European Economic and Social Committee
SOC/523
Improving the performance of
national dual training systems
Brussels, 2015
PRELIMINARY DRAFT OPINION
of the
Section for Employment, Social Affairs and Citizenship
on
Improving the performance of national dual training systems
(own-initiative opinion)
_____________
Rapporteur: Dorthe Andersen
_____________
To the members of the Study Group on Improving the performance of national dual training
systems (Section for Employment, Social Affairs and Citizenship)
N.B.:
This document will be discussed at the meeting on 30 June 2015 beginning at 2.30 p.m.
Document submitted for translation: 12 June 2015
Administrator: June Sørensen Bédaton
SOC/523 – EESC-2015-01718-00-00-APA-TRA1/10
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EN
Study Group on
Improving the performance of
national dual training systems
President:
Giuseppe Iuliano (IT-II)
Rapporteur:
Dorthe Andersen (DA-I)
Members:
Christian Ardhe (SV-I)
Grace Attard (MT-III)
Raymond Coumont (BE-II)
Vladimíra Drbalová (CZ-I)
Alfred Gajdosik (AT-III)
Wolfgang Greif (AT-II)
Kinga Joó (HU/III)
Marian Krzaklewski (PL-II)
Christa Schweng (AT-I)
Indrė Vareikytė (LT-III)
Expert:
Marta Scarpato (expert for Group II)
SOC/523 – EESC-2015-01718-00-00-APA-TRA 2/10
On 19 February 2015, the European Economic and Social Committee decided to draw up an owninitiative opinion, under Rule 29(2) of its Rules of Procedure, on
Improving the performance of national dual training systems
(own-initiative opinion).
The Section for Employment, Social Affairs and Citizenship, which was responsible for preparing the
Committee's work on the subject, adopted its opinion on ….
At its ... plenary session, held on … (meeting of ...), the European Economic and Social Committee
adopted the following opinion by ... with … votes against and … abstentions.
*
*
*
1.
Conclusions and recommendations
1.1
Young Europeans have been hit hard by the crisis in several Member States, at huge human,
social and economic cost; however, higher youth unemployment is nothing new and points to
some structural problems that make the transition from school to employment difficult.
1.2
Well-functioning apprenticeships and other quality forms of work-based learning (WBL)
systems can help young men and women to make a smoother transition from school to
employment.
1.3
The EESC believes it is necessary to improve the performance of WBL and change mind-sets
towards WBL.
1.4
The EESC therefore supports the Riga conclusions on “a new set of medium-term
deliverables in the field of VET for 2015-2020”.1
1.5
To improve the image and attractiveness of WBL and apprenticeships requires a combined
effort by schools and companies, the social partners and the political level. Having employers
in the driving seat when it comes to the design and delivery of apprenticeships schemes can
help ensure more apprenticeships.
1.6
The EESC calls on the Member States to ensure lifelong training and development of VET
teachers and trainers; there should be a particular focus on the development of tutors and incompany trainers.
1
Draft Presidency Riga conclusions 22 June 2015
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1.7
The EESC believes that the EU needs a coherent tool which captures the progress as well as
the effects of the reforms Member States are undertaking in order to improve the performance
of VET and WBL systems.
1.8
The EESC recommends that the Commission – with relevant partners – develop tools to
monitor, collect data and evaluate what works in the Member States and identify the features
of well-functioning WBL. The aim is to ensure quality in apprenticeships and other forms of
WBL systems.
1.9
As a contribution to the European Alliance for Apprenticeships and the EQAVET reference
framework, for example, a data platform or toolkit could be set up, containing practical ideas
and solutions as to what works.
1.10
The EESC calls on Eurostat (Eurobarometer) also to carry out a more systematic study of
young people who complete vocational education and training and have the skills that are in
demand, and also of how apprenticeships in firms have helped them gain these skills.
1.11
Thought could also be given to how to develop the most appropriate indicators or a European
evaluation system (benchmark) for gauging which education and training policies, including
dual training components, can make the greatest contribution to boosting the employability of
successful students from vocational schools.
