External evaluation of the European Training Foundation (ETF), a European Union Agency

Transcription

1 External evaluation of the European Training Foundation (ETF), a European Union Agency CASE STUDY ON ETF ACTIONS IN THE FORMER YUGOSLAV REPUBLIC OF MACEDONIA December 2011

2 CONTENTS Contents... 1 List of Tables... 1 Abbreviations... 2 Introduction... 3 Policy context... 3 Evaluation criteria Relevance Coherence Effectiveness Added value References

3 INTRODUCTION The former Yugoslav Republic of Macedonia (FYR of Macedonia) was granted candidate country status for EU membership in 2005, which has led to a clearer structure of relations between the two bodies and a deepening of partnership and cooperation in various areas. Since accession arrangements were first established in the Stabilisation and Association Agreement, 1 which came into force in 2004, HCD has factored into arrangements between the EU and FYR of Macedonia. Article 91 of this agreement specifically covers education and training, mentioning professional qualifications and specifically highlighting the role of the European Training Foundation in contributing to the upgrading of training structures and activities in the country. The Council Decision on the principles, priorities and conditions contained in the Accession Partnership with the former Yugoslav Republic of Macedonia 2 do not specifically mention the European Training Foundation, but point to the need to create a modern vocational education and training system and a higher education sector linked with the labour market and economic needs and promoting of regional cooperation in the field of higher education (Annex, 3.1, Ch. 26). NATIONAL POLICY CONTEXT Background Unemployment remains a significant problem in FYR OF Macedonia, and many social approaches to addressing employment and training are still in their early stages of development. The country has made many strides in improving HCD policy, and much of it has come in response to pre-accession initiatives. Two key strategic developments in the area have included: 1. The National Strategy for the Development of Education in the Republic of Macedonia This strategy covers the period from , including lifelong learning, adult education and exclusion; 3 2. The National Strategy for Poverty Reduction in the Republic of Macedonia - This covers the organisation of training programmes for qualification and requalification and /239/EC. Council and Commission Decision of 23 February 2004 concerning the conclusion of the Stabilisation and Association Agreement between the European Communities and their Member States, of the one part, and the former Yugoslav Republic of Macedonia, of the other part /212/EC: Council Decision of 18 February 2008 on the principles, priorities and conditions contained in the Accession Partnership with the former Yugoslav Republic of Macedonia and repealing Decision 2006/57/EC. 3 Ministry of Education and Science of the Republic of Macedonia (2004). National Strategy for the Development of Education in the Republic of Macedonia:

4 specifically mentions the ETF as an important international partner in providing this training. 4 FYR OF Macedonia is also a member of international conventions in the area, such as the UNESCO Convention on Technical Vocation and Education. Social inclusion has, in some way, been a part of FYR of Macedonia since the adoption of its constitution in 1991, where the freedom from discrimination is enshrined and linked legislatively to address issues of social inclusion. 5 The term was first defined quite narrowly in 2004, when the Ministry of Labour and Social Policy focused on children with disabilities. Formally, this definition was expanded in the Strategic Plan covering to include other vulnerable groups, but this has not fully permeated policy discourse. In addition, the definition is still limited to specific vulnerable groups (and does not include ethnicity), and does not encompass all aspects of social exclusion. While work on social inclusion is still compartmentalised and not treated in a holistic manner, this is changing and ties are developing with related agreements protecting specific minority groups, most importantly the Ohrid Framework Agreement of 2001, aimed at protecting the rights of ethnic Albanians, as well as the 2005 National Strategy for the Roma. There is also more focus on social inclusion in training and employment, including laws for primary and higher education, as well as changes to adult education. Current areas of focus FYR OF Macedonia is now devoting significant energy to social inclusion, specifically in the areas of labour, employment, poverty, education, health care, long term care transport and housing, social security. 6 There is a constitutional basis for a generalised approach to social inclusion, and laws in specific areas help to incorporate the idea into different policy fields. However, interest and action on social inclusion has increased significantly in the last several years. There is now a plan for alleviating poverty and social exclusion, which covers the period from This strategy presents a wider view of social inclusion, encompassing additional groups and looking at it across life, work and social policy issues. 7 This includes 4 Ministry of Finance of the Republic of Macedonia (2002). The National Strategy for Poverty Reduction in the Republic of Macedonia. This is carried on in the National Strategy on Alleviation of Poverty and Social Exclusion in the Republic of Macedonia: , although direct reference to the ETF is not made in this document. 5 Constitution of the Republic of Macedonia (1991), Article Memeti, Memet. (2010). Assessment Methodology on Governance Issues and Their Impact on Social Inclusion in the Education and Health Sectors in the Republic of Macedonia. 7 National Strategy on Alleviation of Poverty and Social Exclusion in the Republic of Macedonia

