79926 Ireland SABER Multiyear Country Report WORKFORCE DEVELOPMENT 2012 Status 1. Strategic Framework By 2000 workforce development was fully integrated into national policies and strategies; the roles and responsibilities of key stakeholders in 2000 workforce development were institutionalized; businesses and industry had executive and advisory roles in shaping and implementing workforce 1990 development priorities based on well-informed analysis; and recommendations on future skill supply were implemented and policies 1980 were routinely reviewed and updated. 2. System Oversight By 2000 competency-based testing and certification applied to most 2000 occupations; some measures existed to foster articulation across institutions; legislation for development of a national qualifications 1990 framework had been enacted (1999); and government funding was allocated based on explicit criteria and allocations to institutions were linked to performance. 1980 3. Service Delivery By 2000 stakeholders had influence over training curricula and advisory and 2000 decision-making roles in the operations of public training institutions; incentives were in place to ensure that private and NGO providers meet 1990 quality standards; and a culture of routine monitoring and evaluation—one aided by reliable and freely available data—was well-developed. 1980 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 1 THE WORLD BANK Table of Contents Executive Summary …………………………………………………………………………………………………………….. 3 Introduction ………………………………………………………………………………………………………………………… 5 Country Context …………………………………………………………………………………………………………………… 7 Summary of Benchmarking Results ………………………………………………………………………………………. 13 Detailed Results | Dimension 1 ……………………………………………………………………………………………... 18 Policy Goal 1 | Articulating a Strategic Direction for Workforce Development...…………………… 19 Policy Goal 2 | Prioritizing a Demand-led Approach ………………………………………………….............. 23 Policy Goal 3 | Strengthening Critical Coordination ………………………………………………………….... 27 Detailed Results | Dimension 2 ……………………………………………………………………………………………… 31 Policy Goal 4 | Diversifying Pathways for Skills Acquisition ……………………………………………….. 32 Policy Goal 5 | Ensuring Efficiency and Equity in Funding ………………………………………………….. 35 Policy Goal 6 | Assuring Relevant and Reliable Standards ………………………………………………….. 38 Detailed Results | Dimension 3 ……………………………………………………………………………………………… 41 Policy Goal 7 | Fostering Relevance in Training Programs …………………………………………………. 42 Policy Goal 8 | Incentivizing Excellence in Training Provision ……………………………………………. 46 Policy Goal 9 | Enhancing Accountability for Results .………………………………………………………… 49 Annex 1 | Analytical Framework of SABER- Workforce Development……………………………………… 52 Annex 2 | Benchmarking Scores ……………………………………………………………………………………………. 53 Annex 3 | Acronyms……………………………………………………………………………………………………………… 54 Annex 4 | Documents ……………………………………………………………………………………………………………. 55 Annex 5 | Informants ……………………………………………………………………………………………………………. 61 Annex 6 | Benchmarking Rubrics ………………………………………………………………………………………….. 62 Authorship and Acknowledgments………………………………………………………………………………………… 71 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 2 Executive Summary Skills as an asset for growth in Ireland From the mid 1990’s the Irish economy expanded rapidly, with output and employment growth well ahead of the average for the EU and OECD countries. This growth was accompanied by a sharp increase in investment, especially foreign direct investment, and productivity. Investment in human “In Ireland, during capital development was an important contributor to this growth, and included significant reforms of the 1970’s, 1980’s education and training. The report highlights that in Ireland, during the 1970’s, 1980’s and 1990’s, the and 1990’s, the government and the social partners increasingly came to view investment in human capital as a government and strategic objective in the national development planning process and as an important tool for growth. the social partners increasingly came Methodology to view investment This study benchmarked levels of support for workforce development (WfD) in Ireland and in human capital identified measures which progressed workforce development within a framework of human capital development. The study piloted a new diagnostic tool (SABER-WfD) to assess Ireland’s as a strategic workforce development between 1980 and 2000, a period of economic expansion in Ireland and objective in the major reform in workforce development. The tool is part of the World Bank’s initiative on national Systems Assessment for Better Education Results (SABER) which focuses on several policy development domains including workforce development. Three broad functional dimensions of workforce planning process development policies were assessed based primarily on secondary source materials: strategic and as an framework; system oversight; and service delivery. The findings demonstrated Ireland’s overall important tool for progression on each of these dimensions; moving from an emerging to an advanced system growth” between 1980-2000 in respect of workforce development strategic framework and service delivery, and to an established framework for system oversight by 2000. Key reform elements at the strategy level Key reforms during the eighties and nineties included stakeholders’ participation in a series of national social partnership compacts, integration of demand-driven workforce development within national economic plans, and an agreed implementation process for human-resources development with a strong role for autonomous government agencies. Engaging the main Labor Ministry and other key ministries including education, economic development and social protection ministries in policy facilitated this “Horizontal progress. Specific reforms included: social partner commitment to workforce development including coordination strengthening of formal pre-employment training within a Program for National Recovery 1987-1990; mechanisms and designation of an operational program for human resource development 1994-1999 under the across different framework of a national development plan, supported by the EU Community Support Framework for Ireland. Workforce development strategy was further enhanced by establishment in 1997 of a broad- functional based Expert Group on Future Skill Needs (EGFSN) responsible for assessment of various industries and areas of sectors, supported by an institutional implementation framework, and the establishment in 1999 of government government-funded, industry-led, training networks (Skillnets). are essential to integrate WfD Reforms to improve the oversight of the education and training system within national Initial measures to assure oversight of the technical and vocational education and training system industrial and (TVET) included: stakeholder agreements on standards, new program review systems and a rigorous enterprise registration system for private training providers. Progress in development of accreditation and policy.” competency standards was facilitated through increased devolution of responsibility from the Department of Education 1 to agencies with a wider representation of educational interests. Further significant reform of workforce development oversight progressed in the late nineties through: the establishment in 1999 of a National Qualifications Authority (NQAI) to promote the quality of education and training, and to facilitate life-long learning; the creation of a Further Education and Training Awards Council (FETAC) with a remit for a common awards system; and piloting of a Higher Education Links scheme with credit transfer arrangements between different levels. A systematic funding strategy, with government and European and social partner input into priorities, provided oversight for efficiency and equity in funding. 1 In Ireland Government Ministries are referred to as Departments. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 3 Reforms to improve management of training institutions and programs Measures to improve management of training institutions and programs included greater focus on outcomes, efficiency, innovation, evaluation (a requirement of European funding), and allocation of resources to improve the competence of administrators and instructors. Additionally, diversity in training provision was promoted through increased use by the National Employment and Training Authority (FAS) of private trainers, non-state institutions and NGO’s. Reforms to increase the relevance of training included: work-experience and industry internships within TVET programs; collaboration with industry in provision of bespoke training and in applied research and consultancy, particularly between Institutes of Technology and industry. Additionally there was increased emphasis on accountability for results, and incentives were established to encourage providers to meet workforce development standards and outcomes. Reflections on lessons from Ireland The experience of Ireland demonstrates that a cohesive approach through national consensus building with all stakeholders has been very successful in implementing workforce development. Access to international advice and funding is also important, as demonstrated by the OECD and EU contributions to TVET policy and infrastructure in Ireland. Coordination is required. Horizontal coordination mechanisms across different functional areas of government are essential to integrate workforce development within national industrial and enterprise policy. A coordinating national qualifications framework is necessary for the integration of vocational and general qualifications, the enhancement of accreditation standards, and the development of a common awards system and transfer and progression pathways. Strong coordination between the vocational education and vocational training systems is also required. Workforce development systems must be able to adapt to fluctuating economic and employment environments; however it can be challenging to assure quality while also responding speedily to skills shortages. Developments since 2000 Irish workforce development remains relevant and a useful policy instrument despite current economic difficulties because it benefits from pre-existing and continuing features, inter alia: systematic identification of the needs of individuals and enterprises, flexible and responsive training and further education provision, a well-developed accreditation/quality assurance system and wide spread awareness of the importance of workforce development to counter the effects of unemployment. Some key measures have been implemented during the last twelve months of intense fiscal crisis to minimize the effects of the unemployment crisis. Two particular programs were facilitated by previous experience of partnership between employers and the vocational training and education sectors – JobBridge internships for jobseekers without experience or wishing to gain new skills, and Springboard up-skilling courses for job seekers with a previous history of employment that need further qualifications to assist return to work. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 4 Introduction Ireland has consistently supported workforce (3) Service Delivery which refers to the diversity, development (WfD) as a key element of economic organization and management of training provision, development. This study has been commissioned by the both state and nonstate, that deliver results on the World Bank to test a new instrument, within its SABER- ground by enabling individuals to acquire market- and WfD project, which provides an opportunity to job-relevant skills. (see Figure 1). benchmark this support and identify progress made over two decades from 1980-2000. This was a period of From the perspective of the line ministries, typically rapid expansion of Ireland’s economy and major reform education and labor, strategy is about sensing, in WfD policies. The findings will assist other countries influencing, and responding to the external in identifying measures which have been effective in environment for WfD; oversight is about governing the progressing aspects of workforce development within a activities of all stakeholders with a direct interest in framework of national human capital development and WfD activities; and delivery is about managing the may also contribute to on-going policy dialogue on activities of those responsible for training provision. workforce development in Ireland. These three dimensions constitute a closed policy-making loop and, when taken together, allow for analysis of the A New Diagnostic Tool functioning of a WfD system as a whole. Each functional dimension is composed of Policy Goals (see Figure 2) The tool, known as SABER-WfD, is a product of the spanning three broad areas governance, finance and World Bank’s initiative on Systems Approach for Better information. Each of the Policy Goals is in turn further Education Results (SABER), which focuses on several defined by three tangible Policy Actions, making a total of policy domains, including WfD. 2 SABER-WfD aims to nine Policy Goals and 27 Policy Actions. document and assess a country’s policies and institutions in light of global good practice. It focuses on three broad functional dimensions of policies: Figure 2: Analytical Framework of SABER-WfD (1) Strategic framework which refers to the praxis of advocacy, partnership, and coordination in relation to the objective of aligning WfD in critical areas to priorities for national development; (2) System Oversight which refers to the arrangements governing funding, quality assurance and learning pathways that shape the incentives and information signals affecting the choices of individuals, employers, training providers and other stakeholders; and Figure 1: Functional Dimensions of WfD Policies Source: Tan et al. 2012. 2 Source: Tan et al. 2012. See Annex 1 for more details. For details on SABER see http://www.worldbank.org/education/saber SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 5 The SABER-WfD tool uses the foregoing analytical Figure 3: Rubric for Benchmarking WfD framework to create a structured data collection Emerging Established instrument for gathering information on a country’s Some instances of Systemic good policies and institutions for WfD. For each of the 27 good practice practice Policy Actions, the Data Collection Instrument (DCI) poses a set of questions relating to the corresponding Latent Advanced aspect of the WfD system. Each question is answered Limited Systemic good by choosing from a list of closed options corresponding Engagement practice meeting to stages of development. The choice is substantiated global standards either by documentary evidence or by information Source: Tan et al, 2012. supplied and corroborated by knowledgeable and credible informants. As in the other countries selected Note that in order to conform to standardized for this pilot phase, the collection of data using the presentation of reports under the overall SABER SABER-WfD instrument was led by Principal initiative the dimension-level SABER-WfD categorical Investigators (PIs) 3 who rely on documentary evidence ratings shown on the cover of this report are based on as well as interviews with knowledgeable informants. the corresponding composite scores which have been converted to the relevant categories. 4 In the rest of the Data Processing and Scoring. For each of the 27 Policy report, the composite scores are presented in the form Actions, the information gathered by the PIs is scored of a dial, as shown above, in order to retain the detail according to standard rubrics. These rubrics they reflect. correspond to four stages of maturity in policy and institutional development for WfD, as follows: (1) latent, (2) emerging, (3) established and (4) advanced. A summary description of the rubrics appears in Figure Box 1: A Note on Documentary Sources 3 while the details are explained in Annex 6. This report is based on data collected through a desk study drawing on various documents for the The scores on the Policy Actions form the basis for years 1970-2000. The most important of these are: scoring the nine Policy Goals. The approach involves  National development plans and the application of simple weights to aggregate the partnership agreements; scores on the Policy Actions that relate to each Policy  National labor market and sectoral skills Goal, typically 1/3 for information relating to policy needs studies; concepts and design and 2/3s to information relating to  Profiles of TVET policies, management, policy implementation. In the interest of parsimony in organization and delivery; data collection, the SABER-WfD study accepts reviews  Evaluations and reviews on TVET policies and evaluations of policies and related follow up and programs; actions as evidence of implementation. Finally, to  Annual Reports of provider institutions obtain the scores for the three functional dimensions and agencies considered in the SABER-WfD framework, the scores for the Policy Goals that relate to each dimension are Complete information on all sources appears in aggregated with equal weights. This algorithm yields Annexes 4 and 5. composite scores on a 1-4 scale for every level of aggregation in the data; naturally, the composite scores are rarely whole numbers. 4 For a given composite score, X, the conversion to the 3For Ireland, the PI was Sue Leigh-Doyle, an independent categorical rating shown on the cover is based on the consultant with extensive experience in evaluating HRD following rule: 1.00 ≤ X ≤ 1.75 converts to “Latent”; 1.75 < programs in Ireland and elsewhere in Europe, and as a TVET X ≤ 2.50, to “Emerging;” 2.50 < X ≤ 3.25, to “Established;” consultant for the World Bank and ILO. and 3.25 < X ≤ 4.00, to “Advanced.” SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 6 Country Context Introduction living standards. The turn-around phase was marked by a sharp increase in investment – especially foreign Ireland is a small, independent, democratic country in direct investment and sustained growth in productivity Western Europe; it has been a member of the European Community since 1973. Following a period of virtual Demographics and Employment 5 stagnation in the first half of the 1980’s the Irish economy expanded rapidly during the nineties. In Demographics. Ireland has consistently had a high level terms of both output and employment growth Irish of population growth due to a high birth rate; in the performance was well ahead of the average past this growth has been lessened or overturned by performance of the EU and OECD countries from the high levels of emigration. Since the mid 1990’s there late eighties to 2000. Growth continued up to 2007, but has been an increase in the birth rate, a corresponding the economy has since been in recession due to the decrease in emigration and marked increase in fiscal crisis. Ireland invested heavily in education and immigration, resulting in a significant rise in the training to equip the workforce with the skills to population. The population was 3.8 million in 2000. respond to new industrial and service sector employment opportunities arising from the mid 1980’s. Table 1: Population and Labour Force (millions) Key aspects of the economic, labor market and social Population Labor Force context between 1980-2000 and the institutional and 1971 2,978 1,110 financing arrangements for workforce development are 1981 3,443 1,271 first presented in this section to set the stage for 1991 3,525 1,342 discussing Ireland’s WFD performance during this 1999 3,755 1,615 period. Reference is also made to the post 2000 context. 2000 3,805 1,779 Source: CSO, Ireland. Economic Trends Growth 1980-2000. In the 1980’s and early 1990’s the Employment. The period since 1980 has seen dramatic Irish economy was in a serious situation. Economic fluctuations in employment and unemployment trends. growth was low, gross national product (GNP) per Total employment fell by an average of 0.8% per year capita was significanty below EU average levels (about between 1980 and 1986; it rebounded over the next two-thirds) and unemployment rates were high (15%- ten years by growing at 2.1% per year compared to an 17%). In the nineties this changed and Ireland became OECD average of 1% and and EU average of 0.3%. From the fastest growing economy in the EU. During this 1997-2000 employment grew by over 4% per year on high-growth Ireland’s rate of real GDP increased on average and the labour force by 3.5%. The labour force average 5.1% per year, compared with an OECD in 2000 was 1.7million; with an overall participation average of 2.4%. Real GDP growth reached 11.% in rate of 71%. Employment grew by over 36% in the 1997 and 9.4% in 2000. Ireland’s economy settled period 1993-1999; and women accounted for more down into a more steady growth phase of between 4- than 90% of the increase in the labour force population 7% over the following years until 2007. since 1990. The participation rate of women grew by over 50%, albeit from a very low level. Figure 4: GDP per capita (constant 2000 US$) Performance on unemployment was somewhat slower, 30,000 with a reduction in the unemployment rate from a 25,000 highest level of almost 18% in 1987 and almost 17% in 20,000 1993 to less than 8% in 1998. The decline in 15,000 unemployment lagged behind the dramatic increase in total employment, largely due to strong growth in the 10,000 labour market – because of population increase and the 5,000 increased labour force participation of women. During 0 1994-2000 the Irish unemployment rate fell from 8 1980 1985 1990 1995 2000 percentage points above the OECD average to two two points below. The standardised unemployment rate in Ireland OECD members 2000 was 4.4%, compared with 13.3% in 1990. Source: World Development Indicators (database). Rapid economic growth from 1995 resulted in large 5 Sources: O’Connell, (1999), Sexton & O’Connell (Eds) (1996); increases in per capita incomes and a significant narrowing of the gap between Irish and average EU McCormick 2003. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 7 Figure 5: Unemployment rates 1983-2000 (%) During the 1990s Ireland transformed itself into an 20 export oriented economy with a thriving manufacturing sector, and a growing service sector. By 1996 foreign 15 firms accounted for 47% of the workforce employed in manufacturing and internationally traded services such 10 as – ICT, chemicals, pharmaceuticals, medical technologies and engineering. However the largest 5 growth in employment took place in services. Total employment in services grew by 40% between 1981- 0 1997, most of this growth took place in the 1990’s and 1983 1988 1993 1998 in market services. Ireland OECD Table 2: Ireland’s Top 5 Exports by Value (US$ millions) Source: World Development Indicators (database). Rank Description Value 1970 Poverty and inequality. Rapid economic growth 1 Meat of bovine, fresh, chilled, or frozen 119 coincided with an increase in inequality. The incidence 2 Bovine cattle including buffalo 110 of poverty and of low-paid employment increased 3 Petroleum, crude and partly refined 53 between 1987-1994. The growth in poverty was largely 4 Butter 29 attributable to the failure of social welfare payments to Chocolate and other food preparations of keep pace with the rate of growth in average incomes 5 cocoa 26 during the period of rapid economic growth. The 2000 increase in low-pay was mainly due to growth in Organic and inorganic and heterocyclic sectors with high-demand for low-skilled workers. 1 compounds 14,206 2 Statistical machines cards or tapes 9,748 Demand for Skills 1980-2000. 3 Office machines not elsewhere specified 8,050 Thermionic valves and tubes, transistors, Sectoral and occupation change. The country moved, 4 and so forth 4,166 from a strong dependence on agriculture and Phonograph records, recorded tapes, and traditional industries producing for the home market in 5 other sound recordings 4,021 the 1960’s, to modern export-oriented industries. From Source: Some Small Countries do it Better (Yusuf and Nabeshima, 1980 employment in agriculture continued to decline 2012) and United Nations Commodity Trade Statistics Database. falling from 17% of total employment in 1981 to 10 per cent in 1997. While employment in manufacturing went Skill Shortages 1980-2000. Sectoral re-structuring through a decline in the early 1980’s, it grew rapidly in combined with changes in the organization of the 1990’s, by about 3% per annum. The increase in production and service delivery generated a significant manufacturing was mainly due to foreign direct up-grading of the occupational structure between investment with strong growth in electronics, 1980-2000. The strongest growth took place among chemicals and pharmaceuticals. professional, technical and managerial occupations, but also in clerical and sales occupations. This expansion at Figure 6: Industrial Composition the upper end of the occupational structure was accompanied by a decline in the demand for semi- Food beverages and tobacco skilled and un-skilled manual workers, although there Chemicals, rubber, plastics, and fuel was some growth in employment in these categories in 2000 Textiles, leather and footwear the 1990’s. Skills and labor shortages became apparent in the late nineties particularly in manufacturing and Electrical and optical equipment construction. At the higher skill level the main Machinery not elsewhere classified vacancies by occupation group were in engineering and 1990 other nonmetallic minerals computer associate professionals. Basic metals and fabricated metals The growth in manufacturing employment resulted in Pulp, paper, printing and publishing increased demand for higher level skills across a wide range of occupations linked to new technology and Transport equipment 1980 higher productivity; particular shortages in electronics Manufacturing not elsewhere class. and sector and for technicians were identified in the late recycling Wood eighties. In the late 1990s the problem of unfilled 0% 50% 100% vacancies was a widespread phenomenon. Over two- Source: UNIDO, ISIC4 (retrieved from WB UNIDO2R3 database). thirds of vacancies were accounted for by five occupational groups: skilled manual and production SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 8 workers; personal services, clerical and secretarial; The improved economic situation from 1995 led to production operatives and sales 6. efforts to ensure that labour and skill shortages did not act as barriers to further economic growth. The Supply of Skills 1980-2000 importance of training and re-training of those already employed was increasingly recognised, as enterprises Education. The Irish educational system expanded were less able to meet skill needs through the dramatically, following from large scale investment in recruitment of recently trained graduates. education in Ireland from the late 1960’s. This resulted in a gradual increase in the human capital of the In line with improved economic activity, the numbers workforce and an increased supply of skilled labour 7. registered for apprenticeships doubled between 1995- 2000. About 10-15 per cent of all school leavers Figure 7: Average years of total schooling, age 25+ traditionally follow the designated apprenticeship 12 routes. Aproximately 1% of the Irish workforce was engaged in apprenticeships during this period. As 99% 10 of those taking up apprentices were male apprentices 8 comprised 2% of the male workforce. There was a significant increase in life-long learning rates from 6 1996-2002; rising from 4.8% to 7.7% 9 4 Post 2000 2 From 2000 rapid economic growth and virtually full employment were accompanied by issues in the supply 0 1975 1980 1985 1990 1995 2000 of trained labour and a policy of encouraging inward migration which became very pronoounced in 2004, Source: EdStats, World Bank. when Ireland opened its doors to new EU member states. Post 2007, the growing fiscal crisis has resulted By 2001 (Q2) 58% of the adult population had achieved in unemployment rates exceeding 14% with enrolment an upper secondary level education or higher. The in traditional apprenticeship significantly reduced and overall trend in Ireland has been of an increasingly a resumption of outward migration. In this climate WfD educated population, with a greater proportion of programmes have been held out as an essential part of women than men achieving higher levels of education. the policy response to reintegrate the unemployed back Figure 8: Education Attainment of Irish Labor Force (%) into employment. 