Supporting lifelong learning through the development of guidance services Statements and Comments

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1 Supporting lifelong learning through the development of guidance services Statements and Comments Tom Ronayne WRC Social and Economic Consultants Introduction Central to the economic context is that Ireland is no longer a low-cost location and the presence of high-level national policy actions aimed at ensuring that Ireland remains a location of first choice for inward investment and that indigenous enterprises are sustainable and develop a capacity to engage in exporting goods and services. Sustainable economic development and social inclusion are key national priorities. Consequently, there is a strong policy emphasis on enhancing productivity and competitiveness, moving to higher value added sectors, mobilising labour supply, and enhancing the quantity and quality of human resources. The intersection of these concerns with lifelong learning and lifelong guidance is evident in recent developments. The main elements of this intersection are sketched below. At the outset it should be noted that recent policy initiatives have begun to recognise the need to simultaneously develop: (i) lifelong learning opportunities by developing lifelong access to learning opportunities and the infrastructure support this; and, (ii) lifelong guidance provision as an instrument to aid adult learners make informed and effective decisions regarding their participation in lifelong learning. That is, making effective use of lifelong learning requires lifelong guidance. As a summary observation, progress has been more rapid in respect of developing the system of lifelong learning (though overall participation by adults needs to be considerably enhanced) than in developing lifelong guidance. Among the main issues arising are that guidance still tends to be predominantly associated with initial education and training, for adults it is mainly provided in the context addressing unemployment through the public employment system, and there is a lack of provision for persons in employment and those currently outside of the labour force. 1. Elements of the Economic, Policy and Institutional Context Economic and Labour Market Context Ireland s overall economic context is defined by strong macroeconomic performance during the past decade with medium-term projections indicating continued growth. During the past year, GDP growth was of the order of 5%, inflation was less than 3%, and unemployment was just over 4%. Labour market indicators during the past 10 years show strong and unprecedented growth in employment: the number of persons employed has increased by almost 650,000 since 1995, representing an increase of approximately 50%. In 2005, the number of persons in employment reached 1,929,200. Since 2000, the annual unemployment rate has remained below 5%, and currently stands at 4.2%. The rapidity of employment growth over the past year has exceeded 1

2 that in most forecasts, rising by 93,000 in absolute terms corresponding to an annual increase of 5.1%. Reflecting the above, progress towards meeting the Lisbon employment targets has been substantial. Based on recent national statistics (second quarter, 2005), the employment rate of persons in the 15 to 64 year age range is 67.1% (Lisbon target is 70%), the employment rate of women aged 15 to 64 years is 58.0% (Lisbon target is 60%), and the employment rate of persons aged 55 to 64 years, at 51.2%, exceeds the Lisbon target of 50%. Currently, two thirds (66.3%) of employment is in the services sector, just over one quarter (27.8%) is in the industrial sector, and 5.9% in the agricultural sector. The sectoral pattern of recent employment growth is located in the services sector and this is projected to continue over the next five years rising to over 70% by Consequently, future employment growth is projected to be concentrated in professional, associate professional and non-manual occupations. The pace and sectoral pattern of employment growth has resulted in skills and labour shortages. These shortages have recently been the subject of a report by the Expert Group on Future Skills Needs 1 titled Skills Needs in the Irish Economy: The Role of Migration, published in October 2005 (Forfás, 2005). The report identifies and quantifies skills and labour shortages arising across a wide variety of occupations and identifies the strategy that will be adopted to meet these needs. At the risk of oversimplification, the main elements of the strategy are up-skilling and training for the national population, sourcing skilled employees from within the European Economic Area (EEA) and, to a lesser extent, sourcing high and specialised skills from outside the EEA, mainly graduates. 1.2 Policy Context Relevant to Lifelong Learning and Lifelong Guidance Reflecting the above trends, one of the three Council Recommendations for Ireland s 2004 National Employment Action Plan stated that priority should be given to implementing a coherent lifelong learning strategy to reduce early school leaving and increase participation in training, especially for low skilled and older workers. Further underlining the need for this is evidence that a substantial proportion of Ireland s population in the 15 to 64 year age range is poorly educated (i.e., 38.4% have less than upper second level education) and that there is a low level of participation in lifelong learning among the adult population, particularly among older and less skilled workers. Based on the most recent survey of participation in lifelong learning, less than one in ten (9.7%) of Irish adults aged between 25 and 64 years were lifelong learners (CSO, 2004). 1 The Expert Group on Future Skills Needs was established by the Irish Government in It includes representatives of business, employees, Government departments and state agencies. Its function is to advise the Government on aspects of education and training related to future skills requirements. It reports to both the Minister for Enterprise, Trade and Employment and the Minister for Science and Education. 2

