves providing information and supporting identification and documentation. ‘Other bodies’ include, among others, trade unions, employers’ associations, job-centres, unemployment insurance funds, civic education institutions, study committees, ‘eVejledning’ (online guidance service) and third sector institutions.
VPL in Denmark has the aim to (i) enable access to formal education; (ii) tailor a study programme or award credits for certain classes up to Masters level; or (iii) award a
‘Competence certificate’ if the participant meets the requirements of part of an educational programme. Denmark has a comprehensive NQF covering all types and levels of
qualifications that can be awarded by public authorities. This eight level framework was adopted in 2009 and referenced to the EQF in 2011. Most of the qualifications in the Danish NQF can also be acquired on the basis of validation. Furthermore, the process of VPL in Denmark explicitly includes the four phases of validation: identification,
documentation, assessment and certification (Aagaard, 2015).
Germany
In Germany, VPL is increasingly receiving attention in educational research and practice, not least as a response to the developments of educational policies at the European level.
However, the German validation landscape remains sketchy and patchwork, particularly as compared to the situation in other European countries with less regulated and formalised education and vocational training systems. Hence, VPL in Germany presents a picture of rather uncoordinated regulations, programmes, processes and projects headed by
different authorities and with varying outreach. Common guidelines or a common strategy to establish flexible and transparent validation processes do not exist (Seidel, 2011). Among other reasons, this is due to the highly regulated education system that focuses on formal qualifications and the close linkage between school-based and work-based learning in the framework of the formalised and nationally regulated dual system of vocational education and training (Greinert 2007).2 While informal and practice-based learning at the
workplace is considered important, it is not taken into account in the context of validation, mainly because it takes place outside of the formal system. Linkages between validation and the German Qualification Framework (DQR), which was developed by an expert committee on the basis of the EQF and adopted in May 2013, is loose. However, the focus on competence of the eight-level DQR matrix could potentially be used for the
classification of professional and personal competences acquired in all educational sectors and contexts and facilitate the integration of VPL. Below, we outline three validation
approaches that are legally framed.
First, the recognition of prior learning to obtain permission for taking an external
examination that forms part of the formal education system: For vocational training, this procedure was established in the 1960s to give people not formally trained under the dual apprenticeship programme the chance to acquire a formal vocational qualification.
According to the National Vocational Qualification Law (§45 (2) BBiG) and regulations set up by the chamber of crafts (§37 (2) HwO), people are allowed to apply for taking the final examination without having attended the respective vocational training programme
(‘Externenprüfung’) if they comply with certain requirements, including the proof of relevant work experience covering 1.5 times the duration of the regular training programme.
Alternatively, it is also possible to proof that relevant competences have been acquired in other ways.
Second, the recognition of prior learning to obtain access to different learning pathways:
Different procedures and pilot projects (e. g. ANKOM3) were developed to recognise prior
learning for getting access to or moving between different learning pathways. The aim is to avoid repetition, shorten educational pathways and increase permeability, also between vocational tracks and higher education. The various approaches, which exclusively include access to higher education without holding a University entry qualification, are largely decentralised to the university level.
Third, the recognition of equivalence of prior learning to national education standards and certificates: The Vocational Qualifications Assessment Law (BQFG, also called
“Recognition Law”) was introduced in April 2012. It guarantees individuals the right to get foreign qualifications recognised by a competent authority within three months as being equal to a respective national qualification. Although the law focuses on assessing and comparing formal qualifications, informally acquired competences and relevant work experience can be considered when formal certificates are missing or are incomplete (see BQFG § 3 section 1). The recognition process is, in the first place, based on assessing relevant documents such as training certificates, certificates of capability and proofs of
2 The dual system is characterised by the combination of subject-oriented and general education in vocational schools and company-based training.
Depending on their vocational specialisation, apprentices spend about 15% of their training in vocational schools and the remaining time in the company, which also holds employment contracts with the apprentices.
relevant domain-specific work experience acquired in a foreign country or in Germany (see § 3 BQFG section 1). Complementary, competence assessment is also possible based on practical tests, work proofs and interviews. When significant skill gaps impede full
recognition, a partial recognition can be awarded that can be supplemented, for example, by further training (Böse et al., 2014).
While VPL in Germany is being promoted and, in principle at least, facilitated by the DQR through the learning outcomes approach, a legislative framework for VPL does not exist and validation procedures have thus far mainly been piloted on a project basis. The outcomes (e. g. of the APEL-procedure) (Merrill & Hill 2003), however, could be used for formally establishing validation processes.
Poland
VPL in Poland has been known for a long time, in particular in the context of vocational qualifications and crafts. For these domains, VPL was legally regulated in 1989. With the resolutions of the European Commission (2004; 2009), validation became a key element in the development of the Polish Qualification Framework, in particular to foster the
transparency of qualifications and labour market mobility and flexibility (European
Commission 2016). Since 2010, VPL has been introduced more systematically, while the true change in the system was done in 2012 with introducing the possibility of passing an extramural vocational examination (without going through the formal vocational
education)4.
Overall, several legislative changes gradually lead to the restructuring of the system of which the majority took place between 2012 and 2017 (Duda 2016). The legislative Acts also include procedures for quality assurance, allocating responsibilities of institutions and defining requirements for validation processes. The aim is to build a consistent system of VPL in Poland with coherent and nationally defined procedures that recognise the
competences individuals have acquired in different learning settings and through different forms of learning. The approach seeks to recognise these forms as equivalent to formal education. Verifying learning outcomes outside of the formal education system, however, requires careful examination and systematisation. For this purpose, Poland has
established two pillars: the Polish Qualification Framework and the Integrated Qualification System. The Act on the Integrated Qualifications System (IQS), which came into force on
15th January 20165, combined separate, already existing regulations on VPL into one
system and introduced key elements for assuring quality. While initially the IQS mainly covered full and partial qualifications from formal education, also other qualifications (e. g. those obtained from further training) are gradually being included based on requests from associations of entrepreneurs and the industry sectors. Despite all these efforts, validation practice in Poland is only at the initial stage.
