BACKGROUND PAPER Establishment of a European Lifelong Guidance Policy Network 1
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CONTEXT The Resolution of the Council and of the representatives of the Member States meeting within the Council on Strengthening Policies, Systems and Practices in the field of Guidance throughout life in Europe (May 2004)2 invites Member States to "seek to ensure effective co-operation and co-ordination between providers of guidance at national, regional and local levels in the provision of guidance services." In recent years, a strong degree of political momentum has been reached in the field of guidance. Since the Resolution on Lifelong Guidance of the EU Council (2004), much has been achieved in the Member-States in improving access to guidance and the quality of guidance systems. Still, much needs to be done. The emergence of a knowledge-based society requires a paradigm shift in guidance and calls for strengthening the role, quality and coordination of career guidance services to support learning at all ages and in a range of settings. It is important that the momentum of development within Member States be sustained. The space and quality of such development can be significantly be enhanced by continued cooperation at European level. To support policy development in guidance, in December 2002 the Commission created an Expert Group on lifelong guidance, including officials from education and labour ministries, representatives from the European social partners, as well as European and international bodies. At the end of 2005, the Commission initiated a discussion with its Expert Group for Lifelong Guidance on what would constitute a suitable mechanism to take forward work on guidance at EU level. Their conclusion was that a European network would be best to ensure a broad participation of Member states, and that a network would not be credible or sustainable unless it were strongly Member-Statedriven and built upon an appropriate institutional framework at national level involving relevant ministries and other bodies responsible for education and labour-force issues. Fewer than half the Member States have national guidance forums or national coordination steering groups bringing together education and employment. Those that do are at very different stages of development, and most have been in place less than three years or are still at the planning stage. Much of the desirable developments flagged by the Council Resolution can only be achieved if the structures supporting policy and systems development are strengthened. A first exchange of views on the future mandate and activities of a possible European Guidance network took place among Member States' representatives at the “Finnish EU Presidency Conference on Lifelong Guidance Policies and Systems: Building the stepping stones” (November 2006). The Conference workshop conclusions stressed that the fragility of lifelong guidance policies at national level called for a strong and stable
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This background paper draws on the discussions of the Expert Group on Lifelong Guidance, the report from the workshops of the Finnish EU Presidency Conference on Lifelong Guidance drafted by Professor Tony Watts (Jyväskylä, 6-7 November 2006), and previous Cedefop background papers. 2 http://ec.europa.eu/education/policies/2010/doc/resolution2004_en.pdf
mechanism at European level to encourage more sustainable development at national level and support both policy development and implementation. This mechanism should build upon, and in due course replace, the work of the Expert Group for Lifelong Guidance. However, it is clear that it can only be effective if a sufficient number of Member States are committed to making a success of it. The first section of the paper describes possible alternatives for the network mandate and structure, based on a series of consultations between the Commission and a wide variety of actors from the guidance community. The last section introduces some of the keys to success and questions related to the establishment of a European Policy Network on Lifelong Guidance. 2. 2.1. OBJECTIVES, FUNCTIONS AND WORKING ARRANGEMENTS Objectives
The network would promote cooperation in the development of policies and systems for lifelong guidance provision. This should include policy sharing, and promotion and development of the broader EU policy framework for lifelong guidance. 2.2. Functions
In the course of a series of consultations with relevant stakeholders and Member States' representatives, the functions set out below have been identified. Emphasis is put on the fact that all of these do not necessarily have to be implemented from the onset of the network; they can be launched gradually, and expanded over the years. (a) Policy shaping: a key role of the network is policy shaping at EU level. The network would issue informed opinions, views and recommendations regarding EU policy developments. Policy sharing: the network would provide an exchange platform for national policy and decision makers, practitioners and other relevant stakeholders (e.g. through peer learning activities, exchange visits, clusters of countries and thematic working groups on issues of common interest). Information gathering: the network would support policy development by providing a comprehensive and updated overview of trends and patterns in guidance, and assessing progress achieved in implementing relevant Council Resolutions. This would enable the network to make evidence-based recommendations on policy developments and implementation. Policy analysis and research: the network would be able to identify new research areas on topics relevant for policy development. The network would be empowered to launch thematic research and studies, on its own initiative, through subcontracting or via Cedefop. The purpose should not be to undertake new research for purely scientific reasons, but to concentrate on issues which have strong policy relevance.