5 numerous policy issues related to ETF work, including strengthening entrepreneurship and business and matching training and labour market needs. Specific laws that touch on social inclusion in relation to HCD policies include Legislation on Anti-Discrimination, the Law on Labour Relations, the Social Protection Law and Laws on Disability and on Pensions and Disability Insurance, the Law on Equal Opportunities Between Women and Men, as well as legal and policy frameworks protecting foreigners, refugees, ethnic minorities and the Roma and the National Strategy for Regional Development. Resources Devoted to VET Total education expenditures in FYR of Macedonia are only approximately 3.5% of GDP, ranking it low in comparison to most countries. 8 The 2008 operational plan for the Ministry of Labour and Social Policy had a budget of MKD 294 million ( 4.8 million) for dealing with active labour market policies, about 30% higher than 2005 levels, which was per capita higher than most other countries in the region. This was significantly increased to MKD 593 million in 2009, bringing it up to.2% of GDP. 9 While significant developments still need to be made, the budget devoted to these issues indicate some political will to address HCD issues in a socially inclusive way. In terms of implementing and developing these policies, the Employment Service Agency, responsive for administering many labour market measures in the country, had a budget of approximately MKD 5.15 billion in 2007, funded from governmental funds and social contributions. In terms of social benefits, the percentage of households receiving benefits has remained relatively stable over the period in question. 10 Most stakeholders did not identify budgetary issues as the main constraint in further developing social inclusion policies. Instead, political issues remained of bigger concern. THE ROLE OF THE ETF IN FYR OF MACEDONIA HUMAN CAPITAL DEVELOPMENT POLICY Given that FYR OF Macedonia is an EU candidate country, the influence of the EU as a whole is greater than in some other regions. This affects ETF involvement in the country by both facilitating their work because of their attachment to the wider EU apparatus, and also ETF ETF Country Analysis: the Former Yugoslav Republic of Macedonia. 10 Government of the Republic of Macedonia (2009). Report on the Progress Towards the Millennium Development Goals. 4

6 narrowing the scope of their work as more EU-level bodies and other international organisations are involved in developing policy in the country. This case study focuses specifically on the area of social inclusion in the country. RELEVANCE The ETF was generally perceived to be relevant and responsive to needs in the area of HCD in FYR of Macedonia. In terms of relevance, stakeholders were not always clear on the nature and extent of ETF action or how it fit into the broader HCD picture in the country, but the ETF was seen as highly responsive to stakeholders and issues they may bring up. National Needs and Policy Priorities Social inclusion, especially as it relates to human capital development, has not been prioritised in FYR OF Macedonia for long, and its prioritisation is largely a result of EU preaccession requirements. Some areas in HCD that were seen as needing to be prioritised over the period under study include: 1. Improving access to educational and training institutions; 2. Improving quality of institutions; 3. Assessment of labour market needs for skills and professions; 4. Effective inclusion of social partners; 5. Improved coordination between institutions. 11 ETF actions addressed many of these areas directly and indirectly and identified these needs as pertinent, particularly access to education, quality of education and inclusion of social partners. 12 Social inclusion was also targeted by the ETF (and other EU bodies) as part of preaccession development in the country, and this issue cuts across many of the aforementioned policy issues affecting HCD in FYR OF Macedonia. The focus of the ETF on social inclusion also fits with the country s work to address this issue, as the government aims to further develop a national strategy in the area and widen the definition of social inclusion to more 11 Gervoska-Mitvev, Maya, Suzana Miovska-Spaseva and Dragan Gjorgjev. (2007). Policy Priorities for Social Inclusion in Macedonia. 12 Former Yugoslav Republic of Macedonia: ETF Country Plan

7 fully incorporate employment and training issues. The strategy will cover a wide variety of areas, including employment and education areas in which the ETF works. 13 In addition to addressing needs that were perceived to be important by partner country (and EU) stakeholders, the ETF was also seen to be sensitive and understanding in adapting to other needs and addressing stakeholder concerns. Stakeholders felt that the ETF s approach was participative and inclusive in identifying needs and establishing dialogue to find ways of addressing these needs. However, stakeholders were not always aware of the breadth and scope of ETF activities, or what kind of activities the ETF could undertake to meet their needs. Responsiveness The ETF was seen to be responsive and stakeholders felt they did a strong job of following up on their actions, sometimes through or mail surveys of opinions and evaluations. Stakeholders generally felt that the ETF was willing to respond to any needs that arose, but this was sometimes limited by certain factors. Firstly, political instability affected the ETF s ability to fully engage with decision-makers and maintain the contact necessary to respond to all changes. Secondly, the lack of permanent ETF representation in the country hampered the ability of the organisation to respond quickly to all needs. COHERENCE Coherence with Partner Country Initiatives and Other International Initiatives ETF action fit into the FYR of Macedonia legislative framework governing social inclusion in HCD, and complemented work being done by the government to further develop this area. No overlapping issues were identified, and initiatives were seen to be complementary both thematically and procedurally to other national and EU initiatives. Many other international stakeholders were also involved in HCD policy issues in FYR of Macedonia. Contributions by all these stakeholders were seen to be beneficial and coherent with the country s approach to the issue. While ETF actions were seen as positive and coherent in this regard, it was not always clear to partner country stakeholders how ETF activities fit into the broader picture of HCD and whether these activities complemented or duplicated actions undertaken by other international actors. It was also not always easy to 13 Memet Memeti, (March, 2010). Assessment Methodology on Governance Issues and Their Impact on Social Inclusion in the Education and Health Sectors in the Republic of Macedonia. South East European University. 6