35 Training Provision 10 30 Institutional framework. Education is compulsory in 25 Ireland from the ages of 6 to 16 years. The formal 20 education system comprises up to 8 years of primary 15 schooling. Secondary education begins at age 12 and 10 lasts for 5-6 years with a three-year junior (lower secondary) cycle and a 2-3 year senior (upper 5 secondary) cycle. Typically students undertake a junior 0 certificate examination at the end of the junior cycle. A 1991-95 1996-2000 2001-05 leaving Certificate examination is undertaken at the Primary Junior certificate Leaving certificate Third level end of the senior cycle; it has three options, a Source: Central Statistics Office Ireland 8 traditional Leaving Certificate exam, a more vocationally-oriented exam, and an Applied Leaving Certificate program with most emphasis on continuous assessment. Those leaving school early without 6 EGFSN, Forfas, 2003. qualifications may opt for a two-year Youthreach 7Enhanced Investments in human capital (education and training) program of integrated education, training and work have been found to be responsible for almost one-sixth of Ireland’s experience. positive growth differential compared with its OECD counterparts; and investments in human capital were the third largest identified contributor to Ireland’s positive growth differential over the rest of the industrialised world during 1985-1995 (de la Fuente and Vives 1997). 9Source: Eurostat. LLL indicator based on % of population aged 25- 8Extracted from: O’Hare. Education in Ireland, in An African 64 that participated in education and training in previous four weeks. Exploration of the East Asian Education Experience, The World Bank, 2007. Chapter 7. 10 CEDEFOP (Fox and Harper) 2004; CEDEFOP (Fox & McGinn) 2000. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 9 Figure 9: Number of persons receiving full-time Legal framework. Key pieces of legislation in respect of education by type of institution attended vocational education and training within the second- 1,000,000 level and third-level non-university sectors are: 900,000 800,000 The Vocational Education Act 1930 (and  700,000 amendments) which led to the development of 600,000 vocational education committees (VECs) and 500,000 vocational schools. The development of the 400,000 system since then has been largely based on 300,000 ministerial orders, until the introduction of a 200,000 range of legislation post-2000. 100,000  The Industrial Training Act (1967) established an 0 1989/90 1993/94 Industrial Training Authority (AnCo), and also First Level Junior Cycle required employers to be subject to a levy. This Senior Cycle - General Senior Cycle - Vocational HEA/University Sector Technological Colleges Act was subsequently replaced by the Labor Other Services Act (1988), which allowed for Source: EU Commission. Labor Market Studies - Ireland, 1996. establishment of a broader Employment and Table 7.1. (Sexton and O'Connell, Eds.). Training Authority (FAS) through a merger with existing employment agencies. Workforce development (WfD) in Ireland covers both  The Regional Technical Colleges Act 1992 placed pre-employment (initial) and continuing training, along these colleges, established since the 1960’s, on a with training programs for unemployed persons and statutory footing. The colleges were renamed as others wishing to return to the labor market. A four- Institutes of Technology in 1998, based on year national standards-based apprenticeship system is amendment to the 1992 Act. in place since 1991, for 26 designated trades. Post-  The Education Act 1998 made provision for the secondary non-tertiary education options include a education of every person in the State for primary, post-leaving certificate course within the education post-primary, adult and continuing education and system or skills and foundation level training courses vocational education and training. provided in vocational training centers. Most third-  The Qualifications (Education and Training) Act level (non-university) vocational education is provided 1999 set up structures for a national framework through Institutes of Technology; these offer two-year of qualifications. national certificate and one-year add-on national Legislation in the late sixties also established a number diploma sub-degree programs (in addition to degree of agencies to provide industrial, agricultural, fisheries, and post-graduate courses). catering and tourism training. A levy system to fund apprenticeship was introduced in 1994, and Table 3: Number of participants in main initial subsequently replaced by a National Training Fund vocational training programs 1998/1999 11. (2000). Program Number Governance. Decisions about VET and its funding are Technician training 41,000 primarily made by central government departments Post Leaving Certificate 23,800 and bodies. Ireland does not have strong regional Apprenticeship 16,983 authorities. The majority of vocational education and Leaving Certificate vocational program 26.080 training provision is within the State sector. The administrative structure generally has three levels: Leaving Certificate applied program 6,270 government departments 12 , intermediate agencies Youthreach 3,214 (channeling funds and policy implementation), and the Persons with disabilities 5,133 main VET providers. Since the late 60’s responsibility Agriculture 4,750 for vocational education has rested with the Dept. of Education and responsibility for vocational training has Hotels, catering, tourism 2,136 primarily rested with the Dept. of Labor (subsequently Fishing 592 renamed Dept. of Enterprise, and Enterprise, Trade and Source: Fox and Mc Ginn, CEDEFOP, 2000. Employment). The key intermediary bodies in 2000 were the Vocational Education Committees, Institutes of Technology, and the National Employment and Training Authority. 11 Does not include participants on training programmes for unemployed. 12 In Ireland government ministries are referred to as Departments SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 Vocational Education Committees are statutory National Employment and Training Authority (formerly committees of county councils and other local the Industrial Training Authority) was governed by a authorities; there were 33 such committees in 2000. Board, appointed by the Minister of Enterprise; it had They provide a range of education, training and support twenty training centers and also delivered training services within local communities, including second- through subcontracting training providers. It provided level, adult, community and second chance education, initial vocation training for unemployed people and and post-leaving certificate programs. Fourteen continuing vocational training. In 2011 the training Institutes of Technology (previously regional technical function of the National Employment and Training colleges) are run by independent boards of Authority (FAS) was transferred to the Department of Management with almost all funding and direction from Education and Science, which then became the the Ministry of Education. Department of Education and Skills. A new umbrella organization (Solas) will oversee all initial and further Significant changes in governance and responsibility vocational education and training including the for TVET have been implemented as part of the WfD activities of FAS and the local Vocational Education policy response to the current fiscal crisis. The Committees. Figure 10: Structure of Education System - 2004 Second Level and Further Ed. First Level Third Level (6 years) Junior Cycle Senior Cycle (3 to 10 years) (3 years) (3 years) Apprenticeship Secondary Secondary Schools Schools University Primary Community & Community & Grad. Comprehensive Comprehensive Private Colleges School Schools Schools (master, phd) Institutes of Vocational Vocational Technology Schools Schools Post Leaving Certificate Source: Adapted from CEDEFOP - The vocational education and training system in Ireland, 2004 Financing Skills Development 1980-2000 post-school training at second or third-level 14 . Expenditure on apprenticeship also rose rapidly from The principal funders of WfD in Ireland are the the mid 1990’s as the number of apprentices recruited Government, the European Social Fund, employers and by employers rose rapidly in response to the improved individuals. Most expenditure in this area (vocational Irish economy. training/Wfd) is State-funded with some ESF support. Public expenditure on education was doubled between A major factor in funding policy for training in Ireland 1961 and 1993; it increased from 3.1% of GNP in 1961 has been the support provided by the European Social to 6.5% in 1993 13 . While public expenditure on Fund. Expenditure on human resources development education as a share of GDP has not significantly altered (HRD) within EU structural funds has included between 1990 and 2000, its share of total government training, education and employment supports. The expenditure rose from 10.2% in 1990 to 13.5% in 2000. majority of this expenditure formed part of the HRD Expenditure on initial vocational education and 1994-1999 Operational Programme. It accounted for training in Ireland has been considerable, and grew €2,460 million of co-financed public expenditure over the decades as young people stayed longer at second-level school and a greater proportion attended 14 Means tested maintenance grants are available for students at IOTs and for those on Dept. of Education post-leaving certificate courses. In general unemployed persons and those from other socially-excluded groups are provided with financial assistance to 13 Tansey, Ireland at Work, 1998.Ch.4. undertake education and training programmes. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 11 ((€1,809 million of EU aid) over the 1994-1999 period (31% of total EU aid to Ireland). There was also some additional HRD expenditure associated with other Operational Programmes such as agriculture, tourism and industrial development. Figure 11: Public Expenditure on Education (%) 16 14 12 10 8 6 4 2 0 1970 1980 1990 1995 2000 2006 Share of GDP Share of total government expenditure Source: Some Small Countries do it Better. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 12 Overview of Benchmarking Results Introduction Figure 13: Ireland Benchmarking Results The SABER-Workforce Development Benchmarking results reveal that by 2000 Ireland had well developed Policy Goal policies and institutions for workforce development 1. Direction Framework (WfD), based on continuous progress from the 1970’s. Strategic 2. Demand-led Overview of results 3. Coordination Ireland’s overall scores for each of the three functional dimensions in the SABER-WfD framework appear in Figure 12. They reveal a consistent and sustained 4. Pathways pattern of improvement between 1980, 1990 and 2000 Oversight System in the country’s WfD policies and institutions. By 2000, 5. Funding the scores put Ireland’s WfD system at an advanced level of development for strategic framework, at an 6. Standards established level for system oversight, and at an advanced level for service delivery. 7. Relevance Delivery Figure 12: Benchmarking Results – Dimension Level Service 8. Excellence 9. Accountability 1 2 3 4 Strategic System Oversight Service Delivery 1980 1990 2000 Framework 1980 1990 2000 1–Latent; 2–Emerging; 3–Established; 4-Advanced Note: the above composite scores are the same as the categorical ratings shown on the cover of this report. They have been converted using the Formal mechanisms were in place to assess future skill rules indicated in footnote 4 on page 6. needs and to ensure critical skills challenges were promptly addressed. Critical co-ordination was ensured As elaborated in the introduction, the score for each through institutionalized structures for WfD; with functional dimension is an aggregation of the scores for ongoing resource support for semi-autonomous the underlying Policy Goals associated with it (see tripartite agencies such as the National Employment Figure 13). The results show that not all aspects of and Training Authority (FAS), the Industrial policies and institutions for WfD in Ireland were Development Authority (IDA) and other sectoral equally developed in 1980 and that progress in the training agencies. TVET was provided by a range of subsequent 20 years has been faster in some areas than different public institutions. These included vocational. others. secondary, community and comprehensive schools at Landmarks in the journey of reform second-level; vocational education and training centers, further education colleges and higher-level Institutes of Highlights are presented below on Ireland’s experience Technology (IOTs); and FAS training centers and in strengthening its WfD policies and institutions in the community training workshops. three broad functional dimensions considered in the SABER-WfD framework. Consistent advocacy and support for WfD by governments as part of economic development from Strategic Framework. Between 1980 and 2000, the late seventies, along with the support of advice and Ireland’s score for strategic framework moved from an funding from international organizations was critical to emerging level to an advanced level, reflecting several achievement of this robust strategic framework. significant developments. By then, workforce Similarly, acknowledgement of the need for strong development was fully integrated into national social partnership to ensure effective economic economic plans; strategy was demand driven, and development; establishment of tripartite development supported by institutionalized tripartite consensus. A agencies and an agreed implementation process for range of policies to address skills imbalances existed human-resources development facilitated advancement based on occasional and routine assessments by of a strategic framework for WfD. Within this government and by independent stakeholders. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 13 framework policies to address skills imbalances were (NCEA), the National Qualifications Authority (NQAI) formulated on the basis of well-informed analysis and the Further Education and Training Awards Council (FETAC). The tripartite nature of the Boards of Specific landmark reforms included: these and other enterprise development agencies also facilitated input by business/industry and other  social partner commitment to workforce stakeholders into standards development, and development including strengthening of formal provided a solid basis for partnership between key WfD pre-employment training within a Program for stakeholders to address skill gaps and improve the National Recovery 1987-1990. The success of this qualifications system. social contract led to a series of national social partnership agreements in Ireland. Consistent good practice in ensuring efficiency and equity in funding was assured through a systematic  designation of a specific operational program for strategy that included government and European and human resource development 1994-1999 under social partner input into priorities. Resources and the framework of a national development plan, and measures within the national HRD operational program supported by the EU Community Support (OP) 1994-1999, reflected priorities in the National Framework for Ireland; with WfD priorities for the Development Plan, and performance measures and first time reflected in a separate HRD program with targets were explicit. Formal systems for reviewing implementation plans and budget allocation. accreditation standards were also established. Reforms to ensure a demand driven approach included inclusion of specific funding for analysis of Key landmark reforms in strengthening oversight sectoral skill needs within this HRD OP. within the WfD system included the following:  establishment in the late nineties of a dedicated  establishment by the National Council of Education Expert Group on Future Skill Needs (EGFSN) Awards (NCEA) of an institutional and program responsible for assessments of various industries review system in higher-level Institutes of and sectors and a new institutional framework, the Technology, together with procedures for Education and Training Partnership Forum, and a introduction of new courses; Management Implementation Group established to respond to the challenges identified in these  development by the National Employment and assessments. Training Authority (FAS) of a rigorous contract- trainer registration system for private providers;  establishment of government-funded, industry -led, training networks (Skillnets).  agreement between social partners, and the Departments’ of Education, and Enterprise on a System Oversight. Between 1980 and 2000 several revised standards-based apprenticeship system. improvements in system oversight for WfD in Ireland enabled its score to move from an emerging level to an  establishment of the National Qualifications established level. Despite the significant progress, in Authority (NQAI) in 1999 to promote the quality of 2000 the system oversight was still somewhat less further education and training and higher advanced than the strategic framework. Strong education and training, and to facilitate life-long mechanisms were in place to ensure efficiency and learning; equity in funding; accreditation standards applied to most educational and vocational training institutions  establishment of a Further Education and Training and providers in receipt of public funding, and some Awards Council (FETAC), within the 1999 National diversified pathways for skills acquisition existed. Qualifications Act; its remit included development Progress in development of standards was assured of an integrated common awards system to through increased devolvement of responsibility from replace previously disparate vocational education the central Dept. of Education 15 to agencies with a and vocational training awards. wider representation of educational provider interests such as the National Council for Education Awards  piloting of a Higher Education Links scheme in 1999 with credit transfer arrangements between post-second level education programs and higher 15 In Ireland Government Ministries are referred to as Departments. level technical programs. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 14 Service Delivery. Ireland’s score for service delivery between the Department of Enterprise and moved from an established level in 1980 to an Employment and the European Commission. advanced level in 2000. By then WfD service delivery systems had measures in place to foster relevance in  allocation of specific resources for a Training of training programs, to incentivize excellence in training Trainers measure within the Human Resources provision and enhance accountability for results. Development program 1994-1999 to foster Relevance in training programs was fostered by improved competence of administrators and significant collaboration between most training instructors. Pedagogical and management institutions and industry and research institutions. development was prioritized. This measure Relevance of training content was assured through facilitated implementation of a national Leadership industry input in both an executive and advisory Development program for second-level school capacity to many publicly-funded institutions, curricula principals and certificate and diploma level courses review committees and working-groups. Targets were in training and education for instructors. explicit, pre-defined and evaluated for all training programs and training providers, with penalties for Reflections on lessons from Ireland non-performance. Accountability for results was Skills development, education and training can provide ensured through monitoring and evaluation, reviews of sustainable competitive advantage at international skills supply and demand, and comprehensive level. Irish experience shows that a strong reporting systems. interventionist and leadership role by government on Good practice initiatives within WfD service delivery the supply side of education and training is of critical systems included: fostering training relevance through importance to economic development. Ireland’s integration of work-experience and industry economic success during the nineties and up to 2007 internships within most technical education, training was achieved as a result of decisions made in a number and vocational preparation programs; and of areas in prior decades, including investment in development of applied research and consultancy education and in the orientation of industrial policies collaboration, particularly between Institutes of with a high priority given to export-led growth. The Technology and industry. Diversity in training quality and quantity of education is acknowledged as provision was promoted through increased use by the one of the key reasons why so many significant foreign National Employment and Training Authority (FAS) of companies chose to locate in Ireland. private trainers, non-state institutions and NGO’s in Effective WfD requires government intervention at a provision of contract-based initial training for school- variety of levels. In Ireland this included: achievement leavers and unemployed people. A range of financial of wide access to second-level education; subsequent (e.g. eligibility to compete for skills training contracts emphasis on technical education at the senior and grants) and non-financial incentives (e.g. quality secondary and tertiary levels; continuous concern with awards, tax emption for training related expenses) social equity, and training provision for unemployed existed to encourage providers to meet WfD standards and other disadvantaged groups; and the development and outcomes. of lifelong learning programs to maintain worker Key landmark reforms in strengthening the WfD competitiveness in knowledge and skills. Effective WfD service delivery system included: also requires policy level partnership between Government ministries; in Ireland this involved  an increased focus on outcomes, efficiency and partnership between the main Labor/Enterprise innovation. Integrated monitoring and reporting ministry and other ministries with responsibility for systems were established by education and education, industry and commerce, and social training institutions to provide routine protection. administrative data, graduation statistics, and placement data for publicly funded programs, Sustained commitment of successive governments to together with systems for routine follow-up social consensus and partnership with employers and surveys of trainees. unions first developed in response to an economic crisis in the mid-1980’s, has also been crucial to  increased focus on evaluation of service delivery. fostering growth and WfD. The social partnership This was facilitated by ESF program-evaluation process, backed by tripartite development agencies, has requirements and the establishment of a specific been effective in facilitating a demand driven ESF Evaluation Unit in 1992 in partnership approach to WfD, and ensuring relevant TVET provision. It also facilitated representation of a wider SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 15 range of stakeholders. A bottom-up skills initiative, particularly through more flexible and part-time course Skillnets, has been effective in encouraging employers provision. The lack of a specific further education to more actively engage in up-skilling and development infrastructure in the nineties, and limited availability of of their employees. Social partnership processes also part-time continuing education and training options assisted in ensuring agreement on WFD policy was also a challenge in responding to changing skill priorities and resource allocation. needs and demands. A need to ensure greater coherence between the