3 The policy response to this situation is presented under Guideline 4 (i.e., Promote Development of Human Capital and Lifelong Learning) of Ireland s Employment Action Plan 2004 (DETE, 2003). It states that the Report of the Taskforce on Lifelong Learning, together with the White Paper on Adult Education form the strategic framework for the progression of lifelong learning (p. 32). Among the actions identified to progress lifelong learning identified in the 2004 Employment Action Plan are the development of a national qualifications framework, the expansion of adult literacy programmes and programmes aimed at providing second chance educational opportunities, curricular reforms in upper second level education aimed at retaining potential early school leavers in education, and implementing and further developing programmes aimed at increasing the skills of persons in employment. One point that should be noted regarding policies to support the development of lifelong learning in Ireland and the role of guidance in supporting this, is that active labour market policy for a considerably period was focussed on meeting the needs of unemployed persons. More generally, one of the key objectives of human resource development policy over the period 2000 to 2006 is To mobilise all potential sources of labour supply and enhance its quality in order to address skills shortages across the economy as a whole (p. 62, DETE, 2000). This has resulted in a relative lack of focus on persons in employment. In the light of recent labour market developments this stance has shifted. This shift - or a re-balancing of training provision - is reflected in the current strategy statements of the Department of Enterprise, Trade and Employment, and FÁS, (DETE, 2005 and FÁS, 2005). The Report of the Task on Lifelong Learning published in 2002 accorded an important role to guidance in supporting adults to become lifelong learners (DETE, 2002). It brought forward proposals to develop and strengthen the provision of guidance and emphasised the need for an integrated strategy with all relevant agencies involved in providing guidance participating in this strategy and in supporting co-ordinated action across the various providers of guidance services. The recently established National Guidance Forum which is charged with making lifelong guidance a reality in Ireland has taken up this theme. The role and activities of this Forum are outlined in Section 3 below. 1.3 Institutional / Legal Policy Context for Lifelong Learning and Lifelong Guidance There are a number of providers of guidance on educational, career, and occupational issues in Ireland, each focusing on a particular section of the population, providing a unique service for that population, and administered by a different government department. A schematic overview of the main providers is shown in Table 1 below. From an institutional perspective, the main government departments involved in resourcing and administering guidance provision are the Department of Education and Science, the Department of Enterprise, Trade and Employment (through FÁS the National Training and Employment Authority) and, to a more limited extent, the Department of Social and Family Affairs. Individual third-level institutions are responsible for providing guidance services in their own collages. The personnel providing guidance in all of the services identified in Table 1 will, for the most part, possess professional qualifications, though the nature of these qualifications is likely to vary substantially across the different services. 3

4 Various forms of guidance, counselling and information services pertinent to lifelong learning are also provided by local development companies, through labour market programmes (e.g., Youthreach - a programme for early school leavers), and by individual personnel and companies in the private sector (though to a limited extent). Also, publicly funded information services are provided by Youth Information Centres and by Comhairle. The latter is the national support agency responsible for supporting the provision of information, advice and advocacy on social services. It supports a national network of approximately 100 Citizens Information Centres and operates a public information website: Table 1: Overview of Main Forms of Guidance Provision in Ireland Guidance Service Activities Clients / Target Groups Guidance Services in Personal, social, Pupils in Second Level Second Level Schools educational and career Education (12-18 Year Career Advisory Services in Third-Level Institutions Adult Education Guidance Initiative National Employment Service: Employment Services (FÁS) and Local Employment Services Employment Support Services Sources: OECD (2002) and NCGE (2005). guidance. Career and educational guidance. Educational and career guidance. Career guidance, vocational training guidance, and employment placement. Information, advice and support. Olds) Students in Third Level Institutions (Mainly Year Olds). Participants in Literacy and Second Chance Programmes and Services (Adults of All Ages). Unemployed, Job Seekers, People with Disabilities (All Age Groups). Persons in Receipt of a Welfare Payment and their Families (Adults of All Ages) Administrative Control Department of Education and Science Third Level Institutions. Department of Education and Science. Technical Support provided by National Centre for Guidance in Education. FÁS as an Agency of the Department of Enterprise, Trade and Employment. Department of Social and Family Affairs. Career Services in Second Level Schools: The Education Act (1998) provides the legal basis for guidance in second level schools. It requires schools to ensure that students have access to appropriate guidance and to assist them in their educational and career choices. The financial resources to meet this obligation are provided by the Department of Education and Science to second-level schools. Typically, in larger schools (i.e., over 500 pupils) the school employs a Guidance Counsellor. The manner in which guidance is provided and the topics covered vary considerably across schools. In 2002, there were approximately 630 full-time equivalent positions for Guidance Counsellors in second level schools. A recent initiative to strengthen guidance in second level schools is the Guidance Enhancement Initiative (GEI) introduced in This initiative assists in developing innovative ways of providing guidance under three strands: (i) assisting schools combat early school leaving; (ii) promoting science subjects in the senior cycle of second level; and, (iii) developing links between schools and the business and community sectors. Currently, a total of 50 full-time equivalent positions are supported under this initiative. 4