8 differentiate or separate ETF activity from work done by other international stakeholders. While the ETF s role vis-à-vis other stakeholders was not always clear, their work was generally seen as complementary. EFFECTIVENESS Given the developments in FYR of Macedonia after it was granted candidate country status in 2005, the role of the ETF and the nature of its results has changed somewhat over the period under study. Specifically in the area of social inclusion, where major developments were made in the area particularly after 2007, some results can be expected to be seen from ETF actions in the area, and these results should contribute to the overall operational objectives of the ETF. The ETF was seen to contribute significantly in several ways to the development of HCD policy in FYR of Macedonia, and more particularly to the development of social inclusion in the area. Activities undertaken by the ETF were well recognised and well received by all stakeholders, and legislative developments in the country support the idea that significant changes have occurred. ETF involvement was seen as particularly crucial and effective in developing networks between stakeholders, facilitating the exchange of good practice within the region and providing information and expertise. ETF objectives in these areas were seen to be achieved in a partner-country context, and identifiable results were produced in the short term. Provision and dissemination of information, analyses and policy advice The ETF was seen as available for consultation and open to collaboration and provision of expertise and information. Numerous ETF reports and actions were produced addressing HCD issues since 2006 in Macedonia, on issues such as teacher training, adult learning, national qualifications frameworks and social inclusion in labour market policy, through processes aimed at providing policy advice, increasing networking and developing capacity. 14 In addition, a collaborative evaluation of VET curricula was undertaken jointly between the ETF, the Ministry of Education and the VET centre, highlighting the ETF s role both in providing knowledge and improving collaboration between stakeholders. The ETF was generally seen as available for provision of information on issues raised by stakeholders. 14 See documents such as Integration (2007). Evaluation of ETF-activities in Turkey and FYR of Macedonia: Final Report; ETF (2010). Mapping Policies and Practices for the Preparation of Teachers for Inclusive Education in Contexts of Social and Cultural Diversity: Former Yugoslav Republic of Macedonia Country Report. 7

9 While dissemination of ETF information was gauged satisfactorily by central stakeholders, ETF information rarely permeated beyond the core group of stakeholders involved in the issue. While stakeholders felt information was available if they requested it, the ETF was not seen to take an active approach to supplying information to stakeholders beyond the core group. This created high satisfaction for stakeholders centrally involved with the process, but did not help to involve stakeholders who were less central to the process. Beyond the ETF, stakeholders reported that they further shared and disseminated the information that the ETF provided them. Communication between the ETF and core stakeholders was strong, frequent and multi-faceted and often led to further sharing of information. Capacity Building The definition or extent of capacity building was not clearly evident to stakeholders, and different levels of capacity were identified. While the ETF was seen to improve stakeholders ability to engage with social inclusion and broader HCD issues, this was not easily translated into increased capacity in developing and implementing policies. At the state level, ETF activities contributed to the debate on social inclusion, the labour market and other HCD issues. These inputs laid the groundwork for future developments in improving capacity, but at this time concrete examples change were not evident. State representatives from the Ministry of Education were invited and involved, to a certain extent, in ETF actions, but connections were not drawn between the development of social inclusion policies in the area (as marked by the national strategies in the area) and concrete plans of implementation. As such, clear areas where the ETF could help to develop the capacity of the state to carry out these policies was not evident and it was not clear how these activities linked up to any changes or development in governmental approach to HCD issues. In this respect, the ETF acted to facilitate the possibility of future change, but these concrete impacts are not yet evident. In terms of empowering other stakeholders, the ETF was effective in increasing the capacity of non-governmental stakeholders in integrating them and empowering them to be part of the social inclusion discourse. This raised the emphasis on social inclusion for both state and nongovernmental actors, but connections were not fully developed between the two groups of stakeholders. Especially among non-governmental stakeholders, however, participation in ETF activities was seen to strengthen participants capacities and connections in addressing HCD issues. Ideally, this increased connection to the social inclusion policy process would 8