1.12
The EESC believes that enhanced cooperation at European level and the compilation of data
could help keep the Member States on track to improve educational levels and ensure that
young people have a positive experience of the education system and leave with the skills
needed on the labour market.
1.13
The EESC emphasises the importance of employers and believes that employers – including
SMEs – will get more involved in apprenticeship schemes when they are effective in meeting
their needs and when there are good links with schools. Putting in place WBL systems that
allow for the cost-effective involvement of employers and giving them greater ownership
should be the focus in the coming years.
1.14
The EESC recommends that Member States which do not have well-functioning WBL
systems explore the costs involved in developing such systems, compared with the trade-off
and benefits this would have on companies' competiveness and young peoples’ job
opportunities.
1.15
The EESC underlines that no “one apprenticeship model” exists: the aim is to promote a
variety of attractive WBL systems which work.
1.16
The EESC calls on the Member States to introduce or review on a systematic basis the
professional development of VET teachers, mentors and trainers – and in particular incompany trainers as these are key for improving the performance of WBL systems.
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1.17
The EESC emphasises the importance of partnerships between schools, trade unions and the
business community. Social partners play a decisive role in all stages of well-functioning
WBL systems (design, implementation, control, evaluation etc.). Strengthening and making
better use of social dialogue at all levels can be an effective instrument to improve the
attractiveness and quality of WBL.
1.18
The EESC recommends that the European social partners continue their work in this area.
2.
Introduction - the current situation in Europe
2.1
The economic crisis in Europe has hit young people hard. 4.5 million young people aged 1524 are out of work, although for certain EU countries, high youth unemployment is nothing
new; it has simply been exacerbated by the crisis. The EU youth unemployment rate is more
than twice the adult one – 20.9% against 9.8%. Around 7 million young Europeans are neither
in employment, education or training (NEETS) (Eurostat, March 2015). With a rather weak
short-term economic outlook, youth unemployment has reached extreme levels in some
Member States at huge human, social and economic cost.
2.2
Unemployment was higher among young people than adults before the crisis too. This
suggests a structural problem in establishing closer links between education and training
systems and labour markets. Another argument in this direction would be that in many
countries there is high youth unemployment, while at the same time employers have
difficulties in finding employees with the right skills.
2.3
The situation facing young people, but not only, has also worsened due, among other things,
to the lack of timely structural reforms in education and training systems and the labour
market, meaning that skills are either in short supply or are the wrong ones.
2.4
There are considerable differences between EU Member States, however, with regard to their
experiences in getting young people onto the labour market.
2.5
At the same time, demographic change is a challenge to the labour market and points to the
need for a qualified and skilled workforce in the labour market and to meet future needs.
2.6
In many countries, people with vocational training form the majority of employees in the
private sector but also play a significant role in parts of the public sector. Today about half of
upper secondary students across Europe follow a VET programme and about a quarter of
them are in combined school- and work-based learning. But key challenges lie in raising the
attractiveness and performance of VET.
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2.7
In a number of its opinions2, the EESC has highlighted the importance of creating the right
conditions for young people, with the aim of easing the transition from education to work by
boosting opportunities to undertake different forms of WBL as part of high-quality vocational
education and training (VET).
3.
The European policy background
3.1
The European Council of 27/28 June 2013 agreed on a new strategy for combating youth
unemployment, including the aim to promote "high quality apprenticeships and work-based
learning". 22 Member States have received country-specific recommendations to adapt their
vocational education and training systems, in order to bring them more closely into line with
the labour market, by placing greater emphasis on the work-based components of training and
high-quality apprenticeships for young people.
3.2
At EU level, a range of measures have been taken. For example, a youth guarantee has been
adopted, ESF funds have been allocated for the development of apprenticeships nationally,
including the dual training system, and a European Alliance for Apprenticeships has been
established. The EESC endorses all of these initiatives.
3.3
In their June 2013 action plan on employment for young people, the European Social Partners
also highlighted the value of work-based learning systems.