(b)
(c)
(d)
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(e)
Use of reference tools: the network should support the application of existing common EU reference tools and the development of new tools where appropriate. Exploiting project outcomes: the network should disseminate and exploit the results of guidance projects and studies; in particular those funded by the EU, to feed into policy development at both national and EU levels (disseminating the lessons of projects supported by Leonardo, Grundtvig, Joint Actions, the new Lifelong Learning Programme, and the European Social Fund). Strengthening representative structures: the network should also assist the development of National Guidance Fora3 or other national representative structures, both in participating countries where they already exist and in those where they do not. Membership
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(g)
2.3.
Full membership of the network should be open to a representative body from each of the countries eligible for assistance under the Lifelong Learning Programme 20072013 which have a representative structure in the field of lifelong guidance (such as a national guidance forum). To ensure appropriate and effective participation, the following criteria for member bodies are proposed: – They must be able to represent a lifelong learning perspective (preferably covering education, training and employment for both young people and adults). – They must be clearly linked to relevant policy-making processes within their country. – They must have the institutional capacity both to contribute to the activities of the network and to disseminate its achievements to the relevant national stakeholders, in the education, training and employment sectors. Member bodies should act as the network driving force, providing expertise, chairing meetings, and hosting Peer learning activities and EU level conferences. Countries which do not yet meet the criteria for full membership may participate as associate members with a view to becoming full members when they meet the criteria. The network members must be identified and designated by Member States, candidate countries or EFTA-EEA countries. EU funding would support the participation of one government official and one non-government representative, both to be linked to appropriate consultative processes within their country to provide as broad representation as possible of lifelong guidance policy-making and provision.
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National Guidance Fora or national coordination steering groups have been established in a number of Member States. These structures enable a broad range of stakeholders to define strategic objectives together and monitor policy development.
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2.4.
Cooperation arrangements
2.4.1. The Commission is willing to provide financial support for the network. It will engage in continuing dialogue with the network, taking part in its meetings and activities, and noting its conclusions. Cedefop will participate in the network's activities as an adviser, as part of its task of assisting the Commission’s work in this area, in accordance with its own mandate and the terms agreed in its annual work programme. The ETF will participate in the network's activities and liaise with candidate countries. 2.4.2 Through appropriate liaison arrangements, the network will ensure regular contact with other relevant bodies or networks at national, European or international level. These include: – – – – – – the Euroguidance network the European Public Employment Services (PES) network professional networks, e.g. the European Forum on Student Guidance (FEDORA) The International Centre for Career Development and Public Policy (ICCDPP) other international organisations and bodies (e.g. the OECD, IAEVG) other relevant stakeholder networks (e.g. social partners, parents).
The network may invite representatives of these bodies or networks and individual experts to take part in its activities. 2.5. Themes
The network will identify lifelong guidance policy issues for which there are gaps and which merit collaborative action at EU level (such as peer-learning clusters, research, and other cooperation activities). Possible themes include: – – – – – – Quality assurance for guidance provision Policies for specific target groups (e.g. young people at risk, migrants) Data collection Use of ICT in guidance Training provision and qualifications for guidance practitioners Active involvement of users in the design, monitoring and evaluation of services.
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2.6.