10 lead to a longer term involvement of more stakeholders. Networking and Knowledge Transfer ETF objectives aim to support both the creation of networks within partner countries and the sharing of good practices and information between partner countries and others. In this regard, ETF actions were seen to be effective in both creating intra-national networks and in supporting the development of regional sharing of good practices. ETF activities included a large cross-section of stakeholders in the area of HCD and social inclusion, including governmental ministries, schools, NGOs and other stakeholders. The ETF was able to involve many institutions and this led to an increase in the focus on social inclusion in governmental and non-governmental stakeholders. In this regard, the ETF helped to shape the agenda at governmental and non-governmental levels, although this was done in conjunction with numerous other actors involved in the process. What the ETF was able to provide beyond these actors was a forum to share experiences and knowledge at national, regional and international levels, which was appreciated by most stakeholders. While it was not possible to causally link this to higher level developments, there was general consensus that ETF activities helped to inform further action in the area. In areas beyond social inclusion, the ETF was a central part of the policy network, particularly in VET, working closely with the Ministry of Education and VET Centre in developing capacity and expertise. In particular, a four-year evaluation of VET curricula was undertaken jointly between those three groups, and formalised through a Memorandum of Understanding. This highlights the relative significance and institutionalisation of the ETF into the VET process in the country. Nationally, the ETF involved most stakeholders and provided fora for national stakeholders to meet about HCD issues. While this was important, little follow-up was noted, and integration between stakeholder groups and governance levels was not seen to be promoted. Some did feel, however, that the ETF was able to bring disparate groups together and provide a platform for networking, and this function will likely improve over time. In addition, the ETF was perceived to operate effectively in promoting both formal and informal connections, but their prime focus was seen to be at the state level rather than on the ground. Internationally, the ETF operated within a crowded field and, while their actions were not duplicative, they were not clearly distinguished to a great extent from the actions of other international stakeholders. Regionally, the ETF was seen as the most important actor and 9

11 perhaps the only to operate at this level, contributing significantly by introducing comparative good practices and facilitating the exchange of knowledge, which enabled knowledge transfer beyond the state level. A specific example of this is the law on vocational education, which drew directly on Slovenian experience in the area. Regional activity was greatly appreciated, but at the same time stakeholders felt the ETF could further develop this level of action in order to provide more knowledge and experience of other situations. IMPACT AND ADDED VALUE Short-term results should lead into longer-term impacts in ETF actions. Given the nascent stages of both HCD and social inclusion policies in Macedonia, impacts will necessarily be limited, but contribution analysis helps to identify the specific areas in which ETF effectiveness has added value to further development of HCD policy in the country. Measureable Impacts of ETF Actions Concrete influence of the ETF is evident. The ETF is specifically mentioned in national documents such as the National Strategy for Poverty Reduction. In addition, networking opportunities created by the ETF were able to have a concrete influence through knowledge sharing. A specific example of this is sharing of good practices between partner countries and Member States (particularly in Slovenia), where these helped to shape the FYR of Macedonia response to addressing vocational education and training strategically. While other direct and firmly identifiable impacts are hard to enumerate, most stakeholders felt that the ETF was integral to the process of social inclusion in HCD, and had a strong influence on discourse, information and policy in the area. Added Value of ETF Activities The ETF was seen to add value to HCD and social inclusion policy, but stakeholders did not always draw a clear line between ETF contributions and those of other stakeholders. In FYR of Macedonia, many of the changes brought about by ETF activities were seen as part of wider EU and international involvement in the areas of education and social inclusion. Still, the ETF was able to add value in some specific areas of social inclusion in ways that other international organisations did not contribute as significantly, namely in provision of knowledge and improving teacher training and intercultural education. This was undertaken in two keys ways: assessment of workers needs and assessment of the needs of employers. Stakeholders recognised that this contribution of the ETF was accomplished in an iterative 10

12 fashion; it required both time and continuous involvement by both stakeholders. The information provided by the ETF was seen to be trustworthy and reliable, as were advice and ad hoc consultations between the ETF and FYR of Macedonia stakeholders. In addition to these concrete examples of ETF involvement in social inclusion, the ETF was seen to have an effect in the development of a National Qualifications Framework, adult education and reforms in vocational education and capacity building. Field of Change Given FYR of Macedonia s status as a candidate country, the role and effect of the EU is much stronger and it is sometimes difficult to separate the contribution of the ETF from wider EU-level interventions. Governmental interventions in the area of social inclusion were largely driven by pre-accession requirements created by the EU, and thus were not directly a result of ETF actions. However, the ETF did help to develop this concept and apply it in a way that was relevant and effective to human capital development policy. State-level stakeholders were most involved in the process, but the ETF also acted to involve other nonstate actors in the process. Still, these connections did not extend to the decision-making level and did not always results in deeper connections between stakeholders at the implementation level. Level of Change The ETF was instrumental in introducing, developing and facilitating the acceptance of the concept of social inclusion in HCD in Macedonia, and thus was able to contribute at both shaping ideas of social inclusion and placing these ideas on the policy agenda. This was particularly evident at the policy development stage, where the concept of social inclusion was widened from a narrow vision to include aspects of employment and training. For example, workshops were held in the country addressing labour market inclusion, and full reports were produced at the national level (for example, see the Labour Market Review of former Yugoslav Republic of Macedonia 15 ) and the regional level (see as examples Financing Vocational Education and Training: Priorities and Mechanisms in South Eastern Europe: Peer Learning 2006, 16 or Learning from Learn : Horizontal Learning in a Community of Practice in South Eastern Europe 17 ). The regional level was perceived as an area where the ETF could 15 ETF (2005). Labour Market Review of former Yugoslav Republic of Macedonia. 16 Financing Vocational Education and Training: Priorities and Mechanisms in South Eastern Europe: Peer Learning ETF (2011). Learning from Learn : Horizontal Learning in a Community of Practice in South Eastern Europe. 11