3.4
The Latvian Presidency will endorse five deliverables as part of the review of the Bruges
Communique. The first of these deliverables will be to promote work-based learning with
special attention to apprenticeship-type training.3
3.5
The EESC believes it is important to keep up the momentum and ensure that, at the national
level, in the individual Member States, and in conjunction with the social partners, the
appropriate adjustments to education based on apprenticeships are such that the schemes
contain the right work-based learning component.
4.
Promoting work-based learning as a way of building bridges towards working life
4.1
Studies by Cedefop and the European Commission, for example, suggest a positive link
between WBL and employment.
2
3
For example:
- Making post-secondary VET more attractive (Vladimíra Drbalová).
- Quality framework for traineeships (Indrė Vareikytė).
- Employability of young people (Dumitru Fornea & Tommaso Grimaldi).
- Youth employment measures – Best practices (Christa Schweng).
Draft Riga Presidency conclusions 22 June 2015.
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4.2
Experience and the figures speak loud and clear. Countries with relevant and attractive
vocational training systems with a strong work-based learning component perform better
when it comes to getting young people onto the labour market.
4.3
A well-functioning WBL system provides young people with an initial work experience and
consequently makes them more attractive to businesses and future employers. In Germany
more than 2/3 of apprentices stay with the same employer after completing their
apprenticeship.
4.4
However, VET and apprenticeships are not seen to be as attractive as academic education by
many young people and parents; the political focus on higher education with an EU2020
target has also shifted attention away from the strong employability and inclusiveness
component of WBL.
4.5
Apprenticeships are often wrongly perceived as being for the traditional blue-collar sector and
not the modern digital economy.
4.6
To improve the image and attractiveness of WBL and apprenticeships requires a combined
effort by schools and companies, the social partners and the political level. Having employers
in the driving seat when it comes to the design and delivery of apprenticeships schemes can
help ensure more apprenticeships, or exploring the role of (e)-apprenticeships in new ICT
sectors can make VET more attractive. Skills competitions and role models should be
encouraged to showcase skills or schools and to inspire young men and women. To improve
the attractiveness of apprenticeships/WBL should open up pathways into higher education to
avoid apprenticeships being perceived as a dead-end by students and parents.
4.7
Good and early career guidance and counselling services are key in order to improve the
attractiveness of apprenticeships and other forms of WBL. Schools, public employment
centres, trade unions and the business community must step up their support for young
people. A multi-channel strategy is needed including social media, face-to-face advice and a
one-stop-shop approach to information.
4.8
Teachers and trainers play a crucial role in enhancing the attractiveness of apprenticeships
and other WBL forms and have a direct influence on the young people's perception of
VET/WBL.
4.9
In a WBL system, the presence of a qualified and motivated staff member acting as a tutor or
trainer in the company should be a basic quality assurance requirement.
4.10
Cedefop has formulated a set of guiding principles for in-company trainers which should be
promoted by national social partners. One important element is that trainers are lifelong
learners and getting the company on board and see the long-term benefit of the investment.
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4.11
It also has to be perceived as attractive to be a VET teacher. One way is to ensure the
continuous updating of VET teachers’ professional and teaching skills. Another way is to
improve cooperation between schools and companies. Teachers have to keep up to date with
the demands of companies, current work practices, new technologies, etct.
5.
A variety of work-based learning systems - definitions
5.1
There is no "best model". There are several different types of WBL components in national
systems. But there is much confusion between the different forms of WBL systems. It is
important to differentiate.
5.2
According to Cedefop, WBL refers to knowledge and skills acquired through carrying out –
and reflecting on – tasks in a vocational context, either at the workplace or in a VET
institution.
5.3
There are three main forms of WBL in Europe:



Apprenticeships combine and alternate company-based training with school-based
education, and lead to a nationally recognised qualification. Most often there is a
contractual relationship between the employer and the apprentice, with the apprentice
being paid (e.g.. Austria, Denmark, Germany).
School-based VET with on-the-job training. This includes shorter periods of on-the-job
training (e.g.. internships, work placement) as a compulsory or optional element of VET
programmes and leads to formal qualifications.
WBL can also be integrated in a school-based programme through on-site labs,
workshops, simulations or business project assignments.