vocational education and Mechanisms for horizontal coordination across vocational training system was also recognized and has different sectoral and functional areas of government led to further institutional review and reform post are necessary to effectively integrate WfD as part of 2000. national industrial and enterprise policy. Such mechanisms are particularly needed for monitoring Much of the WfD reform in Ireland was incremental in skills demands and forecasting sectoral and nature, based on lessons from international experience occupational WfD needs, and ensuring that these needs and learning by doing. In responding to changes in the are readily addressed. The establishment of a broad- economic environment strategy tended to be more based and cross-Departmental Expert Group on Future immediately followed by service delivery, with system Skill Needs, together with an implementation oversight issues taking somewhat longer to put in framework was an effective example of this in Ireland. place. Progress in reform of system oversight was held back by a lack of transparent pathways for learners, International advice and funding support has also been and the absence of standard accreditation systems for significant. From the 1970’s OECD and other TVET providers. However, legislation and institutional international experts stressed in their analysis the development in the late 1990’s to enable development relevance of matching the type of education to national of a national qualifications framework laid the development needs. From the late 1980s the analytical foundations for a package of reforms to integrate both rigor of the EU obliged governments in Ireland to vocational and general qualifications; enhance develop greater capacity and technical sophistication in accreditation standards; develop a common awards its policy and planning process. Additionally, the systems; and formalize transfer and progression European Social Fund contributed a large amount of pathways. money in absolute terms and has helped to shape Irish vocational education and training policy and Irish experience also shows that capacity-building for infrastructure. It enabled governments to spend at WfD needs to be supported with measures and significantly higher levels on education and training mechanisms to ensure professional development of than they otherwise would have done. administrators and instructors, and to facilitate collaboration between the education and training The WFD system needed to be adaptive to a fluctuating system and industry. VET teachers and trainers need economic and employment environment between the initial and continuing development in a balance of mid-seventies and 2000. Strong economic growth in the technical-vocational and pedagogical skills, and ability nineties required that the WfD system be flexible and to transfer ‘soft-skills’ such as problem solving and responsive to both the needs of enterprise and its communications to students and trainees. The long changing skill needs, and to the needs of students. This time-frame required to develop and implement required new approaches utilizing cost-efficient effective programs to build the pedagogical capacity of delivery methods such as conversion courses, and technical trainers constrained reform of service introduction of shorter diploma and certificate level delivery. courses in higher level technical institutions. A challenge was to assure quality while also responding WfD policy and strategy post 2000 speedily to skills shortages. Good quality industry placements and work-place internships are an essential Since 2000 there have been several key developments part of a demand-driven TVET system and were that were a natural outcome of earlier WfD policies and introduced into most vocational education and training strategies, as follows: programs. However it was a challenge to ensure consistency in the quality of these placements and Full roll-out and implementation of the National industry-internships at different levels of the TVET Framework of Qualifications has led to a system. comprehensive system of education and training awards which stresses the value of competency-based Institutional capabilities also need to be adapted to learning and qualifications recognition on a national support high levels of participation in life-long learning, and European level for individuals and employers. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 16 The recent transfer of the training function of the National Employment and Training Authority (FAS) to the Department of Education and Skills; and the establishment of the new umbrella organization (Solas) to oversee all initial and further TVET will provide for improved articulation within the education and training system and will significantly contribute to Ireland’s life-long learning and training opportunities. A further feature of the transfer of FAS from Labor to Education is that it will potentially address existing duplication and lack of synergies among Irish training and education institutions, that are also a feature of many systems in other countries. During the last twelve months new initiatives have been implemented in response to the fiscal crisis. Previous experience of partnership between employers and the vocational training and education sectors greatly facilitated the development of two key programs – JobBridge internships for jobseekers without experience on wishing to gain new skills, and Springboard up-skilling courses for job seekers with a previous history of employment that need further qualifications to assist return to work. 16 16 http://www.jobbridge.ie; http://www.springboardcourses.ie SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 17 Detailed Results Dimension 1 | Strategic Framework17 Policy Goal 1 Articulating a Strategic Direction for WfD Policy Goal 2 Prioritizing a Demand-led Approach Policy Goal 3 Strengthening Critical Coordination 17 The composite scores shown in the dial are the same as the categorical ratings shown on the cover of this report. They have been converted using the rules indicated in footnote 4 on page 6. The categorical ratings conform to the standard presentaion of results in the SABER intiative, while the presentation in the dials reveals more detail. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 18 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 18 Dimension 1 | Strategic Framework Policy Goal 1 Articulating a Strategic Direction for WfD 1980 1990 2000 Results of the SABER-WFD benchmarking exercise Development addressed economic prospects and indicate that in respect of Policy Goal 1 Ireland implications for skills as part of the national planning progressed from an emerging level in 1980, to a more process. A need for continued industrial and secondary established level in 1990, and to an advanced level in production sector growth was identified in line with 2000. These summary results reflect the scores for the declining employment in agriculture. Further three underlying Policy Actions highlighting the degree development of training and employment schemes was to which the country prioritized workforce proposed. Workforce development was initially development (WfD) between 1980 and 2000, indicating promoted within a general employment and if priorities were based on analysis of economic manpower policy, following from an OECD prospects and whether such analysis was taken into Recommendation, with the objective of balance in the account in policy implementation. supply and demand for labor. Access to the European Social and Regional Development Funds facilitated  Advocate for WfD as priority increased investment in technical and vocational for economic development education and training. The establishment of a Manpower Consultative Committee in 1979 under the This action scored at an emerging level in 1980 and Ministry of Labor, reflected further priority reached an advanced level by 1990. commitment for workforce development. Overview 1980-2000: Manpower management and Box 2: Key economic and WfD objectives in National development has long been recognized as an important Partnership Programs asset for economic development in Ireland. In 1980, government had an active leadership role and Program for National Recovery 1987-90 centralized the promotion of workforce development • Strengthen indigenous manufacturing with the support of advice and funding from • Continue to attract overseas manufacturing companies international organizations. By 1990, advocacy for WfD • Support service sector growth benefited from a national tripartite partnership • Support pre-employment training building process and agreement. In 2000, advocacy for Program for Economic and Social Progress WfD remained very strong. Priorities were reflected in 1991-93 implementation plans and budget allocations within a • Job creation in manufacturing and international services specific human resource development program, as part • Industrial aids/grants to indigenous industry and overseas of national economic development and in line with companies European financial and policy support frameworks. • Area-based enterprise supports This was further advanced by institutionalized Program for Competetivness and Work consensus and additional tripartite agreements 1994-97 throughout the nineties (Box 2). • Strengthen productive capacity • Sustainable employment and enterprise; market-led 1980: Promotion of workforce development during the growth seventies was facilitated by governments’ active role in • Develop small business, services promoting economic development and a highly • Promote community-based work with work-experience and training centralized state structure together with semi- autonomous state agencies (e.g. Industrial Partnership 2000 1997-2000 Development Authority and National Training • Improved competitiveness Authority). There was also a sensitivity to • Continuous innovation through research and technology recommendations from international institutions, • High-level skills and life-long learning particularly the OECD and the EU (Box 3). An economic • Sectoral initiatives and infrastructure crisis in Ireland in the early 1980’s, in the aftermath of the 1979 oil shock, resulted in reduced industrial 1990: Leadership support for workforce development employment, a significant increase in unemployment, continued during the eighties. A need for social and a return to high levels of emigration. The crisis partnership to ensure effective economic development led to the development of a national economic strategy was acknowledged in the mid-80s and a Program for in which employment and workforce development was National Recovery (1987-1990) was agreed with key prioritized. The 1978-1981 Program for National SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 19 social partners. Political commitment to workforce  Evaluate economic prospects development was sustained in the Program, with and implications for skills agreement to strengthen formal pre-employment training and respond to specific priorities for economic The scores show that a demand-driven strategy for growth. The success of this social contract led to a workforce development had emerged by 1980, was at series of national social partner agreements in Ireland. an established level in 1990 and reached an advanced These agreements gave the trade union movement, level by 2000. employer bodies and other social partners a central and positive role in influencing government policy; while Overview 1980-2000: In 1980, WfD in national plans also reducing risk and introducing predictability in the was informed by economy-wide review and analysis area of remuneration and industrial relations. undertaken by government agencies but very few Progression to institutionalized leadership through policy reforms took place as a consequence of these national consensus that prioritized workforce studies. However by 1990, partly in response to the development was again evident in subsequent economic down-turn of the 1980’s, WfD policy started Programs (Box 2). These included agreement on to be based on more appropriate analysis and a more increasing competitiveness and employment through robust evaluation process. The analysis also became enhanced skills development at all levels, and by broader, focusing on manpower and skill requirements greater labor market adaptability in response to rapid at both national and sectoral level. Surveys of the labor technological and structural change. A continued need force, employers, industry and skill needs contributed for a dual strategy in which training and education to the implementation of policy reform. Growing were focused both on increasing competitiveness and awareness during the 1990’s of the need for a more on reducing unemployment was acknowledged. skilled work force generated increased support for occupational forecasting and the formal establishment Box 3: Examples of Relevant OECD & EU studies of an expert group on skill needs.  Training of Technicians in Ireland (OECD 1964)  Investment in Education in Ireland (OECD 1965) 1980: The 1978-1981 Program for National  Manpower Policy in Ireland (OECD 1974) Development was informed by two OECD studies, an  Economic Survey for Ireland (OECD 1978) economic survey and a review of Manpower Policy in  Improving Youth Employment Opportunities, Policies for Ireland. A NESC 1978 report ‘Development for Full Ireland and Portugal (OECD 1984) Employment’; ESRI medium-term growth forecasts and  Education and Economy in a Changing Society (OECD the annual Department of Finance Economic Review 1989)  Review of National Policies for Education in Ireland and Outlook report; together with labor force surveys (OECD 1991) and quarterly employment data from the CSO were also  Report on Skill Shortages in Europe (IRDAC for EC 1993) part of the evaluation.  White Paper on Growth, Competitiveness and Employment (EU 1994) 1990: Evaluation and analysis broadened during the eighties. Evaluation of necessary conditions required 2000: Recognition of, and advocacy for, the role of WfD for economic development informed the Program for in economic development was further advanced by National Recovery (1987-1990). A need to address the 2000. Training was identified as a key factor in the skills implications of technology, including increased country’s future economic welfare in a major review of demand for higher skilled manpower as part of overall industrial development policy in the early nineties; a economic development was highlighted in a re-direction of resources towards providing training for Government White Paper on Manpower Development those at work and preparing for work was proposed. (1986). This need was informed by a NESC study on Increased priority for workforce development was Manpower Policy issues, and a Sectoral Development reflected in a specific Operational Program for Human Committee review of the technology capacity of Resource Development (HRDOP), under the framework indigenous Irish industry. A need to strengthen of the National Development Plan 1994-1999. This manpower research and forecasting capacity was change was facilitated by the designation of Human reflected in the establishment of a Manpower Research Resources as a priority Structural Fund Intervention of Unit within the Industrial Training Authority. The first the EU Community Support Framework for Ireland. The studies in a series on training needs and manpower objective was to boost human capital by enhancing requirements in specific industry sectors were education and skill levels and to increase the conducted (e.g. in chemicals, and mechanical-electrical employment prospects of the unemployed. engineering) by this Unit in the late 1980’s. This was Institutional advocacy for investment in the facilitated by the availability of specific ESF co-funding development of skills and knowledge of the workforce for such studies. was further reinforced by a subsequent Government 2000: A well-informed demand-driven WfD strategy White Paper on Human Resources Development, and was in place by 2000. The evaluation process was the priorities of the National Competitiveness Council strengthened by the establishment in 1991 of a series with a focus on alleviation of pervasive skill shortages. of Occupational Forecasting studies; continuation of SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 20 industry sector studies, and the establishment of the with an increasing labor force and rising Expert Group on Future Skill Needs. The balance of unemployment were focused primarily on pre- training and education provision in the HRDOP 1994- employment skills training in a wide range of sectors 1999 was informed by occupational forecasts prepared and re-training for redundant workers. By 1990 by ESRI. An Occupational Forecasting Project was policies based on occasional and routine assessments subsequently established by the ESRI, funded by the by government were in place. These addressed an Employment and Training Authority, with ESF co- increasing demand for higher level skills identified in finance. The objective was to provide information on significant policy papers on education and manpower. the changing pattern of occupations and identify Increased emphasis existed on advanced technical variations in skill requirements. This information was training, apprenticeships and on more strategic grant- of value in determining medium-term manpower and aid for training. By 2000 a range of policies to address education strategies and training provision. skills imbalances existed based on occasional and routine assessments by government and by Other studies of the human resource requirements and independent stakeholders. Skills policies initiated training needs in specific industry and service sectors earlier to strengthen productivity and competitiveness were commissioned by the National Employment and in manufacturing and services and to support FDI were Training Authority (e.g. Motor Industry, Clothing, continued but were more sophisticated. The evaluation Textiles, Food and Drink, Print and Paper). of policies and interventions by regular external review Establishment of the advisory Expert Group on Future was institutionalized between 1990 and 2000. Skill Needs in 1997 ensured further coherence in the identification of skill needs and economic trends (Box 1980: Policies to align skills demand and supply during 4). The first two reports published by the Expert Group the seventies were informed by ad-hoc studies and in- by 2000 were of considerable assistance in making house program reviews. The existence of skills informed policy decisions. imbalances, together with a growing labor market and high unemployment prompted policy reforms. High Box 4: Expert Group on Future Skill Needs wages and low private sector involvement also  Government Advisory Group since 1997; considers the contributed to imbalance between supply and demand. Enterprise perspective In response, manpower policy was focused on training  Key objectives: identify sectoral skill needs and advise for skills and knowledge to be used on-the-job in a wide on actions to address them; develop estimating range of sectors e.g. construction, clothing, hotels and techniques to assist in anticipation of future skill needs of the economy; advise on the promotion of catering. Policy also included expansion of the education/continuous training and business links at resources of the National Training Authority to ensure national and local level; improve job-seeker and additional training for apprentices, re-training of school-leavers awareness of sectors with skill redundant workers, and training for unemployed and demands. school-leavers. Promotional activity by the manpower  Membership : 22 members, Chair – private sector agencies to address bias against industrial employment • Companies; Employer and trade bodies (large & was also resourced. Additionally public employment small business associations.) schemes and employment incentives for employers • Trade Union representative were developed. • Higher and further education (VET, universities, adult literacy 1990: Policies to align skills demands and supply, were • Enterprise development agencies based on occasional and some routine assessments by • Guidance Counselors for education public labor market agencies and government by 1990. • Government Depts.- Finance, Education & Skills, An increasing demand for higher level skills was Jobs & Enterprise  Senior Managerial Implementation Group to consider prioritized. For example, a government White Paper on proposals (including Dept. of Finance). Education led to policy change in respect of Regional Source: First Report of EGFSN & www.skillsireland.ie. Technical Colleges in the 1980’s; placing a greater focus on higher-level technician training (Boxes 5 & 6). This policy change also resulted in a wider emphasis on  Develop policies to align vocational and technical curricula and subject-choice at second-level. Likewise, decreasing demand in manual skills demand and supply and low-skill jobs and a growing demand for higher This action moved from emerging levels in 1980, level skills, highlighted in a Manpower Policy White progressing towards established in 1990, and reaching Paper (1985), resulted in a more strategic approach to an advanced level in 2000. industrial training grants and a more standards-based apprenticeship system. An Advisory Committee on Overview 1980-2000: By 1980 a few policies had Management Training was also established and been developed on the basis of occasional assessments agencies with responsibility for workforce to address imbalances between skills demand and development were restructured. Evaluation of policy supply. Policies to address skill shortages, combined effectiveness became more established in the early SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 21 1990’s, in part due to EU funding requirements. Policies Box 6: Regional Technical Colleges - Development and programs were sometimes reviewed for impact Pattern both through in-house studies or commissioned  OECD report on Training of Technicians in Ireland studies; these studies were not generally published. (1964);  Dept. of Education Steering Committee Report on Box 5: Growth in full-time higher education enrolment Technical Education (1967); in Regional Technical Colleges & IOTs 1975-2001  Eight Regional Technical College established by 1980; and a further five by 1990;  Regional Technical Colleges Act (1992) placed the Colleges on a statutory footing;  Initial focus on post-secondary short-cycle ‘middle- level’ courses in science, technology, business, art and design, and apprenticeship education;  Combined second and third level technical and Source: Report of the Council of Directors of IOTs. May 2003. technological education;  Certification provided by National Council for 2000: During the 1990’s policies to align skill demand Education Awards (NCEA); from national and supply were informed by a wider range of certificate/diploma to degree and post-graduate level. assessments with significant input from stakeholders, and a range of policies were implemented to address  Re-designated as Institutes of Technology-IOTs skills imbalances. Multi-skilling and conversion (1998); through amendments to 1992 Act; programs were identified as a cost-effective and flexible consolidated in Institutes of Technology Act (2006). mechanism to address emerging skill needs, Source: Thorn (2011) & www.ioti.ie particularly in the context of the information society and changing technology. Policy was developed to provide grant-aid support for further education and training in specific areas; these included technological skills, marketing, management development, and commercial language skills; up-skilling of employees in smaller and medium-sized companies was specifically targeted. New policies were also developed to strengthen vocational education and training to address skill deficits and labor shortages. These included a more standards-based apprenticeship system and development of traineeships; a new pre- employment program for students who had completed the second level senior cycle and increased vocational orientation in the senior cycle of the second level school system in Ireland. Impact evaluation of policies and interventions was institutionalized between 1990 and 2000 and reports were more publicly available. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 22 Dimension 1 | Strategic Framework Policy Goal 2 Prioritizing a Demand-led Approach 1980 1990 2000 Policy Goal 2 addresses the extent to which national industry had primarily advisory functions in setting workforce development (WfD) priorities are influenced and implementing workforce development priorities by industry and business and the extent to which their facilitated through representation as Board members involvement is fostered. Results of the SABER-WFD on national development agencies such as the benchmarking exercise indicate that in respect of this Industrial Training Authority, the Industrial Policy Goal 2 Ireland progressed from an emerging Development Authority and the Irish Productivity level in 1980, to an established level in 1990 and an Centre. Allied to the establishment of the national advanced level in 2000. This summary result reflects training authority, industry also had advisory functions the scores for the three underlying Policy Actions on a limited number of sectoral training committees. highlighting the degree to which the country promoted Industry input and information sharing was facilitated a demand driven approach to WfD between 1980 and through routine standardized protocols including 2000; if firms’ demands for skills to improve attendance at monthly Board/Committee meetings. productivity were strengthened and whether critical Industry was also represented on the Boards of training challenges in the future supply of skills were addressed. agencies in the primary production sector (agriculture, fishing, forestry) and the catering sector training  Promote demand-driven agency. Inputs into occasional ad-hoc studies approach commissioned through the state-bodies and the main employer body also provided a mechanism for industry This action scored at an emerging level in 1980, had input to determine WfD priorities. become established in 1990, and was at an established level in 2000. 