5 Career Advisory Services in Third Level Institutions: All Irish universities and most Institutes of Technology provide a careers advice service to students. These services are typically placed in Career Advisory and Appointments Offices. The institutions themselves determine the nature of the guidance and career services provided. Adult Education Guidance Initiative: Prior to the introduction of the Adult Educational Guidance Initiative (AEGI) in 1999, there was no public service specifically designed to cater for adult learners. The AEGI was introduced on a phased basis and at mid 2005 there were 24 local services in operation. There is a commitment to bringing further local services into operation with a view to having a nationally comprehensive service in place by the end of The National Centre for Guidance in Education (NCGE) provides technical support for AEGI. All the local centres are networked to share good practice. The activities of the local services are varied and include group sessions on vocational and career information, one-to-one guidance, use of computer aided diagnostic tools, mobile services, and developing databases of learning options. National Employment Service: Under the 1987 Labour Services Act, FÁS is required to provide, or arrange for the provision of, guidance, advice and information regarding choice of career and employment and to assist in coordinating the provision of such services by others. The national employment service currently consists of two strands: (i) services provided directly by FÁS; and, (ii) services provided by the Local Employment Service in locations and for people experiencing particular disadvantage on the labour market under contract to FÁS. Since 2000, FÁS also provides services for people with disabilities. Overall, between 550 and 600 personal in the national employment service are engaged in providing guidance and job placement services. The FÁS strand of the service also acts as a gateway to all FÁS training and employment programmes. Employment Support Service: The Department of Social and Family Affairs (DSFA) provides support, information and advice to persons in receipt of a welfare payment as well as their families on matters related to accessing education, training and employment. Approximately 40 Facilitators provide the service. The DSFA also administers the Back to Education Allowance (a scheme designed to enable welfare recipients access education). 2. Assessment of Potential Transferability of the Policy Measure The common labour market issue that lifelong guidance services can potentially address in both Latvia and Ireland is ensuring a better match between the quantity and quality of labour supply and labour demand. For different reasons this is an issue in both countries: for Ireland, it is the emergence of substantial skill shortages in the context of a rapid and changing pattern of employment growth; for Latvia, it is the loss of skilled labour via migration (a substantial proportion of which is to Ireland) and the presence of inappropriate skills and qualifications among the labour force in the context of the expanding economy. However, for lifelong guidance to be effective in meeting the needs of adult learners as well as the needs of an expanding economy it must occur in the context of other elements of a lifelong learning strategy. These other elements include the level and nature of educational and training opportunities available, the qualifications framework in place to support progression, and the supports for enabling adult learners to actually participate in lifelong learning. For Ireland, a particular issue with regard to 5

