Chapter 2. Progress towards the EFA goals - Unesco

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0 1 2 0 CHAPTER 2 Education for All Global Monitoring Report The global economic crisis has pushed learning and skills up the political agenda Youth and adult skills — expanding opportunities in the new global economy Goal 3. Ensuring that the learning needs of all young people and adults are met through equitable access to appropriate learning and life-skills programmes. The Dakar Framework for Action does not provide targets for youth and adult skills. Rather than agree to quantifiable benchmarks, governments signed up to a third EFA goal that amounts to a vague aspiration. One consequence has been a protracted and unresolved debate over what, if anything, that aspiration means in terms of policy commitments (King and Palmer, 2008). Unlike other parts of the Dakar Framework, goal 3 has been the subject of quiet neglect. It has been conspicuous by its absence not just from the agendas of high-level development summits but also from the campaigns of non-government organizations. That situation is unfortunate. In the emerging knowledge-based global economy of the twentyfirst century, learning and skills play an increasingly important role in shaping prospects for economic growth, shared prosperity and poverty reduction (Sapir, 2005). A country’s most important resource is not its raw materials or its geographical location but the skills of its people. Countries that fail to nurture these skills through effective learning face a bleak future, with human capital deficits hindering economic growth, employment creation and social progress (Commission on Growth and Development, 2008; Kok, 2004; OECD, 2004). Within countries, unequal access to opportunities to develop skills will be reflected in deepening social and economic disparities. Youth unemployment, one of the most serious and persistent challenges facing governments across the world, is in part a reflection of a misalignment between skills development and the economy. As one recent report put it: ‘Achieving world class skills is the key to achieving economic success and social justice in the new global economy’ (Leitch Review of Skills, 2006, p. 9). Rich and poor countries alike increasingly recognize that they will pay a high price if they fail to strengthen national skills (DFID, 2007, 2008a). The global economic crisis has raised the stakes, pushing learning and skills up the political agenda. While all sections of society have been affected, the economic downturn has left its deepest imprint on vulnerable unskilled workers, especially the young (ILO, 2009a; OECD, 2009d). Governments across the world are grappling with the twin challenges of providing immediate support to the vulnerable during a period of turbulence while equipping people with the skills they need to re-enter labour markets with higher levels of productivity. This section looks at some of the lessons to be drawn from current approaches to skills development. Narrowing the wide-angle lens of goal 3, the focus is on skills and learning opportunities for young people provided through technical and vocational education programmes. These programmes can play an important role in strengthening the transition from school to the world of work, in offering second chances and in combating marginalization. In many countries, however, technical and vocational education is in such bad shape that it merits its reputation as a form of second-class schooling. There are no quick fixes for this situation, but four broad messages emerge from this section: Give young people the training they need. Governments, trade unions and employers need to cooperate to devise effective technical and vocational education that equips young people with the skills they need for success in employment. Too much vocational education delivers skills of limited relevance to economic and social needs, and at high cost, often bypassing the poor and the informal sector. It is often driven by inappropriate curricula and qualifications, with providers insulated from employers’ real demands. Skills need a broad base. Successful transition from school to work requires the development of broad skills, with an emphasis on problemsolving and ‘learning to learn’, alongside more specialized abilities. Early streaming into specialized vocational education through academic selection should be avoided. Governments also need to address the widespread perception of technical and vocational education as a safety net for failing students or those from poor family backgrounds. Raising the quality and improving the relevance of technical and vocational education is the most effective antidote to that perception. 76
PROGRESS TOWARDS THE EFA GOALS Youth and adult skills — expanding opportunities in the new global economy Strengthen basic education. Effective and equitable skills will not be developed in countries where a majority of the population does not reach secondary school. Strengthening basic education is a key element in providing technical and vocational training. Work towards greater equity. In many countries, technical and vocational education fails to reach large numbers of marginalized young people, notably young women. Far more could be done to broaden vocational education opportunities, by offering ‘second chance’ programmes and by better integrating vocational training into national poverty reduction strategies. Designing flexible programmes for young people who have not completed secondary school or gone beyond primary education can help combat youth unemployment. This section is divided into five parts. Part 1 outlines the diverse ways in which countries approach the task of supplying technical and vocational education and provides a bird’s-eye view of global participation in vocational education at the secondary school level. Part 2 looks at one of the most sensitive barometers of the mismatch between training and the economy – youth unemployment. While the global economic crisis is leaving its mark on people across the world, marginalized young people are often bearing the brunt. Part 3 examines what can happen to technical and vocational programmes when good intentions are undermined by lack of finance, poor design and weak linkage to labour markets. It highlights the particular challenges governments face in the Arab States, India and sub-Saharan Africa. Part 4 explores how vocational education can help young adults avoid marginalization by offering them a second chance to acquire the skills they need. Part 5 considers what kinds of policies lead to effective technical and vocational education programmes that facilitate the transition from school to employment. Technical and vocational education The fundamental purpose of technical and vocational education is to equip people with capabilities that can broaden their opportunities in life, and to prepare youth and young adults for the transition from school to work. Skill development in technical and vocational education matters at many levels. For individuals, the skills carried into the labour market have a major influence on job security and wages. For employers, skills and learning play a key role in raising productivity. For society as a whole, raising the overall level of skills, ensuring that young people are not left behind and aligning the supply of skilled labour with the demands of industry are critical to social cohesion. This section focuses principally on the role of vocational education, rather than on training provided by companies, in the generation of skills and capabilities. Vocational programmes vary across countries Technical and vocational education programmes emerged in developed countries during the nineteenth century to support industrial development. Their subsequent evolution and their adoption in developing countries reflect complex institutional relationships between education and economic systems. There are many models of provision. While some countries provide general education in schools, with companies or special training institutes offering vocational options, other countries offer distinctive vocational options in secondary school. Apprenticeship programmes are an important part of technical and vocational education provision, though here, too, arrangements vary. Several broad approaches can be identified: Dual systems. Some countries combine school-based and work-based training in dual systems, integrating apprenticeships into the formal education structure. OECD countries that typically offer this option include Denmark, Germany, Switzerland and, more recently, Norway (OECD, 2007a). The well-known German dual system, which has been widely copied in developing countries, creates opportunities for students to combine school-based classes with in-company training (Barabasch et al., 2009). Four key stakeholders are involved: the federal government, the state government, representatives of employer organizations and trade unions (German Federal Ministry of Education and Research, 2006). Benefits of the German system include firm-based training that equips students with skills suitable for the job market, an assured pool of skilled workers and private sector contributions to financing. Vocational training has played an important role in combating youth unemployment and reducing wage inequalities. On a less positive note, early tracking into vocational education has contributed to deep inequalities in For individuals, the skills carried into the labour market have a major influence on job security and wages 77
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