13 add considerable value, as not many other stakeholders engaged at this level. ETF action at this level was welcome, but stakeholders felt more could be done to develop regional connections and promote sharing of good practice between partner countries within a region. Critical Steps FYR of Macedonia s stature as a candidate state of the EU helps to both lend credence to ETF actions as they relate to EU actions and strengthen the ETF s involvement in actions undertaken in HCD. At the same time, given strong involvement from other international stakeholders (including the EU) it is not always clear how the ETF adds value beyond other international stakeholders. However, ETF involvement is viewed very favourably, as both an impartial source of information and as a long-lasting contributor to development in the area, highlighting the importance of long-term engagement. This qualitative dimension should not be underplayed. It is not easily quantified in terms of effectiveness or impact, but the ETF is seen to be an important part of the process of HCD, which in turn should lead to impact in the area. Given the significant changes in HCD policy in Macedonia, concrete changes are difficult to identify. However, important qualitative developments in the area have been identified, and many have been strongly linked to ETF activities. CONCLUSIONS 1. Nature of actions: stakeholders generally welcome ETF involvement, but are not always clear on how the ETF influences the process. Specifically, there is ambiguity on the scope of ETF actions (what can be accomplished, given their mandate); and what should be done (how the ETF should act, given both EU and partner country perspectives). 2. Targeting of actions: while ETF actions are appreciated in social inclusion activities in FYR of Macedonia, they are not always targeted at reaching specific vulnerable groups or setting priorities. FYR of Macedonia tends to address specific groups in developing a social inclusion policy, and the ETF does not act to broaden this scope or introduce new actors or ideas to the process. While the ETF operates mainly at the policy level, consideration should also be given to how this is perceived at the practical level, where stakeholders do not see the connection between ETF policy actions and how they are interpreted at the ground level. 3. The ETF integrated many stakeholders into the HCD process, but the most impact was seen at higher levels, and this did not necessarily permeate downwards, especially later in 12

14 the policy process. The ETF performed exceptionally well at including new stakeholders into discussion and debate, although this did not translate into increased involvement at the policy level. Given the findings of this case study, any shortcomings will likely improve over time. The ETF has committed itself as strongly as possible to creating networks within the partner countries, as evidenced by case studies. Only time will allow for these networks to develop to a more formal level. 4. Regional networking was seen as an exceptionally important part of ETF action, as no other stakeholder promoted this level of involvement. This broader view of policy provided state and non-state actors with a broader view of the policy process and provided good practice examples and opportunities for further development at the national level. Information dissemination was generally seen as positive, but the ETF could work to promote information dissemination in a more proactive way at the national level, ensuring that all relevant stakeholders are aware of ETF activities and information in HCD and social inclusion. REFERENCES National Strategy on Alleviation of Poverty and Social Exclusion in the Republic of Macedonia ETF, Country Information Note Memet Memeti, (March, 2010) ASSESSMENT METHODOLOGY ON GOVERNANCE ISSUES AND THEIR IMPACT ON SOCIAL INCLUSION IN THE EDUCATION AND HEALTH SECTORS IN THE REPUBLIC OF MACEDONIA Law on Labour Relations Social Protection Law Legislation on Pensions and Disability Insurance Law on Equal Opportunities of Women and Man Law on Adults Education Laws related to Child Protection: 13

15 Law on Children Protection Law on Family Social Protection Law Law on Primary Education Law on Secondary Education Law for Juvenile Justice National Program for Developing the Children s Protection for year 2010 Program for Dealing with issues of Socially Excluded Persons Program for Active Health Protection of Mothers and Children in the Republic of Macedonia in 2009; Strategy for Demographic Development of the Republic of Macedonia National Program for Developing the Education in Republic of Macedonia Multidisciplinary Protocol for Dealing with Street Children in the Republic of Macedonia Legislation on Anti-Discrimination Free Legal Aid Law Law on Foreigners Law on Employment and Work of Foreigners Law on Asylum and Temporary Protection Strategy for Integration of Refugees and Foreigners in the Republic of Macedonia Law on Family: National Strategy for Protection against Domestic Violence Uniform Protocol on Action in the case of domestic violence Law on the Use of Languages 14

16 Law on the Committee for Inter-Community Relations Law promoting and protecting the rights of persons belonging to communities which represent less than 20% of the population in the Republic of Macedonia Law on Civil Servants Law on Harmonized Regional Development Law on Health Insurance Law on Health Protection Law on Pension and Disability Insurance Law on Mandatory Fully Funded Pension Insurance Law on Protection of Patients` Rights Law on Health Registry Law on Protection against Smoking Law on Safety in Blood Provision Law on Medicines and Medical Helping Devices Law on Food Safety and of the Products being in contact with the food Law on Precursors 15

17 External evaluation of the European Training Foundation (ETF), a European Union Agency CASE STUDY ON ETF ACTIONS IN GEORGIA December 2011

18 CONTENTS Contents... 1 List of Tables... 1 Abbreviations... 2 Introduction... 3 Policy context... 3 Evaluation criteria Relevance Coherence Effectiveness Added value References LIST OF TABLES Table 1. Financial resource allocated for promotion of VET in consolidated state budget... 7 Table 2. Distribution of school graduates according to the trajectory of fields of study Table 3. ETF s role as viewed by stakeholders