6 the latter is resourcing and supporting persons in employment to actually participate in lifelong learning and thereby increase the level and relevance of their qualifications and skills to the changing pattern of occupational demand. The review of the support for lifelong learning through the development of lifelong guidance in Latvia presented in the discussion paper and the brief outline of the policy and institutional context in Ireland presented above indicate that there are some general similarities or common difficulties presented by the approach to lifelong guidance in both countries. These similarities, or difficulties, include the presence of multiple providers, the lack of co-ordination between different providers of guidance, varying practices across providers, questions as to appropriate levels of resource allocation, and the lack of a body of evidence upon which to assess the effectiveness and efficiency of the services. The main conclusion in this regard is that in both countries considerable challenges are present in ensuring the availability, accessibility, and effectiveness of lifelong guidance as a support to lifelong learning. In looking at the overall structure of guidance services in both countries, one is struck by the degree to which both are primarily focussed around the educational system and the provision of guidance services for unemployed people. One is also struck by the involvement of a similar set of government departments in the resourcing and administration of guidance services for the population. However, and significantly, both systems of provision appear to lack an overall approach to the provision of lifelong guidance that is inclusive of the working population. As the majority of adults and potential lifelong learners are actually in employment, ensuring that lifelong guidance is accessible to persons in employment, particularly poorly qualified persons in employment, is vital. As indicated below, this is one of the challenges now receiving attention Ireland. A final observation is that in both countries there is an absence of data regarding the actual practices associated with the various guidance services in operation and of the effectiveness of these services. This makes assessments of effectiveness and efficiency impossible. 3. Current Policy Issues and Developments of Relevance Ms Anne Henry, Chairperson of the Expert Group on Future Skills Needs recently stated that: The up-skilling and training of the resident population must be seen as the primary response to skill shortages. Developing the workforce at all levels is crucial to Ireland s sustained economic development. While initiatives are now being put in place to address skills shortages, there is a lack of visible and systemic connectedness with policies evolving from the perspective of lifelong learning and commitments at EU and national levels regarding the role of lifelong guidance in aiding individuals to engage in lifelong learning and in making effective choices regarding lifelong learning. This, in part, is due to the different location of departmental responsibilities with respect to these issues. Two recent initiatives that are relevant to forging this link are noted here: the establishment of the National Guidance Forum and the introduction of the One Step Up Programme. 6

7 National Guidance Forum The review of guidance services in Ireland undertaken by the OECD in 2001 highlighted a number a strengths and weakness in the system and drew attention to five considerations that needed to be addressed in developing guidance services. The considerations were: (i) a better balance of services within schools; (ii) a more integrated and co-ordinated approach to career information; (iii) a more integrated approach to the skills, qualifications and careers of practitioners; (iv) a more targeted approach to targets and resourcing; and, (v) improved steering, governance and co-ordination (OECD, 2002, p.1). To progress action on these issues it recommended the establishment of a Guidance Forum. In response to the above, the National Guidance Forum was established in June 2004 with the aim of facilitating collaboration between guidance providers and making lifelong guidance a reality. Its 32-person membership includes representatives of guidance practitioners, trainers of guidance practitioners, employers, trade unions, education managers and policy makers, parents and consumers. The work programme of the National Guidance Forum includes developing proposals to establish a single access point to guidance and preparing a framework for quality assurance and competencies for guidance providers and practitioners. The National Guidance Forum also participates in the EU funded Network of National Guidance Forums. One Step Up Programme: The second recent initiative operating in the area where lifelong learning and lifelong guidance overlaps with the issue of addressing skills shortages is the One Step Up Programme launched by FÁS in September The aim of this programme is to encourage employees to increase their competency levels and to promote an ethos of lifelong learning in the workplace. Two Issues Needing Greater Attention: Finally, to highlight two issues needing greater attention in developing lifelong guidance services. First, while Ireland has strong equality legislation aimed at ensuring non-discrimination in access to services, there is evidence that some groups in the population - including older persons, people with disabilities, members of minority ethnic groups, and members of the Traveller Community - experience particular disadvantage in the labour market and in accessing lifelong learning (WRC Social and Economic Consultants, 2003). Ensuring that lifelong guidance services actually promote equality of access to, participation in, and outcomes from lifelong learning is thus an important goal. Second, if lifelong guidance is to interface with meeting skills shortages, there is a need to create effective linkages between agencies dealing with employment and labour market intelligence and agencies providing educational and career guidance. This is necessary if they are to operate in a mutually complementary manner. 7

8 References CSO (2004) Quarterly National Household Survey: Lifelong Learning. Dublin: Central Statistics Office. Available on DETE (2000) Employment and Human Resources Development Operational Programme Dublin: Department of Enterprise, Trade and Employment. DETE (2002) Report of the Taskforce on Lifelong Learning. DETE (2002). Available on DETE (2003) National Employment Action Plan, Dublin: Department of Enterprise, Trade and Employment. Available on: DETE (2005) Statement of Strategy Dublin: Department of Enterprise, Trade and Employment. Available on FÁS (2005) Building on Our Vision: FÁS Statement of Strategy Available on Dublin: FÁS. Forfás (2005) Skills Needs in the Irish Economy: The Role of Migration. Dublin: Forfás. Available on NCGE (2005) Guidance in Ireland: Information Sheet. Dublin: National Centre for Guidance in Education. Available on OECD (2002) OECD Review of Career Guidance Policies: Ireland Country Note. Available on WRC Social and Economic Consultants (2003): Accommodating Diversity in Labour Programmes. Dublin: The Equality Authority. Available on 8