1990: Industry’s function in setting and implementing WfD priorities in both the primary and secondary Overview 1980-2000: In the 1970s industry played an production sector continued as an advisory and advisory role in establishing WfD priorities based on consultative one throughout the 1980’s. However occasional studies and assessments. This was facilitated industry’s role was strengthened through input into a through representation on the boards of national wider range of technical and vocational education development and training agencies and through structures. For example industry was represented on membership of sectoral training committees. Inputs the Boards of higher-level Regional Technical Colleges; into occasional ad-hoc studies commissioned through and on the Board and Panels of the National Council for state bodies and the main employer organization also Educational Awards (NCEA). Industry leaders were also provided opportunities to influence WfD priorities. active participants in efforts to develop a more These advisory activities continued into the 1980’s. standards-based apprenticeship system. Additionally However their range was widened, particularly in industry and service sector leaders, through surveys respect of technical and vocational education through and consultation, provided input into a wider range of board representation. Industry also inputted into a studies and assessments of manpower development wide range of studies of manpower needs during this needs, commissioned by government agencies. time. By 2000 a demand-driven approach to WfD was in place based on routine assessments and supported 2000: A demand-driven approach to WfD was in place by tripartite social partnership agreement. Industry by 2000. The functions of industry and business in leaders were key players in setting WfD and training setting and implementing WfD priorities remained priorities within a national review of Industrial Policy primarily advisory in the early 1990’s, but with a more in 1991 and employer-led training networks were active role in priority setting. Industry leaders were key established in the mid-nineties. The broadly-based players in an Industrial Policy Review Group Expert Group on Future Skills facilitated wider established by government in 1991; the process stakeholder input into WFD priority setting. included review of workforce development and training in Ireland and provided an opportunity for industry to 1980: As Irish employers had traditionally been slow to identify critical supports needed. A move towards engage with training and workforce development; a industry and other key stakeholders having more more interventionist approach by government was executive authority in WfD development was evident in adopted following recommendation from the ILO; this the mid-nineties, in-part facilitated by tripartite social included the establishment of a national Industrial partnership agreements. The main employer body Training Authority in 1967 and a system of training (Irish Business and Employers Council) indicated a supports for new industries. Throughout the 1970s SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 23 desire to have a stronger role in leading and influencing formal review of incentives and services. Funding re- national training policy, rather than have a mainly organization and a more strategic perception of consultative role; and at the same time sought training continued during the 1990’s. The grants additional state support for industrial training. IBEC systems for foreign and indigenous companies were sought to ensure that industry’s interests were fully merged and the Levy-Grant Fund was replaced by a and powerfully represented on sectoral and National Training Fund. More routine reviews of educational bodies in the planning and organization of incentives and services were undertaken during the education and training for industry. Employer-led nineties, followed by implementation of some review sectoral training networks (Skillnets) were recommendations. subsequently established and industry was given a lead role in the newly formed advisory Expert Group on 1980: Incentives and supports for employers to Future Skill Needs in 1998. Surveys of and consultation support skills development were emerging during the with industry, were part of the research process of 1970’s with a limited number of financial incentives in routine studies carried out by the Expert Group. place, aligned to national economic development Additionally a wider range of industry, business and strategies. Key incentive systems were a Levy Grant trade stakeholder associations inputted into WfD System and industrial training grants. The general priorities. purpose of the Levy-Grant scheme was to tax-prime industry into accepting its responsibility for training, Box 7: Skillnets while simultaneously fostering a systematic approach to training and development. The system involved a Key features gross annual payroll levy of 1-1.25% on employers, significant amounts of which could be recovered if • Training and research networks; training was undertaken. Additionally, grant-aid • Enterprise-led support for initial employee training was provided to • Industry and sector specific • Companies pool resources to identify and meet training needs. MNCs as part of policy to encourage foreign direct • Established 1999. investment, through a New Industry Training Grants scheme. A similar but less extensive grant-aid system Activity was provided for training undertaken by indigenous firms; with a specific focus on management and • Employee training and upskilling; supervisory training. Review of the training grants • 40 training networks; 20 research networks; 456 courses; 12,800 system was ad-hoc during the 1970’s. participants (1994-2004); 25% of courses/modules certified; • SME focus: 73% of participating companies have less than 50 employees. 1990: By 1990 a more comprehensive system of incentives and supports was in place, with more Funding attention also to system reviews. During the 1980’s a high proportion of Ireland’s employment and output • Government funded with ESF support. was from the manufacturing sector, with low productivity levels with the exception of those sectors Source: CEDEFOP (Fox & Harper 2003) & www.skillnets.ie where foreign-owned firms predominated. The need for a more strategic approach to grant-aid and supports was recognized to address productivity and  Strengthen firms’ demand competitiveness issues. Some of the recommendations for skills to improve from a review of manpower policy, for amalgamation of productivity the main support schemes, and for supports to be more targeted were acted upon. In addition to training This action scored at a latent level in 1980, had grants and supports for MNCs and indigenous progressed towards an emerging level in 1990, and was manufacturing firms a Training Support Scheme (TSS) at an advanced level in 2000 targeted at employees in Small and Medium-Sized firms Overview 1980-2000: There were a limited number of was established (Box 8). During the 1980’s training financial incentives for employers to support skills functions also became more developed in Irish firms, development by firms. By 1980 these included a Levy- assisted by grant-support for the appointment or Grant scheme to encourage industry to engage in designation of training managers. training, and grant-aid support for initial training by 2000: A system of financial incentives and other MNC’s and some indigenous firms. By 1990 a more supports to strengthen firms’ demand for skills was streamlined system of incentives and services was in further developed by 2000. Following further review, place to provide selective support for skills upgrading. the grants system for both foreign and indigenous Following a review of manpower policy, the main companies was combined into a single Human training support schemes were amalgamated and Resources Grants Program; and the Levy-Grant system supports were targeted to encourage a more strategic was replaced by a National Training Fund. To ensure approach. However there was limited attention to SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 24 greater linkage between WfD and strategic company institutional support for them, triggered by a development, responsibility for WfD advisory and realization of the need to enhance competitiveness, grant-aid support services within indigenous continued into the 1990’s. By 2000 this was facilitated companies was transferred to the development agency through a dedicated Expert Group on future Skill Needs for industry and internationally traded services, (EGFSN), a dedicated tripartite body, responsible for Enterprise Ireland. The Training Support Scheme was assessments of various industries and sectors and a independently reviewed by the ESRI and key new institutional implementation framework, the recommendations to impact on skills and productivity Education and Training Partnership Group. were implemented. 1980: Assessments of future supply of skills in the Box 8: Key elements of Training Support Scheme (TSS) 1970’s were ad hoc; occasional national-level studies 1991-1992 were undertaken by the Industrial Training Authority Aim of the effects of new technology on employment and • encourage and promote training in SMEs; skills in specific sectors and occupational areas (e.g. in micro- electronics and in some craft trades). Critical Sectors challenges identified were an increasing demand for • manufacturing industry, internationally traded services higher level skills in electrical engineering skills for and physical distribution; example, in micro-electronics equipment diagnosis and Priorities for grant-aid electronic computing skills. The increasing potential of • technology, productivity, strategic planning, ICT both as an industry which would provide marketing, languages, management, , information employment and as a potential means of enhancing systems, quality, and finance. existing training and education through the use of new Implementation technologies was highlighted. Recommendations were • proposal based on a business development plan; not explicit in terms of timelines, funding, institutional • funds allocated on first come, first served basis. responsibility and monitorable goals. Subsidies • Graduated, based on number of employees (e.g. less 1990: Assessment of the future supply of skills was than 12 employees 80% subsidy; 12-50 employees – more systematic by 1990. Formal assessments were max. 65% subsidy). undertaken for several industries and sectors focused Participants on challenges at national and regional levels and taking • 1991: 17,232 employees, 1,204 firms account of international developments. Significant • 1992: 22,459 employees, 1,369 firms assessments of future supply of skills were undertaken • 1996: 26,090 employees, 2,818 firms in Chemicals and Clothing sectors in the late 1980’s. In Costs the chemical sectors key challenges were again focused • 1991 - 4.75m £IR on an increasing demand for higher level technical • 1992 - 5.63m £IR. personnel; conversion programs for graduates and • 1996 -5.9 £IR qualified crafts persons were recommended. Additionally a need for management development and Source: ESRI Policy Research Series, Paper No 25. 1995; and FAS supervisory training was identified to raise company Annual Report, 2000. productivity. Skills updating for adaptation to new technology, and increased supervisory and  Address critical challenges management training were identified as priorities in in the future supply of skills the more low-tech clothing sector. A broad implementation framework was specified in these This action moved from emerging in 1980, to advanced studies to address future skill needs; with costs, in 1990 and 2000. timelines and responsible agencies indicated. Key Overview 1980-2000: During the 1970’s occasional recommendations were subsequently acted upon assessments of the effects of new technology on within a year. employment and skills in certain sectors and 2000: By 2000 a dedicated tripartite body had been occupations were made. However, recommendations established to identify and address skills supply arising were rarely explicit in respect of time, funding, challenges (EGFSN) and routine assessments were responsibility or goals. Such assessments were carried out for multiple industries and sectors across becoming more systematic by 1990. Formal studies of the economy, focused on challenges at both the national several sectors and industries, with a focus on and international level. Significant assessments challenges at regional, national and international level, undertaken in the late nineties addressed labor market were completed. Implementation frameworks were supply and challenges in the future supply of skills for specified in these studies to address future skill needs, key growth sectors (e.g. software, chemical and and timelines, funding, and responsibilities were biological sciences, and construction). An urgent need identified. Moreover, key recommendations were acted to increase the supply of graduates in computing was upon within a year. Improvements in assessments and SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 25 identified, at degree, diploma and certificate levels, institutional framework was also established in 1999 to along with a need to expand provision in accelerated ensure a speedy response to the identified challenges; technician programs. Recruitment of professionals this Business, Education and Training Partnership from overseas was also recommended, particularly included an EGFSN implementation group. focused on encouraging returning emigrants. A new SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 26 Dimension 1 | Strategic Framework Policy Goal 3 Strengthening Critical Coordination 1980 1990 2000 Policy Goal 3 addresses the extent to which critical the State Agencies in the manpower area and the coordination for effective workforce development social partners. While manpower priorities such as (WfD) has taken place. Results of the SABER-WFD skill shortages and long-term unemployment were benchmarking exercise indicate that in respect of this addressed by the Committee, its activities were Policy Goal 3 Ireland had reached an established level constrained by being confined to the sphere of by 1980, was still at an established level in 1990 and influence of one Ministry. A subsequent major policy was advanced by 2000. This summary result reflects review concluded that the manpower contribution to the scores for the three underlying Policy Actions policy discussions and decision making in the general highlighting the degree to which the country ensured economic area and in other related fields such as coherence in key strategic WfD priorities; education and social welfare needed to be enhanced. institutionalised the structure of WfD roles and responsibilities; and facilitated communication and 1990: Effective structures for WfD policy interaction among all WfD stakeholders. development and for implementation of priorities continued to be a key focus of deliberations by the  Ensure coherence of key apex leadership during the eighties. The role for the strategic WfD priorities Department of Labor in manpower policy development was subsequently enhanced and existing This action scored at an established level in 1980, manpower agencies were merged into a National continued at an established level in 1990 and was Employment and Training Authority (FAS) in 1988 to scored as advanced by 2000. strengthen coordination and implementation of both reactive public employment services and schemes, and Overview 1980-2000: By 1980 formal tripartite proactive labor market programs. Some improved agency and committee structures enabled the interests coherence on economic and WfD matters was also of the social partners to cohere in the determination of achieved through overlapping social partner strategic WfD priorities. By 1990 coherence of representation on a range of semi-statutory economic and WfD matters was further progressed development agencies. Additionally coherence in WfD formally through institutional restructuring and priorities was strengthened through social partner through overlapping social partner representation in a involvement in studies that identified WfD priorities in range of semi-statutory agencies. There was also some key industry sectors. There was also some expansion expansion of the range of organizations that inputted of the range of organizations that inputted informally informally at a strategic level. By 2000 an enhanced at a strategic level; this included a representative range of formal mechanisms for overseeing organization of professional trainers in industry coordination and implementation of WfD strategies (IITD), vocational education and national youth was in place, and they supported strengthening organizations. structures of WfD policy development, budget allocations, and assessments of future skills demand 2000: By 2000 an enhanced range of formal and supply. mechanisms for overseeing coordination and implementation of WfD strategies was in place, and 1980: Government took the lead in WfD in the they supported strengthening structures of WfD policy seventies; principal responsibility at the apex level development, budget allocations, and assessments of rested with the Dept. of Labor. Tripartite agency and future skills demand and supply. Progress was committee structures enabled social partner interests reflected in active involvement of a wider range of to be reflected in strategic priorities. Key deliberations stakeholders. This was facilitated through the of the apex leadership in the late 1970’s focused on expansion (and renaming) of the Dept. of Labor as a strengthening structures for WfD policy development, Department of Enterprise, with wider functions mechanisms for promoting training in industry, and related to employment, enterprise and trade; more responses to unemployment, particularly youth active participation by the Dept. of Education and unemployment. A lack of cohesion and linkages was education bodies in regard to their role in WfD however acknowledged and a Consultative Committee through technical and vocational education; and was established to facilitate a more comprehensive engagement of the Dept. of Social Welfare in WfD approach to labor market matters. Its membership deliberations relating to unemployment and welfare included representatives of Government Departments, payment matters. Additionally the range of employer SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 27 interests at apex level was expanded with the specific the government and the EU. Similar agencies were involvement of SME representative organizations. This established for training in agriculture, fisheries, expanded framework was facilitated through formal catering and tourism. By 1990 political commitment to structures such as the Monitoring Committees for the streamline the training system and address national Human Resources Development Operational unemployment (then a serious issue) resulted in the Program (HRDOP 1994-1999) (Box 8) and the re-definition of WfD agency roles and responsibilities, Industry and Tourism operational programs. A through establishment of a more multi-functional, widened range of interests was also represented on tripartite, National Employment and Training relevant government-appointed advisory committees Authority (1987). Its responsibilities included the and tasks Groups (e.g. Expert Group on Future Skill implementation and coordination of training and Needs and the Task Force on Life-Long Learning). employment initiatives together with promotional and Specific outcomes of deliberations through these research roles. The Authority was mandated through coordinating mechanisms included transfer of agency legislation to formulate and request required responsibility for training and development within resources from the Dept. of Labor. Roles and indigenous Irish companies; establishment of an responsibilities were further institutionalized by 2000. industry-led training initiative; prioritization of A series of national partnership agreements, together budget allocations for initial and continuing workforce with EU funding, supported the tripartite structure of training; and assessments of future skills demand and the Employment and Training Authority and other supply priorities. enterprise development agencies to discharge their responsibilities in a transparent manner. These Box 9: Human Resources Development Operational agencies in turn supported the Department of Program 1994-1999 Enterprise in workforce strategy development Aim through labor market research and future skills assessment. • To boost human capital by enhancing education and skill level; • To enhance the employment prospects of the unemployed 1980: Defined WfD roles and responsibilities had and persons excluded from the labour market been established by 1980, supported by legislation and adequate resources. Responsibility for policy Key sub-programs implementation was assigned primarily to a range of • Adaptation to industrial change semi-statutory agencies. A national training authority, • Initial education and training established through the Industrial Training Act 1967 • Continuing training for the unemployed under the aegis of the Minister of Labor had • Re-integration of the socially excluded institutional responsibility for WfD; its primary • Improvement of the quality of training provision objective was to raise the skill levels of the Irish Key implementing agencies workforce at all levels in commerce and industry. The Act specified a tripartite governing structure for the • The Dept. of Education authority, and for designated industrial training • Regional Technical Colleges • The Dept. of Labour committees within its remit. The Authority’s functions • National Training and Employment Authority included coordination of stakeholder inputs into national training plans; collection and distribution of Funding 1994-99 WfD information; and formulation of budget requests • Total 3,179,982,251 IR£ from Government and the EU, via the Dept. of Labor. • Total ESF co-funded: 1.948,486,237IR£ Similarly structured agencies had also been established with responsibility for training in agriculture, fisheries, catering and tourism sectors  Institutionalize the under respective government departments. These structure of WfD roles and agencies were well resourced through national and responsibilities European funding support and annual reports were published. The Industrial Development Authority also This action scored at an advanced level in 1980, 1990 had a role in providing grant support for training of and 2000. workers in MNCs starting-up in Ireland. Overview 1980-2000: Roles and responsibilities of 1990: Institutional roles and responsibilities were WfD stakeholders, supported by legislation and reformed by 1990 reflecting political commitment to resources were well defined by 1980. A national streamline the training system and also address industrial training authority was established in the unemployment as part of workforce development late sixties to raise the skill levels of the Irish during the eighties. This was enabled through workforce. Its functions included coordination of enactment of a Labor Services Act, and establishment stakeholder inputs into national training plans, of a multi-functional tripartite National Employment information, and formulating budget requests from SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 28 and Training Authority in 1987. Clear roles and National Training Fund following new legislation that responsibilities of stakeholders as Board Members and replaced previous sectorally-based levies. as members of advisory committees were specified in the Act; however the act did not spell out how policy  Facilitate communication goals were to be achieved. Implementation and and interaction among all coordination of training and employment initiatives was assigned to the agency by the Act, in addition to WfD stakeholders promotional and research roles. The Authority was This action moved from an emerging level in 1980 and mandated to formulate and request necessary 1990 to an established level in 2000 resources to carry out its responsibilities and was adequately resourced in terms of funding and staff. Overview 1980-2000: Over the review period The Act also enabled the agency to provide consulting communication and interaction among WfD and advisory services to similar public institutions stakeholders continued to develop. Two mechanisms internationally. Tripartite structures were also provided most opportunity for interaction in the institutionalized in other key economic development 1970’s: the board of the Industrial Training Authority agencies and in task groups such as a national (through representation from employers, unions and apprenticeship review committee. education) and tripartite training committees in key industrial sectors. A tripartite consultation committee Box 10: Key WfD Government Departments and on manpower planning (1978) also provided a forum implementing bodies for WfD 1960-2000 in Ireland for wider dialogue on priorities. By 1990 the tripartite Boards of the National Employment and Training 1960-1987 Authority and other enterprise development agencies • Dept. of Labour provided a wider forum for dialogue and facilitated • Industrial Training Authority organizational linkages. Consistent with the deepening • Sectoral Training Committees, • National Manpower Service appreciation of the importance of developing skill • Dept. of Industry and Commerce levels and the need for industrial harmony additional • Industrial Development Authority structures became available during the 1990’s. By • Dept. of Education • Vocational Education Committees & Regional technical colleges 2000 these included a training and education partnership forum, a monitoring committee for the 1988-2000 national human resource support programs, the expert group on future skill needs and sectoral • Dept. of Enterprise industry-led skills-training networks. • National Employment and Training Authority • Enterprise Ireland, • Industrial Development Authority 1980: Communication and interaction among relevant • Forfas – Enterprise Policy Development Agency stakeholders in the seventies existed through the • Dept. of Education & Science Board of the Industrial Training Authority; it • Vocational Education Committees and Institutes of Technology contained employer, union representatives, and a representative of the education sector. Tripartite, 2000: Institutionalized roles and responsibilities for statutory Industrial Training Committees in seven key WfD were sustained during the nineties. Ongoing industrial sectors also provided a formal forum for national partnership agreements, and continued dialogue regarding WfD priorities and enabled some access to EU funding ensured that the tripartite institutional and organizational linkages and institutional structure of the Employment and information sharing. The designated sectors were: Training Authority and other enterprise development textiles; clothing and footwear; food, drink and agencies facilitated planning and delivery of extensive tobacco; engineering, construction, printing and paper, resources for skills training, and employment support chemical and allied products. These committees were schemes. These agencies also supported the however somewhat narrowly focused; with prime Department of Enterprise in the formulation and attention to aspects of the Levy Grant system and recommendation of strategy for workforce training schemes and on apprenticeship. A tripartite development; with additional resources provided to consultative committee on manpower planning strengthen the institutional capacity for labor market established in 1978 provided a forum for wider research and future skills assessment. Monitoring and dialogue on priorities. evaluation capacity was also strengthened linked to 1990: The established formal mechanisms continued EU funding requirements. The Employment and to sustain communication and interaction among key Training Authority published a report on its core WfD stakeholders during the 1980’s. This was services and financial statements annually; with facilitated through structures such as the Boards of the electronic access also available. In 2000 the Authority Employment and Training Authority, other enterprise was assigned responsibility for administration of a development agencies, and tripartite Training Committees for both industry and service sectors. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 29 2000: Communication mechanisms were strengthened by 1990 through the existence of a wider range of formal structures established in addition to the relevant tripartite agencies and sectoral training committees. These included a training and education partnership forum; monitoring committees for the national human resource, industry and tourism support programs; the expert group on future skill needs; and sectoral industry-led skills training networks. These fora provided the opportunity for a wider range of stakeholders and sectors to engage in dialogue on WfD priorities, and for more extensive organizational linkages, learning and information sharing. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 30 Detailed Results Dimension 2 | System Oversight18 Policy Goal 4 Diversifying Pathways for Skills Acquisition Policy Goal 5 Ensuring Efficiency and Equity in Funding Policy Goal 6 Assuring Relevant and Reliable Standards 18 The composite scores shown in the dial are the same as the categorical ratings shown on the cover of this report. They have been converted using the rules indicated in footnote 4 on page 6. The categorical ratings conform to the standard presentaion of results in the SABER intiative, while the presentation in the dials reveals more detail. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 31 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 31 Dimension 2 | System Oversight Diversifying Pathways for Skills Policy Goal 4 Acquisition 1980 1990 2000 Policy Goal 4 addresses the extent to which diversified a national points system (i.e. attained in final school pathways for skills acquisition have been established. examination). At the vocational training level trainees Results of the SABER-WfD benchmarking exercise could transfer between programs within training indicate that in respect of this overall Policy Goal centers, and from in-center training programs to Ireland was at an emerging level in 1980, with some community-based training programs, however such further progression by 1990 and was at an established programs were unevenly spread geographically. Such level by 2000. This summary reflects the scores for the transfers were organized on an individual and ad hoc three underlying Policy Actions highlighting the extent basis. No system of credit or incentives operated to to which articulation across levels of instruction was facilitate transfer. fostered; life-long learning was promoted with recognition of prior learning; and policies and 1990: Due to increased provision of vocationally procedures were set for the renewal of publicly- oriented programs within the mainstream secondary funded programs. school system during the eighties there were increased opportunities for transfer between  Foster articulation programs and levels by 1990. However the vocational cycle option was not provided in all secondary schools across levels and and articulation arrangements remained somewhat ad programs hoc. Likewise while options to transfer to different This action moved from emerging in 1980 and 1990 to programs within vocational training centers increased, established in 2000. any arrangements or incentives to facilitate this were ad hoc. However, articulation systems for transfer Overview 1980-2000: In 1980 arrangements for between courses within and across higher level transfer across levels and programs in vocationally technical colleges became somewhat more oriented courses within the second level and post transparent. second level education and training system were ad hoc and uncommon. Such arrangements between 2000: During the nineties further expansion in the programs in higher level regional technical colleges range of vocational options at second level and post- were also ad hoc. By 1990, although opportunities for second level facilitated increased transfer between transfer between programs and levels had increased programs. Likewise expansion of the range of in secondary schools and vocational training centers, vocational training provision by the national they continued to be ad hoc. However articulation employment and training authority increased access systems for transfer between courses within and and transfer options but articulation systems across higher level technical colleges had become remained ad hoc and were not formally established. more transparent. In 2000 the range of options at Policy and procedures on credit had not been second level, post second level and in training centers developed by 2000. However in the late nineties had increased but articulation systems were not developments were underway to establish a Higher formally established. In 2000 a Higher Education Links Education Links Scheme, with credit transfer scheme with credit transfer arrangements was arrangements, to allow learners with NCVA awards to implemented on a limited scale. enter specific programs leading to NCEA awards. This scheme was first implemented on a limited scale in 1980: In the seventies arrangements for transfer 2000. across levels and programs in vocationally oriented programs were ad hoc within the second level and  Promote life-long post-second level system education and training learning system. Students could transfer from more classical This action scored at an emerging level in 1980, academic schools at second level to vocational schools moved to an established level in 1990 and was scored and could transfer back; however such transfer was as advanced by 2000. not the norm. Arrangements for transfer between programs in higher-level (non-university) regional Overview 1980-2000: In 1980 arrangements or technical colleges were also ad hoc; these were in resources to support life-long learning or recognize some cases governed by entry requirements based on prior learning were ad hoc and limited. By 1990 more SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 32 public resources and arrangements were in place to national employment service was developed; this support life-long learning. Career guidance, included information and advisory services within information and advisory services were expanded and mainstream public employment offices, and more a pilot program on recognition of prior learning was intensive employment guidance and counseling implemented. Programs for disadvantaged groups, services provided in disadvantaged communities with broadened eligibility criteria were also increased. through a network of local employment offices. Further resources and arrangements to support life- Additionally one-stop online services were provided long learning existed by 2000, with expanded by the national employment and training authority provision of career guidance, information and from 1998; with information on training programs, advisory services. The national public employment employment schemes, notices of job vacancies and a services were strengthened to provide one-stop online career information data-base. Development of policies information services by 1998. The recognition of prior and procedures on recognition and accreditation of learning was a key focus for the new National prior learning was a key focus of a newly established Qualifications Authority (NQAI) established in 1999. national qualifications authority (NQAI) (Box 10). The Specialist facilities were introduced to strengthen infrastructure and support system for programs for support systems for some disadvantaged persons. disadvantaged persons was also strengthened, within specialist facilities such as Community-based Training 1980: Life-long learning was an emerging concept in Workshops and YouthReach Centers. Lone-parents the seventies. Career guidance was provided in some were additionally identified as a target group in need second-level schools and through public manpower of specific training and supports to access the labor service offices but access to such services was market. Monitoring of the outcomes of all programs variable. No formal arrangements or public resources for disadvantaged groups was institutionalized within were available to promote life-long learning or the mainstream monitoring system. recognition of prior learning. However some vocational preparation and training programs for Box 11: Key Objectives of National Qualifications Act disadvantaged groups had been put in place during the 1999 seventies. These included programs for early school-  Establish and develop standards of knowledge, skill leavers in inner-city areas, women returning to the and competence labor force, and young members of the traveler  Promote the quality of further education and community. training and higher education and training  Facilitate life-long learning 1990: During the eighties a wider range of career  Promote and maintain procedures for access, information and advisory services was provided; this transfer and progression ( to include development of policy on credits and processes for recognition of included a more extensive network of public prior and experiential learning) employment offices with extended information  Promote cooperation between the providers of services. Funding for employment of a full-time career education and training and industry. guidance teacher was extended to all second-level www.nqai.ie schools with 500 or more pupils. A daily television Source: Towards a national framework of qualifications; NQAI, service for job-seekers was initiated by the national 2001. employment agency. In light of high numbers of unemployed, a short duration Job Search program was also implemented nationally by the agency; this  Set policies and included guidance and support in job-seeking. A pilot procedures to renew project on recognition of prior learning was programs implemented, as part of a European initiative; it This action moved from an emerging level in 1980 and focused on developing qualifications for employees in 1990 to an established level in 2000. the retail sector and was supported by industry associations. Programs for disadvantaged groups were Overview 1980-1990: In 1980 the management of expanded to include long-term unemployed, women program offerings was not standardized. Within returning to the labor market and people with a centralized parameters of the Depts. of Education and disability. Such programs were funded annually, with Labor, county based vocational education committees provision for literacy and social and personal skills decided program offerings at second level while such development along with basic technical skills. decisions by the national training authority were made European funding support required attention to in an ad hoc fashion at local training center level. By monitoring and evaluation of labor market outcomes 1990 more explicit requirements were in place. from these programs. Procedures existed for introducing vocational or technical programs at second level, along with criteria 2000: Promotion of life-long learning was further and guidelines for validation of new programs in advanced by 2000. Career guidance services were higher-level technical colleges. Within the national provided in all vocational preparation courses. A SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 33 training agency decisions on the introduction and stakeholders and labor market analysis. Course renewal of programs were made at a regional level Recognition Committees were established, with and were aligned with regional training plans and assessors used to evaluate new course proposals. labor market analysis. Additional standardized Working Groups were also set up to oversee the requirements were established by 2000. The National introduction of new apprenticeship programs and Council for Curriculum and Assessment (NCCA) was national post-secondary vocational education responsible for introducing vocationally oriented programs (e.g. Youthreach). Within the national programs into the second level education system (Box training agency, decisions on the introduction and 11). Explicit standardized requirements for the renewal of programs were made at a regional introduction of publicly funded programs were also in directorate level aligned with regional training plans place for institutes of technology through the NCEA and labor market analysis. However procedures for and applications could be made online. adjustment and closure of publicly funded programs were not generally explicit. 1980: During the 1970’s policies to manage program offerings were not standardized. County-based 2000: By 2000 a newly formed National Council for vocational education committees made decisions on Curriculum and Assessment (NCCA) was responsible program offerings at second level, within a broad for procedures for introduction of new vocationally- framework set by the Dept. of Education. The main oriented programs into the second level education vocational training agency decided on the introduction system. Explicit standardized requirements for of programs in a somewhat ad hoc fashion at local introduction of publicly-funded programs were also in training center level. Policies and procedures for place for higher-level Institutes of Technology through introduction and renewal of programs in third level the NCEA; applications could be made online and were technical colleges were being developed by the vetted by formal Course Recognition Committees. National Council for Educational Awards (NCEA). Industry was represented on these committees. Procedures and guidelines were revised to reflect the 1990: By 1990 explicit and standardized increased shift to modularization and semesterization. requirements for introduction of new vocationally or A system of five-year program reviews was also technically-oriented programs or syllabi at second institutionalized by the NCEA. Piloting and evaluation level had been developed by the Dept. of Education. of new programs (such as traineeships) was also Programs were piloted prior to national roll-out of a standard procedure for the national training authority new program. The NCEA developed criteria and prior to wider introduction. Procedures for closure of guidelines for validation of new programs in higher- publicly funded programs remained less standardized. level regional technical colleges. These included demonstration of capacity to provide the program, evidence of consultation with relevant industry and Box 12: Vocationally-oriented programs introduced into second & post-second level education system 1989-2000. Leaving Cert. Leaving Cert. Applied. Post-Leaving Certificate Vocational Program (LCA) 1995 (PLCs) 1985 (LCVP)1989 • Modified the established • Person-centred course • To provide: appropriate LC with concentration involving a cross- education and training on technical subjects and curricular approach to bridge the gap additional modules with rather than a subject- between school & work; a vocational focus. based structure. and an alternative route • Expanded in 1994 to • Framework consists of a to higher education in broaden the choice of number of linked the Institutes of subjects and strengthen modules grouped under Technology (IOTs). vocational content with 3 headings: general • Student numbers introduction of 3 education; vocational increased from 12,000 in mandatory Link education; vocational 1989/90 to 24,000 in Modules: enterprise preparation. ‘99/2000 education; preparation • Students taking the LCA for work; and work – are not eligible for direct experience. entry into higher education. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 34 Dimension 2 | System Oversight Ensuring Efficiency and Equity in Policy Goal 5 Funding 1980 1990 2000 Results of the SABER-WFD benchmarking exercise resources were also mobilized. Funding allocation indicate that in respect of Policy Goal 5 Ireland included some dedicated funding for vulnerable and progressed from an almost established level in 1980, disadvantaged populations. Reviews of the strategy for to an established level in 1990, and was more resource mobilization and funding allocation were ad advanced by 2000. These summary results reflect the hoc. scores for the three underlying Policy Actions highlighting the degree to which Ireland articulated a 1990: Systematic funding of WfD continued to be funding strategy for workforce development (WfD) determined by government ministries and agencies between 1980 and 2000; whether public funds were during the 1980’s with annual budget appropriations allocated to achieve results with efficiency; and and line item allocations, and increasing levels of whether partnership between WfD authorities and European funding support. National and European stakeholders was fostered. funding allocation strategies included dedicated funding for prioritized fast-growing economic sectors  Articulate funding (e.g. ICT), and for disadvantaged populations (e.g. young unemployed and early school-leavers in strategy disadvantaged urban areas). Social partners had some This action moved from an emerging level in 1980 to input into funding priorities. An additional Levy was an established level in 1990 and 2000. introduced by government to support funding of youth-employment measures. Regional Technical Overview 1980-2000: In 1980 WfD funding strategy Colleges were enabled to generate revenues from was decided by government departments (i.e. research and consultancy services to foster links with Education and Labor) and agencies; it consisted of industry; and fees were charged for part-time and annual budget appropriations and line item evening vocational courses. However these revenues allocations. Some European funding was also made were not a significant source of funding. Evaluation of available. Allocations included some funding for the strategy for WfD resource mobilization and vulnerable and disadvantaged groups. Reviews of funding allocation became somewhat more routine funding mobilization and allocation were ad hoc. from the mid-eighties influenced by European funding Systematic government funding was continued in the requirements. 1980’s and European support was increased. By 1990 national and European funding included dedicated 2000: Systematic funding of WFD continued to be allocations to prioritized fast-growing economic determined by the relevant national Ministries (e.g. sectors and to some disadvantaged populations. Social Education, Enterprise) and public agencies (e.g. partners had some input into establishing these Employment and Training Authority, Enterprise priorities. Influenced by European funding Ireland, Institutes of Technology), and EU support requirements evaluations of resource allocation were requirements. There was increased advice and input becoming routine. By 2000 social partners had more from key social partner stakeholders on funding influence on funding priorities. Performance and priorities and strategies (e.g. consultation with relevance were increasingly used as criteria for employers and unions on funding mechanisms for a allocations and there were more routine evaluations of revised national apprenticeship system). Fees charged them. for part-time training and education courses for adults, and employee-training within public training 1980: During the 1970’s funding of WfD was organizations were increasingly an additional funding determined by government ministries and agencies, resource. Performance and relevance were with annual budget appropriations and line item increasingly used as criteria for funding allocations; allocations. Funding for vocational and technical and there was more routine evaluation of the strategy education was determined by the Dept. of Education, for resource mobilization and funding allocation (e.g. following submissions from second-level schools and mid-term evaluation of the six-year national human regional technical colleges. Funding resources for resources development program), and of the support vocational training were determined by the Dept. of framework for EU structural funds in Ireland. Labor, through annual appropriations to the Industrial Training Authority, and an employer levy/grant scheme for vocational training. European funding SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 35 measures and targets were explicit. Criteria for  Allocate funds to achieve allocating funding were reviewed periodically and efficient results recommendations were implemented in a timely This action scored at an advanced level for the three manner. For example, increased focus on access, periods considered. diversity and equality; and on results and impact was recommended in a mid-term review of the HRD OP. Overview 1980-2000: The allocation of funds for Some immediate re-allocation of resources was WfD over the review period adapted to changing implemented for the remainder of the OP, and the circumstances and priorities and was revised review recommendations were taken into periodically. In 1980 public funding allocation was consideration in the framing of the subsequent 2000- based on explicit criteria aligned with WfD priorities. 2006 HRD OP. The national and European commitment to TVET in the seventies was reflected in support for Box 13: Estimated total training expenditure, 1998 infrastructure investment. By 1990 economic and Euro WfD priorities had shifted to support for HRD, in % (millions) particular for initial training in MNC’s, middle-level Initial vocational training 440 38 technician training and management development in indigenous firms; this was reflected in funding criteria. Publicly funded CVT for 37 3 By 2000 allocation of WfD funds, was based on explicit employees criteria, aligned with national economic priorities and Vocational training for EU requirements. There was an increased emphasis on 140 12 unemployed people efficiency and criteria for allocating funding were reviewed periodically. The HRD Operational Program Other training 97 8 (1993-1999) reflected priorities in the National All publicly funded training 714 Development plan and performance measures and targets were explicit. Enterprise-funded training 432 38 1980: A formal process for allocating public funds for Total 1146 100 WfD was in operation during the 1970’s. Public funding was based on explicit criteria aligned with Source: Fox and McGinn, CEDEFOP (2000). WfD priorities. For example, national and European commitment to TVET was supported by funding for  Foster partnerships infrastructure investment in new regionally-based This action scored at an established level for the three colleges and training centers. Funding for initial periods considered. training of apprentices and school-leavers and for re- training of redundant adults was prioritized in the late Overview 1980-2000: National-level partnership seventies reflecting a difficult economic climate. The between the national training authority and criteria for allocating WfD funding were reviewed stakeholders in business/industry and trade unions periodically. had emerged by 1980. This was facilitated by the authority’s tripartite board structure and related 1990: Economic and WfD policy priorities during the training committees together with overlapping 1980’s shifted from support of infrastructure partnership representation on other development investments to funding for HRD, particularly support agencies and educational bodies. Access to some for initial training of workers in MNCs; middle level public resources enabled the partners to act as technician training, and management development in intermediary agencies in TVET delivery and to provide indigenous Irish firms. Funding criteria for HRD advisory and research services on WfD. By 1990 aligned with WfD priorities were outlined in the 1987- partnership processes had also developed at regional 1993 Industry Operational Program; this included a and local levels and widened to include most WfD systematic review process aligned with European co- stakeholders. Other partnerships had developed to funding. improve apprenticeships, tackle unemployment and 2000: During the nineties allocation of WfD funds disadvantage, and improve WfD information services. continued to be based on explicit criteria aligned with The tripartite structures developed earlier provided a national economic priorities, and EU structural strong basis for further developments in the 1990’s. funding requirements; and with increased emphasis This was clearly reflected by 2000 in the composition on efficiency in resource utilization. Resources and of new bodies such as EGSN, the NQA and FETAC. measures within the national HRD operational Cross-border partnership between WfD stakeholders program (OP) 1993-1999, reflected priorities in the in the Republic of Ireland and Northern Ireland also National Development Plan, and performance facilitated increased access to resources and technical SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 36 knowledge. 