State-regulated VPL includes (i) the vocational extramural examinations conducted by Regional Examination Commissions (OKE); (ii) Chambers of Crafts examinations; and (iii) special professional qualifications (e.g. in the field of civil engineering). The methods used for validation are theoretical and practical examinations. In addition, based on the
Integrated Qualification Systems Act of 22 December 2015, some pilot initiatives introduce new ways of validation, placing the individual and learning outcomes in the centre of attention rather than the educational system. These competence-based approaches that recognise learning outcomes require a shared understanding of validation, relevant information, staff to be appropriately trained and a system of providing guidance.
4 Dziennik Ustaw Journal of Laws 2012 item 188 5 Dziennik Ustaw Official Journal of Laws of 2016 item 64
Furthermore, it is necessary to have a good cooperation between many partners and actors (including employers), secure apt validation conditions by institutions and ensure that the process is applied in line with the legal framework. One such pilot was carried out in 2014-2015 in Małopolska by the Regional Labour Office Kraków in cooperation with other actors. The pilot covered 33 participants in the domains of CNC machine operation, real property management, baking in retail facilities and team management in
maintenance services. The validation methods included interviewing, portfolio, evidence analysis, self-assessment, knowledge test, practical test, on-site observation and
simulation (work samples). A main outcome was that the preparation of validation
scenarios and procedures in line with the quality assurance principles was a challenge for the actors and institutions involved. In particular, the validation process requires staff training and competence standards for specific roles (e. g. the assessor role) and a guidebook on process implementation.
Social inclusion through VPL – The example of the sector of care work
In the sector of care work and for individuals providing care, VPL is a prominent and frequently discussed issue in various European countries. Five main reasons can be highlighted why possibilities for validation of prior learning would be of great benefit for both employees and employers (Cedefop 2016).
1. Validation can strongly support obtaining qualifications in a legal manner.
2. Many national labour markets encounter a shortage of skilled workers in the sector. 3. Validation would provide a good chance for many low skilled workers to enter the
labour market through this specific sector.
4. Validation would facilitate the integration of migrant workers and refugees into the labour market given that we find high numbers of workers with a migrant
background working in the care sector.
5. Validation would greatly support and enhance the human resource development in the companies and institutions that provide care services.
Especially European countries with a high demand for care workers like Germany and Denmark, but also France and Great Britain, are developing regulations and frameworks for validating the competences of low skilled workers in this particular sector. Due to demographic shifts and social changes, these countries have introduced quality standards for the provision of care services, which has also lead to the professionalisation of the caring professions. This trend, however, is contrasted with the concurrent shortage of well- qualified care workers. Given the relatively poor working conditions, low salaries and often deregulated employment structures in the sector of care work, we find considerable
numbers of low skilled workers and migrants employed in the field. Those, however, often dispose of valuable practical experience based on care work related to their family duties, taking care of their relatives or volunteering work. However, due to gatekeeping
mechanisms and lack of permeability of the formal education system, it is difficult for them to get these competences validated or up-graded. This group could greatly benefit from validation of their skills and competence acquired through non-formal and informal
learning, thereby increasing their chances of finding employment and/or moving between jobs without having to go back into the formal education system.
In Germany, several projects and examples of validating prior learning and work
experience of low skilled workers exist. One project investigated the possibilities to acquire parts of formally obtained vocational education and training qualifications in elderly care through validation (Cedefop 2016). In addition, several vocational schools and other
institutions together with employers developed assessment tools and procedures to accommodate and facilitate validation. The aim was to give individuals the opportunity to obtain a qualification by fulfilling a shortened training programme. Overall, this programme comprises six phases: The first step includes initial clarification of individuals’ needs and options that the validation procedure offers. Second, applicants are required to prepare a portfolio of their learning experiences in formal, informal and non-formal settings. In the third phase, candidates are asked to compare their competences with those required for the qualification. Based on the competence standards for elderly care in Germany, this reflection process and self-assessment is followed by written, oral and practical
examinations. The practical performance is assessed based on observation and an assessment grid. In the fourth step, all results are compiled and forwarded to the respective competence assessment body, for example the designated educational
authority of the respective German Federal State (in this case it was Lower Saxony). If all requirements are fulfilled, the responsible authority recognises the competences of the candidate. Missing competences can be acquired though a special training programme. Then, after passing a final examination the qualification can be awarded.
For migrants and refugees, validation of their informal learning can be interlinked with the recognition of their formal qualifications obtained in a foreign country. In the context of recognising foreign qualifications as regulated by the German Vocational Qualifications Assessment Law (BQFG, enacted in 2012) domain-specific work experience or other proofs of relevant competence can be taken into account when assessing the equivalence of foreign qualifications to German educational and vocational standards. Similarly, for validation processes in Denmark that are based on portfolio work, missing competences can be substituted by undergoing special additional or further courses to obtain a fully recognised certificate, for example as social or health care helper. Also in Denmark, low level qualifications in the sector of care work are guided by the idea of fostering the social inclusion of low qualified individuals, youth at risk and female workers with a migrant background. Also in Poland and Turkey, validation approaches address the same target groups. Especially low skilled female and migrant workers, who want to enter the labour