19 ABBREVIATIONS AEAG - Adult Education Association of Georgia BFUG Bologna Follow up Group EAG - Employers Association of Georgia EQARF - European Quality Assurance Reference Framework EQE - The National Centre for Educational Quality Enhancement EQF European Qualifications Framework GEL Georgian National Currency Lari GTUC Georgian Trade Unions Confederation IDPs Internally Displaced People IOM International Organization for Migration LEPL Legal Entity of Public Law MES The Ministry of Education and Science of Georgia NQF National Qualifications Framework NRC Norwegian Refugee Council USAID United States Agency for International Development UNDP United Nations Development Programme 2

20 INTRODUCTION The EU has had relations with Georgia since 1992, which were further strengthened after the 2003 rose revolution. Current bilateral agreements between the EU and Georgia provides a strong basis for EU activity in human capital development. Article 54 in the bilateral Partnership and Cooperation Agreement 1 states that the Parties shall cooperate with the aim of raising the level of general education and professional qualifications in Georgia, both in the public and private sectors. This is further reflected and made concrete in agreements covering the period under study, such as: 1. The Country Strategy Paper, 2 which specifically mentions VET; 2. The National Indicative Programme, 3 which highlights vocational training as an area for further EU sectoral support, and; 3. The current EU/Georgia Action Plan, which highlights the promotion of training, lifelong learning and human capital development under the economic development and priority reduction priority. NATIONAL POLICY CONTEXT Background Starting in 2006, the Ministry of Education and Science began the process of consolidation of existing schools and allocation of funds for the rehabilitation of VET centres. This was followed by drafting and approval of the Law of Georgia on Vocational Education and a shift to a stronger emphasis on quality assurance in VET systems, especially in the latter part of the period under study. The VET Development strategy was approved by the government at the end of 2009, following an intensive consultation process which involved relevant ministries and governmental bodies, international organisations, VET centres, professional and employers associations, trade unions and some civil society organisations. 1 L 205/3 (1999) Partnership and Cooperation Agreement between the European Communities and their Member States, of the one part, and Georgia, of the other part. 2 European Commission. European Neighbourhood and Partnership Instrument: Georgia: Country Strategy Paper European Neighbourhood Partnership Instrument. Georgia: National Indicative Programme

21 In the area of quality assurance reform, the government attempted to mirror good practices from the EU, namely the European Quality Assurance Reference Framework (EQARF). The Law of Georgia on Educational Quality Enhancement facilitates quality enhancement by use of internal (within VET centres) and external (authorization and accreditation) quality assurance mechanisms (Parliament of Georgia, 2010c). Significant reform also occurred in the delivery of VET programmes. Some of the stateowned professional educational facilities were privatised and others prepared for privatisation. Meanwhile, the government continued to invest in improving the infrastructure of VET centres which were not privatised. On the micro level, a number of professional standards have been designed and new educational programmes were prepared in VET centres. Reform went in phases, moving from the consolidation of public VET centres and development of a VET sector legislative framework ( ); to an emphasis on structural arrangements related to VET sector coordination and social dialogue and approval of the strategy on VET development ( ); and quality assurance ( ). Current areas of focus In the period under study, significant work was undertaken in Georgia, most notably in four areas. 1. The adoption of a new Law on Vocational Education in Training in 2007; 2. Development of a National Qualifications Framework, with the establishment of numerous VET-related professional bodies, including a National Professional Agency for the development of a National Qualifications Framework, a National VET Council, and the National Centre for Education Quality Enhancement; 3. Development of a VET strategy and action plan for the period Development of quality assurance mechanisms and occupational standards. Much action was focused in these areas, along with other initiatives including work in the areas of VET centre development and initiatives to improve the image of VET. In addition, work was undertaken to optimise the efficiency of the VET centre network and strengthen selected VET centres in service provision. Three main ongoing strategic objectives were identified to further develop work in Human Capital Development in Georgia: 1. Increasing access to VET and supporting ongoing professional development in various occupations. 4