1980: National-level partnership between the Box 14: Area-based Partnership Companies Industrial Training Authority, as the key WFD agency, Origin: and stakeholders in business and industry was in Created under the 1990-93 tripartite national agreement. place in the 1970s. This was facilitated by the agency’s Piloted in 12 disadvantaged areas in 1991; number tripartite Boards structure, and related Industry increased to 38 in 1994/1995. Training Committees, as well as overlapping Key features: partnership representation on other economic  Board administration (15-20 members); public, development agencies and educational bodies. Key private and voluntary interests; partner bodies with the Industrial Training Authority  Commitment to a strategic and integrated approach during the seventies included the Confederation of to local development; Irish Industry (CII), the Irish Congress of Trade Unions  Local autonomy in agreeing priorities and (ICTU), the Construction Industry Federation (CIF), allocating funds;  Financial and policy support from national Vocational Education Committees (VECs) and the Irish government and the EU; Management Institute. Access to some public Key responsibilities: resources enabled the partners to act as intermediary  Help the long-term unemployed back into job agencies in TVET delivery, and in provision of market; specialist advisory and research services on aspects of  Assist the development of local economic and WfD. employment projects – particular emphasis on promoting entrepreneurs within low-income 1990: Systematic partnerships continued to be communities, and establishing new businesses in established during the 1980’s; with increased the social economy; partnerships being developed at regional and local  Support more traditional community development levels. Partnership processes widened to include most projects, particularly for vulnerable groups. WfD stakeholders, including the education sector, a broader range of business and trade associations, 2000: Extensive partnership between the main WfD union organizations, and networks of community and agency (the National Employment and Training voluntary interest groups (e.g.. Chambers of Authority) and key stakeholders had been established Commerce, Small Firms Associations, Youth bodies by 2000. Tripartite structures developed during the and Community Training Workshops). Access to seventies and eighties provided a solid foundation for public resources facilitated these stakeholders to this partnership in the nineties. Partnership between contribute with training facilities, technical knowledge the main WfD agency and the education sector was and personnel, and WFD data. Strong partnership was further strengthened; with Institutes of Technology established between the National Employment and providing additional off-the-job apprentice training in Training Authority (FAS) and Regional Technical response to increased demand in the late nineties. Colleges in delivery of a revised apprenticeship The composition of newly- established bodies such as system. Measures to tackle unemployment during the the Expert Group on Future Skill Needs (EGSN), the eighties also increasingly involved partnership National Qualifications Authority (NQAI), and Further between public employment services, the TVET Education and Training Council (FETAC) reflected system, and social welfare services, particularly in partnership between key WFD stakeholders in the disadvantaged communities (Box 14). Additionally education, training and enterprise sectors to address partnership was agreed between the Employment and skills gaps and improve the qualifications system. Training Authority and the Economic and Social Cross-border partnership and cooperation between Research Institute to enable systematic access to labor key WfD stakeholders in Northern Ireland and the market forecasts and other WfD data. Republic of Ireland was also fostered in the late nineties, with national government and European support. This facilitated access to additional resources and technical knowledge. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 37 Dimension 2 | System Oversight Assuring Relevant and Reliable Policy Goal 6 Standards 1980 1990 2000 Policy Goal 6 addresses the extent to which relevant secondary school level through its Curriculum and and reliable standards for assuring quality in Examinations Board. Responsibility at the post- workforce development were in place. Results of the secondary higher (non-university) level was devolved SABER-WfD benchmarking exercise indicate that in to a National Council for Education Awards (NCEA), respect of this Policy Goal Ireland was at an emerging established by the Minister for Education in 1971. level in 1980, with some further progression by 1990 Establishment and maintenance of standards in all and was at an established level by 2000. This courses for which it grants awards was a key priority summary reflects the scores for the three underlying of the NCEA. By 1980 it was primarily responsible for Policy Actions highlighting the extent to which approving courses to be provided by Regional accreditation standards for training providers were Technical Colleges (RTCs) and Colleges of Technology, specified; skills testing and certification systems were and for occasional review of these courses. The strengthened; and the credibility of these Industrial Training Authority (under the Ministry of accreditation and skills certification systems was Labor) as a direct provider of vocational training set assured. standards for its own training courses through a central internal curriculum development department,  Specify accreditation with some consultation with industry, particularly standards with respect to apprenticeship standards. This action was evaluated at an emerging level in 1980 1990: During the 1980’s the NCEA continued to be and 1990 and progress to an established level in 2000. responsible for accreditation of higher (non- university) technical, scientific, and commercial Overview 1980-1990: In 1980 TVET was provided education, primarily Regional Technical Colleges and mainly by public institutions, based on broad Colleges of Technology. In line with the growth and standards established by government departments expansion of these colleges into a wider range of and agencies (e.g. the Curriculum and Examinations disciplines the NCEA established Boards of Studies for Board of the Department of Education (DOE) for all of the courses within its remit; and a framework for secondary school level; the National Council of institutional reviews was also developed. In the late Educational Awards (NCEA) approving and eighties responsibility for accreditation standards at occasionally reviewing courses provided by Regional second level also were devolved, through Technical Colleges and Colleges of Technology). By establishment of a National Council for Curriculum 1990 responsibility for accreditation standards; was and Assessment, with broad-based representation of increasingly devolved to agencies with a wider educational provider interests. There was an representation of educational provider interests, and increasing focus on development of provider frameworks existed for program and institutional standards by the national training authority in the reviews in higher level technical education. Use of eighties. Increased use of private and NGO providers private contract training providers to deliver on a contractual basis resulted in establishment of a vocational training courses also led to increased focus panel of ‘approved’ trainers being established by the on development of standards. By 2000 accreditation national training authority; and the agency’s central standards were well established for public higher level Curriculum division was designated as the technical education; with reviews for all institutions Development and Standards division to reflect this having been initiated by the NCEA. Similarly the change. National Employment and Training Authority introduced a more rigorous contract-trainer 2000: Systems and procedures for regular registration system during the nineties. Enactment of institutional and program reviews for all Institutions legislation in 1999 for a national qualifications of Technology were institutionalized by the NCEA authority together with the establishment of a Further during the nineties; these included increased Education and Training Awards Council (FETAC) were stakeholder representation. The national employment significant innovations towards assuring the quality of and training authority established a more rigorous all future training courses. ‘trainer’ registration system for private contract providers, which included a procedure for renewal. 1980: During the seventies the Dept. of Education was Further momentum in development of provider- directly responsible for accreditation standards at SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 38 standards was evident in the enactment of legislation time-served approach rather than on standards for a national qualifications authority in 1999 together reached. Testing was largely based on theoretical with establishment of a Further Education and knowledge and administered by the national training Training Awards Councils (FETAC). The latter agency authority or other semi-state agencies (e.g. posts and would in the future be responsible for assuring the telegraphs agency, electricity supply board). No quality of all training providers. significant measures were taken to manage the costs of certification. Box 15: Milestones in Provider Accreditation 1990: Competency-based testing was being applied in some craft and semi-skilled service occupations and •National Council for Education Awards (NCEA): responsible for accreditation of regional technical colleges. sectors during the eighties (e.g. welders and fitters in 1980’s-90s transport sector, and tool makers, metal fabrication workers in engineering sector), in tandem with efforts to develop a more standards based apprenticeship system. Testing focused on a mix of theory and •National Employment & Training Authority establishes system for registration of contract training providers. practice, and continued to be directly administered by 1990 the main training providers. However there was some use of independent 3rd parties, like City and Guilds of London for testing and certification of occupations •Higher Education and Training Awards Council (HETAC) takes over functions of NCEA. such as hairdressing and secretarial skills. However •Establishment of National Qualifications Authority of Ireland (NQAI) proposals for a new apprenticeship system (which 1999 •Establishment of Further Education and Training Awards Council included competency-based testing) were not formally (FETAC) agreed until the late eighties and did not become operational until the mid-nineties. 2000: During the nineties the national employment and training authority developed a modularized,  Strengthen skills testing competence-led, standards-based assessment and and certification certification system which operated within a This action scored at a latent level in 1980, moved to framework of ascending skill levels (introductory, an emerging level in 1990 and reached an advanced basic, intermediate and advanced).This competency- level by 2000. based testing system had been established for most designated craft apprenticeships by the mid-nineties Overview 1980-1990: There was a gradual (e.g. metal work, carpentry, plumbing, electricians). improvement in skills testing and certification over Testing focused on a mix of theory and practice with the review period. In 1980 there was only limited competency tests undertaken for both the off-the-job focus on competency-based standards in skills testing. and on-the-job components of apprenticeship training. Apprenticeship training was largely assessed from a Additionally the remit of National Council for time-served perspective. During the 1980’s testing Vocational Awards (NCVA) established in the early was focused on a mix of theory and practice. In nineties included testing and certification systems for addition to the main training providers there was post-second level vocational preparation and training some use of independent parties in its administration. courses. By 1990 competency-based testing was applied to a wider range of craft and semi-skilled service occupations during this time. During the 1990’s  Credibility of testing focused on a mix of theory and practice, and accreditation and of skills included off-the –job and on-the-job components of certification apprenticeship training. By 2000 a standardized This action scored as emerging in 1980 and 1990 and competency-based testing system was in place for reached established in 2000. most craft and semi-skilled occupations. Additionally, independent testing and certification systems for post- Overview 1980-2000: The credibility of skills second level vocational preparation and training accreditation and certification improved over the courses was assured through the established of a review period. The engagement of industry, trade National Council for Vocational Awards (NCVA). associations and other external parties contributed to this as did the availability of external funding. By 1980 1980: Competency based testing was in place for only accreditation standards were in place for the second a limited number of skilled and semi-skilled level education system, public providers of higher occupations during the seventies (e.g. clerical and level technical education and the universities. secretarial skills; telephone technicians). However, formal standards were not explicit for many Apprenticeship training was largely assessed from a SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 39 vocational courses. During the 1980’s standards for level technical courses. Standards were informed by higher level technical education improved. By 1990 industry and industry endorsement for relevant standards were more widely publicized and enforced; qualifications was a key objective. Standardized test testing protocols were specified and random protocols were applied by both the NCEA and the monitoring and audits were carried out. Industry and NCVA, and random audits were undertaken by agency trade associations became more involved in the staff and external examiners. specification of standards. Additional technical assistance, often funded by the ESF, contributed to standards development in technical education and vocational training. By 2000 accreditation standards applied to most educational institutions and providers in receipt of public funding. Winning the endorsement of industry was a key objective in setting standards. 1980: Formal accreditation standards were not mandatory for all WfD providers in the seventies. Accreditations standards were developed and specified by the NCEA for public providers of higher level technical education providers. A similar system was in place for the university sector through a Higher Education Authority (HEA). However, formal standards were not explicitly specified for many vocational training courses or where specified they served mainly as guidelines to help providers improve service delivery. Some technical assistance support for program design, facilities and equipment was provided to Regional Technical Colleges and Vocational Training Centers through national and European funds to facilitate increased standards specification. 1990: During the 1980s standards were more established, particularly for higher level technical education provision, through NCEA accreditation of courses in Regional Technical Colleges; with standards more widely publicized and enforced. Standardized testing protocols were specified and random monitoring and audits were carried out by external examiners.. National industry and trade associations were increasingly involved in the specification of standards, particularly for apprenticeships and technician level programs. Additional technical assistance, particularly through ESF funds, ensured progression in standards -development both in Regional Technical Colleges and vocational training centers. Accreditation was increasingly important for private providers, linked to access to public funds (primarily through for delivery of contract training for the national employment and training agency). 2000: By 2000 accreditation standards applied for the majority of educational sector institutions and providers in receipt of public funding; and considerable progress had been made in development of accreditation standards in the vocational sector. The establishment of a National Council for Vocational Awards (NCVA) in 1991 assured the credibility of accreditation and certification for vocational training, complementing the existing NCEA structure for higher SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 40 Detailed Results Dimension 3 | Service Delivery19 Policy Goal 7 Fostering Relevance in Training Programs Policy Goal 8 Incentivizing Excellence in Training Provision Policy Goal 9 Enhancing Accountability for Results 19 The composite scores shown in the dial are the same as the categorical ratings shown on the cover of this report. They have been converted using the rules indicated in footnote 4 on page 6. The categorical ratings conform to the standard presentaion of results in the SABER intiative, while the presentation in the dials reveals more detail. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 41 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 41 Dimension 3 | Service Delivery Fostering Relevance in Training Policy Goal 7 Programs 1980 1990 2000 The SABER-WfD benchmarking exercise indicates that Some Colleges of Technology and the Industrial on Policy Goal 7 Ireland progressed from an almost Training Authority had formal linkages with research established level in 1980, to an established level in institutions such as the Institute of Research and 1990 and to a more advanced level in 2000. These Standards (IIRS), and the Economic and Social summary results reflect the scores of the three Research Institute (ESRI). Additionally, the Colleges of underlying Policy Actions: the degree to which Technology, RTCs and the Industrial Training linkages among training institutions, industry and Authority were themselves developing internal research were strengthened; the extent to which applied research capacities based on linkage with industry inputted into training design; and whether industry. measures were in place to improve the competence of WfD administrators and instructors. Box 16: Examples of Training and Industry Cooperation 1990  Link training, industry, The National Employment and Training Authority in 1990 provided off-the-job training in electrics and avionics in and research institutions two centers in the mid-west region for an aircraft This action scored at an emerging level in 1980, maintenance company, Shannon Aerospace, continued at an established level in 1990 and was Similarly in the Dublin region the agency cooperated in scored as advanced by 2000. the provision of specific training or electronic assembly for MNCs such as Intel Ltd, Pratt and Whitney, Airmotive Overview 1980-2000: Some formal links between International and Munekata Electronics. training, industry and research institutions were in place by 1980; these primarily facilitated work Source: Annual Report, FAS, 1990. experience placements for some second-level and post-second level students and trainees. Some formal 1990: Enhanced formal linkages existed between linkages between TVET institutions and research most training institutions and industry and research institutions also existed; technical colleges were institutions by 1990. Work-experience placements developing internal research capacities based on their were integral to most pre-employment, skills training connections with industry. By 1990 formal links and and technical education programs at both second and collaboration ensured that work experience post-secondary levels. Applied research undertaken placements were integral to most skills training and by Regional Technical Colleges (RTCs) was supported technical education at secondary and post-secondary by some grant aid from Eolas (National Science and level. Formal linkages also enabled Regional Technical Technology Agency). Collaborations were in place Colleges to strengthen their consultation services for between some RTCs and industry through a Science industry. Similarly, the national training authority and Technology Service Centre Program that provided collaborated with industry, including high-tech consultancy in areas of traditional regional multinationals, in the provision of tailor-made training specializations. Likewise the national training programs. By 2000 there was significant collaboration authority collaborated with industry in provision of between most training institutions and industry and tailor-made training programs (Box 16). research institutions. This included industry internships and work experience placements at most 2000: Linkages established during the eighties and levels of the TVET system and specialist research nineties were further advanced by 2000. There was centers within Institutes of Technology. significant collaboration in the provision of industry internships and work-experience placements at in the 1980: Formal links existed between some training TVET system. Most Institutes of Technology (IOTs) institutions, industry and research institutions by had established specialist Research Centers. The 1980. Work-experience placements for students and newly established roles of Head of Development or trainees on second-level pre-employment programs Research in some IOTs included promotion of external and some specific skills vocational training programs linkage with industry. Collaboration in applied had been established. Some Regional Technical research was fostered through designated grant aid Colleges had appointed designated Industry Liaison from Enterprise Ireland. IOTs also provided bespoke Officers and student placements in industry were a training programs for specific industries within their core part of some higher-level technical programs. regions. The opportunity for instructors, teachers and SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 42 lecturers to undertake sabbatical periods in industry curricula was also formally fostered by the Industrial had been established in Institutes of Technology and Training Authority, through its central curriculum in the National Employment and Training Authority. department, and more informally at local training However the level of take-up was not extensive. Some center level by individual curriculum officers. collaboration between industry and companies also involved industry in supplying the specialist 1990: Industry’s involvement in decision making on equipment to vocational training centers for training training programs priorities and content was further of future employees. strengthened during the eighties. Formal industry input was continued through representation on the Box 17: Examples of Institutes of Technology: Centres Boards of the re-structured National Employment and of Expertise (2000) Training Authority (FAS), and enterprise development  Telecommunications Software Systems Group; agencies. There was strong industry participation and Surface Science Research Centre (Waterford IT); input in the design of a revised apprenticeship system  Polymer Engineering Centre (Athlone IT); from the mid-eighties. Industry experts were also  Centre for Sustainability (Sligo IT); regularly recruited on a contract basis by the  Pharmaceutical Research, Education and Training Development and Standards Unit of FAS to advise on Centre (Tallaght IT) standards for specific occupations. Industry input into  Software Ergonomics Research Centre (Limerick IT) higher- level technical program content was  Molecular Diagnostics and Cell Biology Unit (Cork IT) strengthened through its representation on the Boards  Software Technology Research Centre (Dundalk IT) of Studies and Course Assessor Panels of the National Source: Expert Group Report: Council of Directors of the IoTs Council for Education Awards (NCEA). The (2003). (www.councilofdirectors.ie). Confederation of Irish Industry (CII) was also formally consulted by the Dept. of Education in reviews of  Design training with curriculum for technical subjects at secondary industry inputs education level and for pre-employment courses. This action moved from an established level in 1980 to 2000: Expanded advisory and decision making roles an advanced level in 1990 and 2000. for industry in identifying, prioritizing and designing publicly-funded programs in most training institutions Overview 1980-2000: By 1980 industry had an existed by 2000. The structures for industry advisory and decision-making role in identifying, representation and input that existed for higher level prioritizing, and designing programs in some training technical education programs through the NCEA, were institutions. This was channeled through board also put in place as part of the development of a new membership of the national training authority and its National Council for Vocational Awards (NCVA) in the affiliated sectoral training structures and through early nineties. The main employer body IBEC was input into curriculum design in the RTC’s. By 1990 represented on the Board of a newly established industry’s advisory and decision-making roles were Curriculum and Assessment agency for second level expanded through its representation on enterprise programs (NCCA). By the late nineties industry had a development agencies, the revision of the lead role in the governments advisory Expert Group apprenticeship system, advising on standards for on Future Skill Needs, and in the establishment of specific occupations and reviews of curricula for government funded sectoral training networks - technical subjects at secondary level. Its input into Skillsnets. In addition to membership on national higher-level technical programs was developed agencies, industry inputted into newly established through its representation on the NCEA. By 2000 regional and local partnership bodies, such as County industry’s advisory and decision-making roles in most Enterprise Boards. publicly funded institutions were consolidated. It took a lead role in the Expert Group on Future Skill Needs and in the establishment of government-funded  Improve competence of sectoral training networks; it was also influential at administrators and regional and local level. instructors This action scored as established in 1980 and reached 1980: During the seventies industry involvement in an advanced level in 1990 and 2000. identification and prioritization of programs was facilitated formally through board membership of the Overview 1980-2000: By 1980 the recruitment of National Industrial Training Authority and its affiliated heads of heads of TVET institutions and instructors sectoral training committees. While industry did not was based on minimum academic qualifications, with input significantly at the secondary education level in some requirements for industry experience. Such the seventies, its input was considerably stronger at standards were maintained by 1990 with some the post-secondary level in Regional Technical refinement due to a wider range of courses existing to Colleges. Industry input into the design of program develop teachers and trainers. Also, evaluations of SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 43 professional development were more routine by then program was designed as open/distance learning to – though measures for recruitment evaluation and respond to increased regionalization of staff, and to retention were ad hoc. By 2000 opportunities for in- replace the traditional central in-house instructor- service professional development of administrators training program. Most second-level technical and trainers were considerably expanded. This was teaching and instructor posts were full-time and facilitated through a specific measure for Training of permanent by 1990, and also sixty per cent of higher- Trainers in the Human Resources Program 1994- level RTC posts. Evaluation of professional 1999; pedagogical and management development development was more routine by 1990, while were prioritized. In addition more routine evaluation evaluation of measures for recruitment and retention of the competence of administrators and trainers was were ad hoc. undertaken in the nineties. 