Work Programme
The work programme (2007-2009) will be decided by the network taking into account participating countries' priorities and relevant Council Resolutions or other EU policy documents. 2.7. Working methods and coordination arrangements
Full members should agree arrangements for the coordination (including chairmanship) of the network. Working arrangements should be defined by the Network members, including the number of thematic working groups and the frequency of peer learning activities, subject to budget and human resources availability. The European Lifelong Guidance Policy Network should be supported by a secretariat or coordination unit, located in one of the full member countries for an initial period, with subsequent arrangements to be agreed by the network. This unit should convene the Network and support the implementation of its initiatives. It should liaise closely with the European Commission and with Cedefop and ETF. It may also call upon the support of individual experts. 2.8. Financing and duration
Financial support from the Commission could take the form of a subsidy of up to 75% of network costs from the transversal programme of the Lifelong Learning Programme 2007-2013. The budget should include contingency resources to cover activities for which very specific expertise is required (e.g. commissioning studies, animating working groups and peer learning activities) as well as to support the expansion of the network. Some level of outsourcing may be necessary. Costs eligible for support could include the costs of network activities foreseen in the work programme, relevant expenses incurred by the network coordinator, and travel expenses for two representatives of each participating country, for one representative of any of the bodies or networks, and for invited individual experts referred to in section 2.4.2. Participating countries are strongly encouraged to appoint one governmental representative and, from the designated body, one non-governmental representative. A pilot phase covering 2007 to 2009 seems to be an adequate length of time to develop a sound foundation for the network and draw conclusions from its first experiences. As part of the pilot phase, the relevance, efficiency and effectiveness of the network will be evaluated. Financial commitments for this pilot phase could be made in two separate instalments to allow interested countries to join after the network has been set up. Subject to the conclusions of the evaluation, the Commission is willing in principle to support the work of the network during the whole period of the Lifelong Learning Programme (2007-2013).
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3. 3.1.
KEYS TO SUCCESS AND OPEN QUESTIONS Giving the network a voice in EU policy development
Given the pivotal role that Lifelong guidance plays in supporting lifelong learning, the network should monitor that adequate account is taken of guidance in a range of related policy issues relevant for education, training, employment and social inclusion. To achieve real impact, the results and conclusions of the Network should be fed into policy developments at EU as well as national level. Questions: What steps should be taken to ensure the network plays an active role in reporting to broader EU groups of policymakers and experts (e.g. Education and Training Coordination Group, Directors General for Vocational Training, Advisory Committee for Vocational Training)? 3.2. Ensuring commitment from Participating countries
A set of criteria should be established for membership (e.g. active involvement of key ministries; ensuring that representative bodies reflect a lifelong learning perspective), with the expectation that any country joining the Network should meet the criteria within a set period. Questions: Are the criteria for membership described in section 2.3 above satisfactory? How to guarantee compliance with membership criteria? 3.3. Working methods and coordination arrangements (see section 2.7)
If the Network activities are not focused and well-organised, there is a risk that it will be a mere talking shop. The future European Lifelong Guidance Policy Network should have a clear mandate, objectives, functions and outputs from the very start. These should be elaborated into a work programme, with a realistic timetable, which will form the basis of EU support. Commitment from Participating countries to the above will need to be ensured to enable the successful performance of the network. It is important to consider what level of management and coordination arrangements would be required to best ensure the commitment and active participation of Participating countries, as well as the involvement of relevant stakeholders. The network should have a clear organisational structure, preferably including a Steering group to lead the work and monitor progress, with the support of a secretariat or coordination unit. Questions: Do the governance and executive structures of the network need to be clarified further at this stage?
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3.4.
Ensuring a continuum with previous cooperation activities
There is a strong history and continuing process of co-operation on guidance which can be built upon, in particular: – The Expert Group on Lifelong Guidance: The work of the group (20022006) has resulted in a set of European Reference tools4 for guidance to support the implementation of the Council Resolution and the OCDE/Commission Career Guidance Handbook for Policy Makers; – The two Joint Actions funded projects5 on European networks of national guidance stakeholders involving 12 countries: These have demonstrated a level of interest on the part of Participating countries in cooperating in a European Lifelong Guidance Policy Network and have generated valuable lessons both on the process of networking and on possible issues for cooperation (e.g. quality assurance for guidance provision). 3.5. Cooperation with European and international bodies and networks (see section 2.4) Questions: How should the bodies and networks listed in section 2.4 be involved in the activities of the network?
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These are: “Common aims and principles for guidance provision”; “Draft reference points for quality assurance of lifelong guidance provision”; “Key features of lifelong Guidance systems” (Improving Lifelong Guidance policies and systems using common European reference tools, Cedefop, 2005). 5 At the end of 2004, 2 projects were launched supporting the development of national guidance fora and cooperation between these national structures at European level. UK, Denmark, Estonia, Ireland, Malta, Slovenia, Austria, Finland, Poland, Germany, the Czech Republic and France were involved in the projects.
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