22 2. Ensuring quality and efficiency in VET provision. 3. Establishing participatory governance mechanisms and management and promoting an effective and equitable funding model for the VET sector. Resources Devoted to VET The analysis of diverse government documents 4 on budgetary allocations does not reveal systemic growth on VET-related expenditure in the consolidated budget (Table 1). These resources are not perceived to be sufficient, and total resources allocated to VET development have been falling since 2007 (where a temporary increase in budget was used mostly to support one-off improvements in VET centres). Their share in aggregate macro indicators such as GDP, total and ministerial budget has shrunk during the period under study, indicating that despite the formal prioritisation of VET development, it is not appropriately reflected in budgetary decisions. In , resources allocated to VET development further decreased to approximately 7.5 million GEL, which constituted about 0.04% of the national GDP, 0.14% of the consolidated state budget and 1.39% of MES total budget for A governmental document on Basic Data and Directions for (2010) also provides rough projections for future budgetary allocations in VET. As seen on Table 1, the available projections for follow slight incremental increase in expenditure with no significant changes in financing to be expected. Table 1 Financial resource allocated for promotion of VET in consolidated state budget Allocated resources (Ths. GEL) Rehabilitation of VET Centers National Professional Agency VET Support Program VET Centers In total Shares (% in total) Share in national GDP 0.06% 0.07% 0.05% 0.05% % 0.03% 0.03% 0.02% 0.02% Share in total budget 0.25% 0.30% 0.18% 0.16% 0.14% 0.11% 0.11% 0.12% 0.11% Share in MES budget 2.17% 3.07% 2.10% 1.73% 1.39% 1.15% 1.16% 1.10% 1.06% Sources: Government of Georgia (2010); Parliament of Georgia (2008a); Parliament of Georgia (2009); 4 GOVERNMENT OF GEORGIA Basic Data and Directions for ; PARLIAMENT OF GEORGIA. 2008a State Budget Law ; PARLIAMENT OF GEORGIA State Budget Law; PARLIAMENT OF GEORGIA. 2010a State Budget Law.; PARLIAMENT OF GEORGIA State Budget Law.; GEOSTAT GDP of Georgia. 5

23 Parliament of Georgia (2010a); Parliament of Georgia (2011); Geostat (2011). In terms of human resources employed in this process, only a handful of staff at MES have been engaged full-time in VET-related activities, which was accompanied by high staff turnover linked to change of general management of the Ministry (UNDP, 2007). Work on quality assurance (rather than broader VET reform) has caused new stakeholders (mostly employer organisations and VET centres) to become more active in the process, as more of them are directly affected by reform. Perhaps the most significant part of human resources devoted to VET development in recent years has been the growing involvement of international organisations/donors in advancing VET agenda in Georgia. THE ROLE OF THE ETF IN GEORGIAN HUMAN CAPITAL DEVELOPMENT POLICY The ETF aims to support HCD policy in Georgia in both general and specific ways. Recent focus has revolved more around the Torino Process, including the 2011 report, 5 as well as studies on VET efficiency and effectiveness and education and business in the country. 6 The ETF works along with many other international stakeholders in the country, including significant support from the World Bank, USAID, the UNDP, the British Council, GIZ and others, including other Commission activities such as the Bologna Process. 7 Specific ETF actions took both reactive and proactive forms, with objectives focusing on providing support to reforms already in the process of being undertaken by the Georgian government, as well as aiding in areas such as development of qualifications, enhancing social dialogue, development of quality assurance and curriculum development. Support was especially targeted at direct support to EC delegations and support at the country level in improving VET system governance. The general outcomes the ETF aimed to achieve by 2013 are: 1. enhanced effectiveness and relevance of Community assistance programmes; 2. Develop capacities for implementing country changes in VET; 3. Transfer relevant policy lessons between partner countries and EU Member States; 5 ETF (Wallenborn, Manfred) Torino Process Georgia. 6 ETF Education and Business- Georgia. 7 ETF Georgia Country Information Note. 6

24 4. Develop NQF strategy measures. 8 In general, stakeholders did not hold a unified position regarding the relevance, effectiveness or added value of ETF actions. This report provides an overview of all stakeholder opinions to illustrate the differing and sometimes opposing views of ETF actions. While differences in stakeholder opinions should be considered, this limits the definitive statements that can be made about ETF effects and impact in Georgia. Generally speaking, state-level stakeholders were more engaged with the ETF, and also more positive in their assessment of ETF performance. This analysis focuses mainly on quality assurance in Georgia, although this is also contextualised within the broader HCD process in the country. RELEVANCE The ETF was generally seen as relevant and responsive to the needs of Georgian stakeholders, with some limitations. ETF activities were seen as more relevant in function (providing specific support) than in content (covering specific areas Georgia aimed to address). However, the ETF was seen to be responsive to Georgian needs for support, particularly in development of new laws and frameworks in quality assurance, but this support was not always coordinated with legislative, political and policy change that occurred at the country level. National Needs Georgia has several overarching strategic needs in the area of human capital development. 1. Development of a knowledge-based economy; 2. Reduction in unemployment; 3. Education to secondary school graduates; 4. Balancing supply and demand of skills on the labour market. More specifically in VET, these needs were identified by the Ministry of Education and Science as: 1. Establishment of career planning services at VET centres and higher education institutions; 2. Development of private-sector education and training initiatives; 3. Assessment of labour market and industry needs; 4. Matching VET and higher education curricula to labour market requirements; 8 ETF Country Plans 2007 and