5.4
The watchword is the close link between the workplace and the synergies to be developed
between the student, the theoretical basis and practical learning and development in the
workplace. One often overlooked element here is the teacher in the workplace.
5.5
Even in countries that are geographically and culturally close to one another, such as
Germany, Sweden and Denmark, there are marked differences in the organisation and take-up
of vocational training.
5.6
Across Europe there is great variety in the number of training courses, length of training,
balance between theory and practice, the social partners’ involvement and funding.
5.7
There are equally significant differences between Member States in terms of the quality,
popularity and outcome of training schemes.
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5.8
Having the EU as a focal point should be a good reason to devote more energy to learning
from each other’s positive experiences and finding out what works. This implies a shared
responsibility in giving the young student or apprentice a solid and motivating starting point
for his or her subsequent working career.
6.
On-going evidence-based monitoring and assessment of vocational education and
training systems and policies
6.1
A number of studies of WBL have already been carried out, indicating that the German and
Swiss system, for example, works well, in that it provides young people with appropriate
training and a good entry point into working life.
6.2
More transparent information on learning outcomes is needed in order to identify the
principles and key elements that characterise well-functioning apprenticeships and other
forms of WBL.
6.3
It might be useful to compile comparable national data on which countries' performance can
be assessed when it comes to the implementation and outcomes of the different WBL systems
in Europe. Cedefop, Eurostat and the Commission already collect data as part of the ET2020
and Copenhagen strategies, but the EU needs a coherent tool which captures the progress as
well as the effects of the reforms now being undertaken in many Member States to improve
the performance and quality of national VET systems, including apprenticeships and other
WBL systems.
The EESC proposes that such a coherent data assessment should at least address the following
policy questions:



How and why WBL leads to higher employment?
Does WBL lead to less friction in the labour market, such as shorter spells of
unemployment, and better skills matching?
How can WBL lead to increased mobility, both within and between different sectors?
6.4
A time-based set of relatively straightforward parameters could be used as a springboard for
more qualitative analyses, and could at the same time be used to monitor developments in
each country with regard to its process of adapting vocational education and training to the
WBL system and its benefits.
7.
Better performance of national WBL systems and getting companies on board
7.1
There are many challenges that are still not being taken seriously, for example in terms of
quality of training and relevance to business.
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7.2
Apprenticeships play an important role in meeting companies’ skills needs,
young people into the labour market. Apprenticeships offer employers
advantages; these include better skills matching resulting from in-house
knowledge and perspectives. Fully-fledged apprenticeships entail a number
obligations for all involved.
while helping
a number of
training, new
of rights and
7.3
Companies must see this as an investment in future qualified human resources and take the
responsibility to actually train a young person. But if companies – including SMEs – are to
see apprenticeships as an investment there needs to be provision for them to have greater
ownership of schemes, including curriculum design.
7.4
Some employers fear that the cost of training an apprentice outweighs the benefit, but this
mind-set has to be challenged. A cost-benefit analysis from Switzerland shows that the
productive contribution of an apprentice exceeds the training costs (including the apprentices'
wages) by more than EUR 6,000 per apprenticeship4 and BusinessEurope is currently
conducting a study on the cost-benefits of apprenticeships. However, cost-benefit outcomes
might differ in different sectors and under different WBL systems. It is therefore necessary
for national WBL systems to be constantly assessed and, where appropriate, adapted to ensure
they contribute to European companies’ competitiveness. More comparable and quality
assessments tools can also help Member States in this.
7.5
Good quality assurance and assessment of apprenticeships and other forms of WBL, including
working conditions, is equally important and here the social partners can also play a role.
Above all, the social partners must be involved in designing national provisions for WBL and
can also, via appropriate collective bargaining traditions, help ensure quality apprenticeships
and other WBL forms. Trade unions and union representatives can also take part in the
training and well-being of young people.
_____________
4
EENEE POLICY BRIEF 3/2012 NOVEMBER 2012, "Apprenticeship Training Can Be Profitable for Firms and Apprentices
Alike" by Stefan C. Wolter, University of Berne
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