25 5. Development of standards and information; 6. Establishing stronger linkages with VET needs in other areas, including the EU. VET was prioritised and ETF activities did contribute to some of these overarching objectives, especially development of standards. Much of the work in quality assurance undertaken by the ETF was not seen by higher-level stakeholders to be the most central issue in HCD, although it was still seen as relevant and important, especially since Looking generally at HCD activities, the ETF was seen to be sensitive and adaptive to the specific needs of the country. In the area of quality assurance, stakeholders felt that the approved standards accurately reflected the needs of the country and did not create a European, one-size-fits-all approach to quality assurance, which was seen as a definite positive. Even so, some areas of quality assurance were not perceived to receive adequate attention, such as financing and equality between VET centres. There was some separation in how different stakeholders viewed the relevance of ETF actions. While higher-level officials (ministry officials) were well-informed about the role of the ETF and the actions it was undertaking, there was less consensus and clarity in the views of stakeholders implementing these policy changes. VET centres and educational institutions were less likely to see concrete outcomes from ETF actions and less certain of the relevance of these actions in effecting reforms in the area. Other organisations offering tangible outcome-related support (such as training programmes) rather than policy support were seen to be more effective at the implementation level. Responsiveness At the EU level, delegation officials felt that the ETF was responsive to any needs they expressed. Within the countries, government agencies were often the initiators of requests for assistance from ETF, and the ETF collaborated with government officials in better targeting activities, such as in the area of quality assurance. The ETF was seen by government officials to be responsive to national developments and demands. Non-governmental stakeholders felt that the ETF was somewhat less responsive, but in recent years was making a stronger effort to consider not only the demands raised by the government but also the requirements voiced by other stakeholders. While the ETF was seen to be generally flexible and responsive, some stakeholders felt that this responsiveness was not always adequately coordinated with policy change in the partner country. Changes in governmental policy happened briskly in Georgia, and activities 8

26 undertaken by the ETF that were initially relevant were not always able to adapt and change with changing political priorities. This was notable in the area of quality assurance, where political change occurred at a faster rate than ETF activities and ETF work on quality assurance continued after legislation was adopted. While this was not an ETF problem (as the report was delivered on schedule), the relevance of this report was lessened due to the fast pace of political reform. Still, the research developed in this report remains useful and relevant after adoption of legislation in the area in helping further policy implementation and development in the area. Also, this responsiveness was primarily in developing and undertaking ETF actions, but was not felt to extend to ETF responsiveness to feedback it received in suggestions for further action and support. For example, in undertaking one regional activity to share VET good practices and experiences, the main employers association did not feel that the ETF responded to suggestions and feedback to the event, and no reasons or justifications were given for why this feedback was not taken into account. COHERENCE Coherence with Partner Country Initiatives Prior to ETF involvement in quality assurance, many organisations and initiatives were already working in the area, including related areas such as development of occupational standards and a qualifications framework, VET centre development, development of strategy documents, admissions requirements and career planning, development of VET indicators and other actions. This included work from other international organisations including DVV International, International Organisation for Migration, UNDP and others. ETF work in the field was seen to complement and develop on these existing initiatives in the general area of VET, and the introduction of quality mechanisms was seen to add value to the existing approach. Speaking generally of ETF actions, they tended to be seen as complementary to country actions in the area and were undertaken in a way that was sensitive to country needs. EFFECTIVENESS In order to contribute to change in the country, ETF interventions need to meet their immediate objectives, outputs and results in Georgia. These immediate objectives relate both to ETF-level objectives and how they are reflected at the country level in fitting with Georgian work in HCD. Therefore, they are affected not only by the type and effectiveness of 9

27 ETF intervention, but also the political and policy context of the country. Evaluation of effectiveness in this report focuses on ETF work in quality assurance, where the ETF operated mainly at a policy (rather than operational) level, and was determined through interviews with high-level officials and review of reports, laws and other literature in the country. In terms of external context, while the ETF works freely in Georgia, political volatility, changes in high-level policy makers and low prioritisation of VET have created some difficulties in facilitating ETF work, while recognition of VET in improving employment and the EU connection and cachet of the ETF have aided in its effectiveness. In general, the ETF acts as a facilitator, but not the main instigator of change. Consultations between the ETF and governmental and non-governmental organisations occurred in key HCD areas such as drafting the Law of Georgia on Educational Quality Enhancement, and ETF documents are used extensively in similar areas. However, the ETF was a catalyst rather than a driving force behind these changes, and while ETF consultation is more frequent, the ETF reporting process is perceived by some government officials to be too slow to be used to its full extent in all policy work. Most ETF action was perceived to be in the areas of networking and knowledge transfer, as well as provision of information, analyses and policy advice. The ETF was seen to play several roles in Georgia, primarily as a facilitator, consultant and technical advisor. Positive aspects of ETF interventions included general knowledge sharing and the introduction of European approaches in Georgia. Areas where more work was seen as possible included the development of further regional initiatives and promoting networks between countries in the region, as regional connections were highly valued. In addition, objectives of activities were not always clear to participants and the ETF needs to be flexible in responding to governmental change and policy adaptation. Provision and dissemination of information, analyses and policy advice The ETF generally performed well, and stakeholders felt that the ETF was available to provide support in this area. Several concrete examples of ETF activity were identified. During governmental work in developing a Concept Note on Vocational Education and Training and law at the MES ( ), ETF expertise was utilised by the Ministry of Education and Science. This support tends to be ad hoc and at the request of state actors, and no clear mechanisms were easily identified by stakeholders of how the ETF is able to proactively disseminate information when needed. 10