2000: Existing recruitment standards were 1980: Recruitment of heads of vocational education maintained during the nineties, with some additional and training organizations and instructors was based refinements in minimum selection standards (e.g. on minimum academic qualifications in 1980. membership of a professional association became an Standards for second-level vocational education additional minimum requirement for RTC Directors; a schools and for higher level Regional Technical higher diploma in education was required for Colleges had been primarily set by the Department of technical teachers in some second-level schools). Education in agreement with education trade unions. Opportunities for in-service professional development The Industrial Training Authority established of administrators and instructors were expanded standards for recruitment of managers of vocational through allocation of funds to a specific Training of training centers and for instructors together with the Trainers Measure in the Human Resources Department of Labor and the relevant trade unions. A Operational Program 1994-1999. minimum of an under-graduate degree or equivalent Box 18: Training of Trainers Measure – Human Resources was required for vocational school principals together Operational Program 1994-1999 with minimal levels of teaching/training experience. Second-level technical subject teachers and Aim instructors were required to have at minimum a • To develop a more coherent approach to ToT across all TVET degree or a national craft diploma. Minimum levels of institutions. industry experience were also specified for RTC ToT Objectives – Dept. of Education. directors, vocational training centers managers, and • To update knowledge, skills and curricula and to develop enterprise; for lecturers/teachers in higher-level technical • To develop management skills; and special intervention techniques; • Improve career guidance/employment links and counselling skills. colleges. A new training college for teachers of technical subjects at second level was established in ToT objectives – Training and Employment Authority 1979, Thomond College of Education. In-service • Ensure all trainers have required level of technical skills; professional development programs for second-level • Ensure all trainers are regularly up-dated in the pedagogic principles and techniques required to ensure the personal development of their teachers were organized centrally by the Dept. of trainees. Education and by a Staff Development Unit in the Indicators Industrial Training Authority. Most WfD managers and staff were recruited on the basis of standard public- • Trainer technology; technical training, training in management, guidance and counseling; certification. service permanent contracts, with salary packages aligned to industry levels. However some teaching Targets 1994-1999 posts were on a contract or temporary basis (e.g. • Dept. of Education: 345,000 participant training hours • Employment & Training Authority: throughput 3000 persons. instructors in community-based training centers; some RTC lecturers/teachers). Budget allocation 1994-1999 • 55.5 IR£m. 1990: Standards for recruitment and professional development of WfD administrators and instructors Source: OP for HRD 1994-1999. were maintained and refined during the eighties. Short-courses and part-time programs were provided The measure prioritized pedagogical and management by Thomond College of Education in addition to full- development. Within this framework, a Leadership time degree programs. An in-career Development Unit Development Program for second-level school was established in the Department of Education; and principals was developed by the Dept. of Education; departmental procedures stipulated a requirement for vocational training center managers attended gender balance on selection boards. The national development courses in the Irish Management training authority piloted a foundation-level program Institute or Institute of Public Administration; and in Training and Continuing Education in conjunction certificate and diploma level courses in training and with Maynooth University in 1987 to improve the education for instructors were developed by the pedagogical competence of new craft instructors. This National Employment and Training Authority in SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 44 conjunction with University College Galway. To ensure More routine evaluation of competency development coherence in staff development the Institutes of of administrators and instructors was undertaken Technology established a Training of Trainers steering within the framework of European funding support; a committee, and appointed a National Coordinator. thematic report on Training of Trainers was published Administrators and instructors within the public TVET in 1994. system were incentivized to undertake further development through awards of salary increments following achievement of an additional qualification. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 45 Dimension 3 | Service Delivery Incentivizing Excellence in Training Policy Goal 8 Provision 1980 1990 2000 The SABER-WfD benchmarking exercise indicates that instructor training were the main types of available in respect of Policy Goal 8 Ireland progressed from an support services; these were availed of primarily by emerging level in 1980, to more established levels in community-based NGOs. 1990 and 2000. These summary results reflect the scores of the three underlying Policy Actions 1990: Non-state training provision expanded during highlighting the degree to which the country the eighties. In response to a need for skills training promoted diversity in training provision; the extent to provision for an increased number of unemployed which private providers were incentivised to meet people during the mid-eighties, the National workforce development (WfD) standards; and how Employment and Training Authority actively public training institutions were motivated to respond promoted involvement of contract private providers in to the demand for skills. delivery, primarily in areas not served by the authority’s own network of training centers. NGOs also  Promote diversity in continued to be providers of training for disadvantaged clients groups on behalf of the national training provision authority. Eligibility to compete for government- This action moved from an emerging level in 1980 to funded training contracts thus became an increasingly an established level in 1990 and 2000. important incentive in the eighties for private Overview 1980-2000: In 1980 diversity in training companies and not-for-profit institutions. Access to provision was limited as non-state provision was support services continued also to be an incentive for underdeveloped. It consisted of some community- NGO providers during the eighties. based NGO’s, private training providers, and private 2000: A diverse range of non-state providers were secretarial and commercial training colleges. Access to involved in training delivery by 2000. This included government funding for training and support services, NGO’s, private training firms, and non-profit through the national training authority, was the main institutions (e.g. Irish Management Institute and incentive available. By 1990 training policies National College of Industrial Relations). Private increasingly facilitated the involvement of non-state companies provided initial training for job-seekers in providers; with training being offered by private a wider range of occupational and skill areas, including providers and NGO’s. By 2000 there was a more training in IT, commerce and business, language diverse mix of non-state providers in Ireland – training and beauty therapy. Additionally there was including NGO’s and for-profit and non-profit increased non-state provision in continuing training providers. Equal certification of training by state and and development for employees. Incentives were in non-state providers, facilitated by a joint agreement place to facilitate the involvement of non-state between City and Guilds of London and the National providers; these included eligibility to compete for Employment and Training Authority, was an incentive government-funded training contracts and access to for non-state providers. Incentives were more support services. Additionally equal recognition of routinely reviewed by then also. certificates became an incentive during the nineties 1980: There was very limited provision non-state for non-state providers, facilitated through a joint provision within the vocational education or training agreement between City & Guilds of London and the system in the seventies. In some urban areas National Employment and Training Authority. community-based NGOs were emerging as providers Incentives were more routinely reviewed by 2000, and of training services for disadvantaged young people. a major review on the scope for increased use of a Some non-state provision existed at post-secondary market-driven approach in delivery of human level, primarily private secretarial and commercial resources development measures was undertaken by training colleges, and private providers of return-to- the Department of Enterprise in 1999. work training courses for women. Limited incentives were in place to foster non-state provision of training. The main incentive was eligibility to access government funding for training and support services from the Industrial Training Authority. Information and advice on training curriculum, and support with SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 46 tax exemption (VAT) for training-related expenses continued to be the main financial incentives. The  Incentivize private main non-financial incentive was authorization to providers to meet WfD issue government recognized certificates. Additionally standards non-state training providers could seek to obtain a This action scored at an emerging level in 1980, quality award ‘Excellence through People’ promoted continued at an emerging level in 1990 and was by the National Employment and Training Authority; scored as established by 2000. this focused on striving for excellence through training, development and involvement of employees. Overview 1980-2000: Incentives for private Occasional and routine evaluations were carried out to providers to meet Wfd standards developed gradually encourage adherence to standards. These included a over the review period. In 1980 the principal incentive training monitoring system for contracted training for NGO’s, the predominant non-state provider was implemented by the National Employment and financial, in terms of access to government funding. No Training Authority, and evaluation within the formal review system was then in operation. By 1990 framework of European funding support. The financial incentives still predominated. Eligibility to Authority had also developed a formal review system compete for skills-training contracts and training by 2000 to assure training providers continued grants, together with tax exemption for training adherence to WfD standards; non-state providers related expenses remained the principal incentives for were required to re-apply at fixed periods for non-state providers to comply with WfD standards. By retention on an internal Trainer Registration System. then formal systems were however in place to monitor and review contracted training, and included the  Motivate public penalty of fee retention for non-adherence to institutions to respond to standards. By 2000 both financial and non-financial demand for skills incentives existed. Non-financial incentives for private This action scored at an emerging level in 1980 and providers included giving them authority to issue moved to an established level in 1990 and 2000. government recognized certificates. Quality recognition awards, from the National Employment Overview 1980-2000: By 1980 public TVET and Training Authority, were also available to institutions were expected to meet target participation providers who met the required standards. Training and graduation rates, and placement rates in respect evaluation was also by then well established; this of skills training. . There were few incentives in place included a monitoring system for contracted training then to ensure that such targets were demand driven. and evaluation within the framework of European By 1990 the institutions were expect to meet a wider funding support. range of targets; this included some measurement of trainee and employer satisfaction levels and 1980: As there was very little non-state training progression levels from foundation programs. Some provision in the seventies, there was little use of incentives existed also to encourage institutions to incentives to encourage such providers to meet WfD respond to demand for skills, including public standards. The main incentive for NGOs, as the key recognition and increased funding for well performing non-state providers, was financial in terms of programs. By 2000 targets were explicit, pre-defined, eligibility to access government funding for provision monitored and evaluated for all programs within the of training in community-based workshop settings, national human resource development system. but no formal review system existed. Existing incentives were sustained and penalties 1990: During the eighties incentives for non-state introduced; with poor performance addressed through providers to meet WfD standards were also primarily reduced funding and corrective measures. financial, and related to eligibility to compete for skills 1980: During the seventies participation and training contracts and for training grants operated by graduation rates were the main targets for public the national training authority. Additionally tax- vocational education institutions. Additionally exemption (VAT) for training related expenses was an placement targets existed for skills programs in public incentive. By 1990 formal systems were in place for vocational training centers. Few incentives were in on-going monitoring and review of contracted- place by 1980 to ensure such targets were demand- training; this included fee-retention for non-adherence driven; however there was some public recognition of to standards. well-performing training centers, vocational schools, 2000: Both financial and non-financial incentive and higher level technical colleges. systems existed by 2000 to encourage non-state 1990: By 1990 vocational training and education providers to meet WfD standards. Eligibility to institutions were expected to meet a wider range of compete for skills training contracts and grants, and WfD outcomes; trainee and employer satisfaction SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 47 levels were monitored through routine studies in addition to participation, graduation and job- placement outcomes. Targets for progression to Box 20: Example of Key Performance Indicators and further training or education also existed in respect of results for selected training programs 2000 (%) foundation-level programs. Some incentives were in 80 place to ensure that institutions responded to the 70 demand for skills; these included public recognition of 60 well-performing institutions, and increase in funding 50 for well-performing programs. 40 30 Box 19: General Measure Activity and Impact 20 Indicators in HRD OP 1994-1999 10 0 Number women early school-leavers Placed Certification New start Completions • Throughput; carry-over; total participants; start-ups. Specific skills training Community training All FAS training programs Duration Source: National Employment and Training Authority (FAS) • Course duration in hours by theory, practice/work- Annual Report 2000. experience; counseling/guidance and jobsearch Certification • Extent of achievement of nationally recognized certification Follow-up • Placement, relevant placement and progression. Gender • General indicators disaggregated by gender. Source: OP for HRD 1994-1999. 2000: More explicit pre-defined targets for graduation, job placement and certification existed by 2000 for all programs within the national human resources development program. Additionally systems were in place for routine evaluation of trainee and employer satisfaction levels. Routine monitoring and evaluation mechanisms had been developed to ensure that institutions responded effectively to the demand for skills, with performance based incentives and penalties. For example, based on a mid-term evaluation, decisions on re-allocation of expenditure within the 1994-1999 national HRD program were adjusted taking account taken of well-performing programs. Similarly some measures to address poor performance were in place. These included increased support to address weaknesses; for example changes were made to the design and structure of a Job Initiative program, following independent review of its performance in 1999. At a local level skills-training programs that were found on a consistent basis to have poor job-placement outcomes were closed. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 48 Dimension 3 | Service Delivery Policy Goal 9 Enhancing Accountability for Results 1980 1990 2000 Results of the SABER WfD benchmarking exercise ongoing series of commissioned sectoral skills needs indicate that in respect of Policy Goal 9 Ireland was at studies was established with ESF co-financing. an almost established level in 1980, had reached an Additionally regional and local level reviews established level by 1990 and had advanced further by undertaken by the national training authority. The 2000. These summary results reflect the scores for the process was further advanced by the establishment by three underlying Policy Actions highlighting the extent government in the late nineties of an Expert Group on to which monitoring and evaluation was strengthened, Future skill Needs, with a specific focus on growth reporting requirements were specified for training industries and sectors; this expert group was located institutions; and focus on outcomes, efficiency and within the national enterprise policy development innovation had increased. agency (Forfas) and was supported by a specific Skills and Labor Market Research Unit.  Strengthen monitoring and evaluation  Specify reporting requirements by training This action scored as advanced in 1980, 1990 and 2000. institutions Overview 1980-2000: Monitoring and evaluation This action moved from an established level in 1980 (M&E) was established by 1980 and advanced over the and 1990 to an advanced level in 2000. review period. In 1980 broad-based reviews of skills supply and demand were implemented and overviews Overview 1980-2000: Reporting requirements for of WfD data were published by government training institutions were in place by 1980 and were departments and public agencies. By 1990 national extended over the review period. Administrative data, public data sources were complemented by European graduation statistics, and placement data in respect of and international data, and initial studies of sectoral publicly-funded training, collected through skills demand and supply were commissioned. By 2000 management information systems, were reported to sectoral skills studies were routine, and regional and the Departments of Education and Labor. By 1990 local reviews, were also contributing to M&E. The reporting requirements were widened and applied to process was further strengthened by the establishment both public and non-state training providers in receipt of an Expert Group on Future Skills Needs. of exchequer and European funds. Limited incentives and penalties were in place to foster compliance with 1980: Routine broad-based review of skills demand reporting requirements; non-compliance could result in and supply based on analysis of labor force and fee retention. By 2000 systems for reporting a more employment data from the Central Statistics Office was comprehensive list of data were in place; including in place by 1980. An overview of WfD data was routine follow-up surveys of trainees and graduates. available in published reports of government Measures to foster compliance were strengthened; departments and public agencies. These included the technical assistance existed and the possibility of de- Department of Finance, Department of Labor, ESRI, registration together with fee retention were penalties NESC, National Science Council, and Industrial Training for non-compliance by contract trainers. Authority. 1980: Public training providers were required to 1990: Routine monitoring and evaluation of skills collect, maintain and submit a range of data through an demand and supply by public agencies continued and integrated management information system by 1980. was strengthened by 1990. Existing national public Administrative data, graduation statistics, and data sources were bolstered by European and placement data was sought by the Industrial Training international data (e.g. EuroStat and OECD). During the Authority and the National Council for Education late eighties initial studies of sectoral skills demand and Awards in respect of publicly-funded training supply were undertaken internally by the National provision; such data was reported to the Departments Employment and Training authority (FAS). of Labor and Education. The data provided access to 2000: Skills demand and supply continued to be institution-level information on all providers. Providers monitored and evaluated through routine surveys and were officially notified if timely and reliable data was specially commissioned studies during the nineties. An not submitted. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 49 1990: A mandated requirement to collect, maintain and on evaluating high expenditure programs. A specific submit a comprehensive list of data through an ESF Program Evaluation Unit was established. M&E integrated management information system continued projects were now used to identify good practice in during the eighties. This applied to both public and addition to improving training and prioritizing funding. non-state training providers in receipt of exchequer By 2000 routine M&E of several key aspects of training and European funds and enabled both institutional- services was in place with results used for a wide level and customized reports to be accessed. Wage- variety of purposes. data was additionally sought in respect of graduates from higher-level training programs. Annual or bi- 1980: Occasional monitoring and evaluation of limited annual follow-up surveys were the main methods used aspects of training services was undertaken during the to collect employment and wage data. Technical seventies. Monitoring was primarily based on analysis assistance was provided to contracted non-state of administrative data. Mechanisms for undertaking providers to facilitate submission of reliable data and follow-up surveys of trainees had been piloted by the non-compliance with reporting requirements by Industrial Training Authority and the NCEA by 1980. contracted non-state providers could result in fee- Results were used to provide feedback to institutions retention. and to inform decisions on prioritizing funding allocations to programs. Evaluation of service delivery 2000: Submission of comprehensive data continued to focused primarily on review of pilot or experimental be a mandated requirement during the nineties for activity: for example reviews of two Dept. of Labor both public and non-state training providers in receipt Initiatives, a national Work Experience Program for of exchequer and European funds. Integrated young unemployed and a pilot Schools-Industry Links management information systems within the National Program. Likewise the Industrial Training Authority Employment and Training Authority (FAS), the commenced a review of contracted external training National Council for Education Awards (NCEA) and the delivery, to facilitate comparison with training directly Department of Education enabled access to institution- provided by the agency. By 1980 some information on level information and the preparation of customized labor market outcomes of graduates was available from reports. Protocols were established to enable key user training institutions. agencies to electronically access the data systems. Systems for routine follow-up surveys of school-leavers 1990: By 1990 arrangements for monitoring and and of trainees were put in place with the ESRI on evaluation of aspects of the delivery of training services behalf of the Department of Education and National had been strengthened; this was in part due to an Employment and Training Authority; while the NCEA increased focus on outcomes and efficiency within undertook follow-up first-destination studies of European funding programs. A wider range of methods graduates from Institutes of Technology. Timely were used to monitor and evaluate the delivery of submission of data was fostered through technical training services; these included: routine assessment of support; fee-retention and possible de-listing from an institutional performance and analysis, collection of integral trainer register were penalties for non- specialized data (e.g. skills measurement) and analysis compliance by contract trainers. of selected issues using various methodologies (e.g. client surveys, cost-benefit analysis), along with  Increase focus on program reviews. There was increased focus on evaluation of high-expenditure programs in the late outcomes, efficiency and eighties; independent evaluations were commissioned innovation on two such programs the Community Training This action started off as emerging in 1980 and reached Workshops (1986) and the Social Employment a level of established in 1990 and 2000. Program (1988). Monitoring and evaluation results continued to be used primarily to provide feedback to Overview 1980-2000: A focus on outcomes, efficiency institutions and inform funding allocations to and innovation developed over the review period. institutions. Information on the labor market outcomes Occasional M&E of some aspects of training services of graduates was publicly available, primarily through was undertaken by 1980 to provide feedback to agency annual reports and reports on follow-up studies institutions and prioritize funding allocations. of school-leavers, and TVET trainees and graduates. Evaluation of service delivery focused primarily on pilot or experimental activity, or efficiency comparison. 2000: Routine monitoring and evaluation of several Limited information on labor market outcomes for key aspects of training services was in place by 2000. graduates was available from training institutions. M&E The range of M&E activities established by individual activities were stronger by 1990, partly because of an TVET agencies in the eighties was continued with the increased focus on outcomes and efficiencies within ESRI increasingly commissioned to undertaken impact European funding programs. A wider range of M&E evaluation studies on training and education. methods were used and there was an increased focus Additionally, a specific ESF Program Evaluation Unit SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 50 was established in the early nineties in partnership particular focus of evaluations of pilot projects funded with the Department of Enterprise and Employment; its by innovative European Community Initiatives such as function was to evaluate the effectiveness of all HRD the EUROFORM, HORIZON, INTEGRA and NOW interventions supported by the European Social Fund. programs. By 2000 information on labor market The Unit carried out individual program evaluations, outcomes of graduates was more publicly available for thematic evaluations across agencies and programs, all institutions, with results of follow-up studies and surveys on various groups within the labor market. published jointly by the ESRI and the Employment & Recording systems and performance indicators were Training Authority, and data on the first destinations of specifically evaluated by the unit in the mid-nineties. school-leavers and sub-degree level graduates While M&E results continued to be used to provide published by the education sector (ESRI, NCEA and feedback to agencies, to improve training quality and to HEA). prioritize funding allocations, they were further used to identify good practices in service delivery. This was a Box 21: Key Evaluation Reports and Topics of ESF Program Evaluation Unit 1992-1999 • Advanced Technical Skills Program • Industrial Restructuring Program 1992 • Middle Level Technician and Higher Technical and Business Skills Programs 1993 • Certification Systems • Training of Trainers • Impact Indicators 1994 • Impact of Evaluations • Training and Employment Grants 1995 • Labour Market Services 1996 • Training for Agriculture and Rural Development 1997 • Responsiveness of ESF supported education and training to Skill Needs of Industry 1998 • Standards Based Apprenticeship and Traineeships • Progression and the ESF 1999 • Challenges for Human Resources Development 2000- 2006 2000 Source: ESF Program Evaluation Unit. 2000. (www.esf.ie). SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 51 Annex 1 | Analytical Framework of SABER-WfD Dimension 1: Strategic Framework Aligning WfD to national goals for productivity, growth and poverty reduction Policy Goal 1: Articulating a strategic direction for WfD Policy Action 1: Advocate for WfD as a priority for economic development Policy Action 2: Evaluate economic prospects and its implications for skills Policy Action 3: Develop policies to align skills demand and supply Policy Goal 2: Prioritizing a demand-led approach to WfD Policy Action 4: Promote demand-driven approach Policy Action 5: Strengthen firms’ demand for skills to improve productivity Policy Action 6: Address critical challenges in the future supply of skills Policy Goal 3: Strengthen critical coordination Policy Action 7: Ensure coherence of key strategic WfD priorities Policy Action 8: Institutionalize WfD roles and responsibilities Policy Action 9: Facilitate interaction among all WfD stakeholders Dimension 2: System Oversight Governing the system to achieve desired goals Policy Goal 4: Diversifying pathways for skills acquisition Policy Action 10: Foster articulation across levels and programs Policy Action 11: Promote life-long learning Policy Action 12: Set policies and procedures to renew programs Policy Goal 5: Ensuring efficiency and equity in funding Policy Action 13: Articulate funding strategy Policy Action 14: Allocate funds to achieve efficient results Policy Action 15: Foster partnerships Policy Goal 6: Assuring relevant and reliable standards Policy Action 16: Specify accreditation standards Policy Action 17: Strengthen skills testing and certification Policy Action 18: Assure credibility of accreditation and of skills certification Dimension 3: Service Delivery Ensuring tangible results on the ground Policy Goal 7: Fostering relevance in training programs Policy Action 19: Link training, industry, and research institutions Policy Action 20: Design training with industry inputs Policy Action 21: Improve competence of administrators and instructors Policy Goal 8: Incentivizing excellence in training provision Policy Action 22: Promote diversity in training provision Policy Action 23: Incentivize private providers to meet WfD standards Policy Action 24: Motivate public training institutions to respond to demand for skills Policy Goal 9: Enhancing accountability for results Policy Action 25: Strengthen monitoring and evaluation Policy Action 26: Specify reporting requirements by training institution Policy Action 27: Increase focus on outcomes, efficiency and innovation SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 52 Annex 2 | Benchmarking Scores Dimension 1980 1990 2000 Driver 1980 1990 2000 Policy Action 1980 1990 2000 Advocate for WfD as priority for economic 2.5 3.5 4.0 development Articulating a Strategic 2.3 3.1 3.7 Evaluate economic prospects for skills 2.0 3.2 3.8 Direction Develop policies to align skills demand and 2.3 2.7 3.3 supply Promote a demand-driven approach to WfD 2.0 2.7 3.0 Prioritizing Strategic a Demand- Strengthen firms' demand for skills to 2.4 3.0 3.6 1.9 2.9 3.4 1.7 2.7 3.3 Framework led improve productivity Approach Address critical challenges in the future 2.0 3.3 4.0 supply of skills Ensure coherence of key strategic WfD 2.7 3.0 4.0 Strengtheni priorities ng Critical Institutionalize the structure of WfD roles and 2.9 3.1 3.7 3.7 4.0 4.0 Coordinatio responsibilities n Facilitate communication and interaction 2.3 2.3 3.0 among all WfD stakeholders Foster articulation across levels and programs 1.8 2.3 2.5 Diversifying Pathways 1.9 2.5 3.0 Promote life-long learning 2.0 2.8 3.5 for Skills Acquisition Set policies and procedures to renew 2.0 2.5 3.0 programs Articulate funding strategy 2.3 2.6 3.0 Ensuring System Efficiency 2.2 2.6 3.1 2.8 2.9 3.2 Allocate funds to achieve efficient results 3.3 3.3 3.7 Oversight and Equity in Funding Foster partnerships 2.8 2.8 3.0 Specify accreditation standards 1.8 1.9 2.8 Assuring Relevant 1.8 2.2 2.9 Strengthen skills testing and certification 1.7 2.3 3.3 and reliable Standards Assure credibility of accreditation and of skills 2.1 2.4 2.7 testing Link training providers, industry and research 2.5 3.0 3.9 Fostering institutions Relevance Integrate industry inputs into the design of 2.8 3.1 3.7 3.0 3.1 3.8 in Training training programs Programs Enhance competence of WfD administrators 3.0 3.3 3.4 and instructors Promote diversity in training provision 2.5 3.0 3.1 Incentivizin Service g Excellence Incentivize private providers to meet WfD 2.7 3.0 3.4 2.3 2.8 3.1 2.2 2.3 3.2 Delivery in Training standards Provision Motivate public training institutions to 2.3 2.9 3.2 respond to the demand for skills Strengthen the WfD monitoring and 3.3 3.3 3.7 Enhancing evaluation system Accountabil Specify reporting requirements by training 2.8 3.1 3.3 2.9 3.2 3.3 ity for institutions Results Increase focus on outcomes, efficiency and 2.3 2.7 3.0 innovation in service delivery SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 53 Annex 3 | Acronyms AnCo Industrial Training Authority (An Chomhairle ICTU Irish Congress of Trade Unions Oiliuna) CCI Chambers of Commerce of Ireland IDA Industrial Development Authority CE Community Employment ILO International Labour Office CEDEFOP European Centre for the Development of IOT/IT Institute of Technology Vocational Training CII Confederation of Irish Industry LCA Applied Leaving Certificate CSF Community Support Framework LCVP Leaving Certificate Vocational Program CSO Central Statistics Office LES Local Employment Service CTW Community Training Workshop MNC Multi-National Corporation DEE Department of Enterprise & Employment NCC National Competitiveness Council DES Department of Education and Science NCCA National Council for Curriculum and Assessment DETE Department of Enterprise, Trade and NCEA National Council for Education Awards Employment DOL Department of Labor NCVA National Council for Vocational Awards DSFA Department of Social and Family Affairs NDP National Development Plan EGFSN Expert Group on Future Skill Needs NGO Non-governmental organization EI Enterprise Ireland NES National Employment Service ESF European Social Fund NESC National Economic and Social Council ESRI Economic and Social Research Institute NQAI National Qualifications Authority of Ireland Eurostat Statistical Office of the European Union OECD Organization for Economic Cooperation and Development FAS Employment and Training Authority (An Foras PLC Post Leaving Certificate Aiseanna Saothair) Forfas National policy advisory Board for enterprise, RTC Regional Technical College trade, science and technology FETAC Further Education Awards Council SFA Small Firms Association HETAC Higher Education and Training Awards Council SST Specific skills training HRD Human Resources Development TOT Training of Trainers HRDOP Human Resources Development Operational TVET Technical and Vocational Education and Program Training GDP Gross Domestic Product VEC Vocational Education Committee HEA Higher Education Authority VET Vocational Education and Training IBEC Irish Business and Employers Confederation VTOS Vocational Training Opportunities Scheme ICT Information Communications Technology WfD Workforce Development SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 54 Annex 4 | Documents AnCO - The Industrial Training Authority. 1980. Annual Report and Accounts, Dublin. _____, 1985. Strategic Development Plan 1985-1989, Dublin. _____, 1987. Manpower and Training Needs of the Chemicals Sector. Breen, R. and B., Halpin, 1988. Self-Employment and the Unemployed, General Research Paper, No. 140, ESRI, Dublin. Breen, R., et al., 1986. Summary Report: School Leavers 1980-1985, ESRI, Dublin. Brennan, L., 1980. The Employment and Training Implications of the Micro-Electronic Industry, AnCo The Industrial Training Authority. Casey and Walker, 1987. Sectoral study of Manpower and training needs of the Mechanical and Electrical Engineering Sector to 1990. Casey, T., 1993. Continuing Vocational Training in Ireland, EU Force Programme, Dublin. CEDEFOP, 1986. State Funding of Vocational Education and Training in Ireland, dossier and bibliography, Luxembourg. Chambers of Commerce of Ireland, 2000. From Early Leaving to E-Learning: Education and Training for Employability, Policy Focus, Dublin. City and Guilds of London Institute 1991, Certification Practices in the EC. CIRCA Group for FAS, 2000. Developing Human Resources in the Irish Contract Cleaning Industry. Conway, M and Lambkin, A., 1993. Systems and procedures of certification of qualifications in Ireland, CEDEFOP, Berlin. Coolahan, J., 1981. Irish Education: History and Structure, Institute of Public Adminsitration, Dublin. Council of Directors of IOTs, 2003. Institutes of Technology and The Knowledge Society: their future position and roles, Report of the Expert Working Group. Crafts, N., 2005. Interpreting Ireland's Economic Growth, Background Report for UNIDO- Capacity Building. Dale-Tussing, A., 1978. Irish Educational Expenditure, Past Present and Future, ESRI Research Papers. No. 92. De la Fuente, A., and Vives, X., 1997, The Sources of Irish Growth, Centre for Economic and Policy Research (CEPR), Discussion Paper Series, No 1756. Deloitte and Touche. 1992. For the Industry Monitoring Committee, An Evaluation of the Human Resources Sub- Programme 1989-1993. _____, 1998. Review of the Community Employment Programme. _____, 1999. Review of the Job Initiative Programme. Department of Education, 1992a. Education for a Changing World, Government Publications, Dublin. _____, 1992b, Circular 32 VEC Teacher Qualifications and Appointments _____, 1997, Memorandum V7 – VEC Teacher Appointments _____, 1998. Adult Education in an Era of Learning (Green Paper). _____, 1998. Report of the Steering Committee on Establishment of a Teaching Council _____, 2000. Adult Education – Learning for Life (White Paper). _____, 2000a. Annual Report. _____, 2000b. Review of the Vocational Training Opportunities Scheme (VTOS), Dublin (Unpublished). _____, 2000c Rules and Programmes for Secondary Schools, Government Publications, Dublin. _____, 2001, Annual Report 2000. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 55 _____, 2006, Curriculum Development Unit, Annual Report 2005-2006.(CDVEC & Trinity College) Department of Enterprise & Employment, 1995. Training of Trainers: Insights and challenges from the Community Initiatives, Conference Report, March. _____, 1997. White Paper - Human Resource Development Department of Enterprise, Trade & Employment, 2000. Employment and Human Resources Operational Programme (2000-2006). Department of Finance, 1980. Economic Review and Outlook, Stationery Office, Dublin. _____, 1989. Economic Review and Outlook, Stationery Office. Department of Labour, 1991, Manpower Policy 1991 - The Issues, Research Seminar Report (unpublished) Department of the Taoiseach, 1993. Report of the Task Force on Jobs in Services. DKM Economic Consultants, 1995. Gross and Net Exchequer Costs of FAS Training programmes and Employment Schemes, FAS, Dublin. Duff, D., Fitzgerald, J., et al., 1997.Medium Term Review 1999-2003, ESRI, No.6. Durkan, Fitzgerald & Harmon, Education and Growth in the Irish Economy. In Barry, F., (ed.,) Understanding Ireland's Economic Growth, McMillan, Dublin, 1999. EGFSN, 1999, First Report of Expert Group on Future Skill Needs, Forfas. ______, 2000a, Second Report of Expert Group on Skill Needs, Forfas. ______, 2000b. Report on In-Company Training, Forfas. ______, 2002, The Irish Labour Market, Prospects for 2002 and beyond. ______, 2003, Benchmarking Education and Training in Ireland, Forfas. ESF Programme Evaluation Unit, Industrial Restructuring Training Programme Report, December 1992. _____, 1993. Certification Systems Report. _____, 1993. Evaluation Report on Middle Level Technician/Higher Technical & Business Skills, Dublin. _____, 1994. Evaluation Report: Training of Trainers, Dublin. _____, 1995a. Evaluation Report: Training and Employment Grants, February (Report to the DETE and EC) _____, 1995b.Impact of Evaluations, Dublin. _____, 1996 Review of Human Resource Measures: Community Support Framework 1989-1993, Dublin, May 1996. _____, 1998. Evaluation Report: Responding to Skill Needs, Dublin. _____, 2000. Challenges for Human Resource Development 2000-2006: A Report on Major HRD issues emerging from Evaluation Literature 1994-1999. ESRI, 1989. Evaluation of the Employment Incentive Scheme (EIS). _____, Report on School Leavers Survey, Dublin, 1996. _____, 1997. EU Structural Funds in Ireland: A Mid-Term Evaluation of the CSF 1994-1999. Policy Research Series, Paper No.31, Honahan, P., (ed.) European Commission, 1996. Labour Market Studies – Ireland, Sexton, J., & O’Connell, P., (eds) FAS, 1989. Apprenticeship: A new Approach - Discussion Document. _____,1989. Development Plan 1989-93. _____, 1992, Employment & Training Authority Annual Reports and Accounts 1990. _____, 1991/1992, Labour Market Review, Volume 2, Number 2. _____, 1994, Labour Market Review, Volume 5. Issue No. 1. _____, 1991. Training Standards - Training Programme Specification - Standard No. QA58/01. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 56 _____, 1995. Trends in Occupations in Ireland 1995-2003 -Guide for Career Advisory Services. _____, 1996. Community Employment programme Review 1994-1995, Dublin. _____, 2000a. Training Requirements in the Motor Industry. _____, 2000b. Annual Report and Accounts, 1999. _____, 2001a. Action Plan. _____, 2001b. Annual Report and Accounts, 2000. _____, The Irish Labour Market Review, 2002 _____, 2003, Labour Market Update, Labour Market Performance in an EU Context, McCormick, B. FETAC, 2003. Further Education and Training Awards Council, First Report 2001-2003. _____, 2003. Strategic Plan 2003-2006. _____, 2004. Quality Assurance in Further Education and Training: Policy and Guidelines for Providers. V1.2. _____, 2005. Further Education and Training in Ireland: A quantitative analysis of the sector, FETAC. Fitzpatrick Associates, 1997. An Assessment of the benefits of the FAS Community Youth Training Programme, FAS, Dublin _____, 1995. Cost Benefit Analysis of the FAS Community Employment Programme. _____, 2000. Scope for Increased Use of a Market-Driven Approach in delivery of Human Resource Development Measures, Vols. 1-3. Fox, R., 1990/1991. Total Training Expenditures in Ireland: Initial Estimates, FAS Labour Market Review, Vol.1 No.2. _____, 1991. Vocational Education and Training in Ireland - Summary Report, FAS. Fox, R. & Harper, D., 1980. The Social and Material Situation of Young People in the Transition from School to Working Life: Ireland, CEDEFOP, Luxembourg. _____, 2004, The vocational education and training system in Ireland (short description), FAS, CEDEFOP, Luxembourg. 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SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 60 Annex 5 | Informants This report is primarily based on documentary evidence. Mr. Stan McHugh – Former Chief Executive of Further Education & Training Awards Council (FETAC) The following individuals were interviewed to gather additional information and clarifications. Their contribution Mr. Donal Kerr – Regional Director, Employment and is gratefully acknowledged: Training Authority (FAS) Dr. Daniel O’Hare – Former Chair of Expert Group on Future Mr. John McGrath – Senior Manager, Skills and Labour Skill Needs (EGFSN) Market Research Unit, FAS. Dr. Richard Thorn, Director, Flexible Learning and Access to and support from the FAS Library Service and Research, Institutes of Technology, Ireland. Trinity College Library is also gratefully acknowledged. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 61 Annex 6 | Benchmarking Rubrics Functional Dimension 1: Strategic Framework Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Advocate for WfD  WfD is not prioritized in  Political and other leaders  Political and other key  WfD is fully integrated into as a priority for national economic recognize the leaders in industry national policies and 1. Articulating a Strategic Direction for Workforce Development economic development. importance of WfD for provide sustained strategies, reflecting a development economic development; support for WfD; holistic approach 20 to WfD; economic development economic development economic development plans plans have identified a few plans assess and specify formally assess and specify a WfD priorities. several WfD priorities wide range of WfD priorities that are being that are supported by implemented. implementation plans and budgets, these are subject to continuous evaluation and improvements. Evaluate economic  The concept of a demand-  A demand-driven WfD  A demand-driven WfD  A well-informed demand- prospects and its driven approach 21 to WfD strategy is beginning to strategy informed by driven WfD strategy with implications for has yet to emerge. take shape but policy appropriate analyses is continuous evaluation and skills reforms are often impeded accompanied by some improvements has been by various difficulties. policy reforms that have internalized as a standard been implemented. practice. Develop polices to  Policies are being  A few policies have been  A range of policies based  Policies are formulated on align skills demand developed but are not developed on the basis of on occasional and the basis of well-informed and supply based on formal occasional assessments routine assessments by analyses, including analyses of skills to address imbalances government and assessments by independent demand. between skills demand independent WfD organizations, and they are and supply; these policies stakeholders have been routinely reviewed and and interventions are implemented to address updated with inputs from subject to in-house skills imbalances; these relevant stakeholders to reviews. are subject to routine in- ensure program offerings fit house reviews and the economic climate and independent external demands for new skills. evaluations. 20A holistic approach is one that addresses multiple dimensions of skills development, including: (a) aligning skills training to employers’ needs and national goals for productivity, growth and poverty reduction; (b) governing the system to achieved the desired national goals, and (c) ensuring tangible results on the ground. 21In a demand-driven strategy, the demand for skills drives the supply of training services. Arrangements to achieve this relationship between skills supply and demand include: the involvement of employers in shaping training policies and provision, financing tied to employment outcomes, etc. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 62 Functional Dimension 1: Strategic Framework Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Promote a  There is limited or no  Business and industry play  A demand-driven  A demand-driven approach demand-driven attempt to incorporate an advisory role in approach to WfD is in to WfD has been fully approach business and industry establishing and place with business and established with business inputs in establishing and implementing WfD industry providing inputs and industry playing both implementing WfD priorities based on for setting WfD priorities advisory and executive priorities. occasional studies and based on routine roles supported by routine assessments. assessments provided by assessments from government agencies, government agencies, other employers, trade key WfD stakeholders and associations and labor independent organizations. 2.Prioritizing a Demand-led Approach unions. Strengthen firms'  Few incentives and  Incentives and services  Incentives and services  Incentives and services demand for skills services exist to support are in place to provide enable firms to expand enabling firms to address to improve skills development for selective support for the skills sets of workers skills constraints impeding productivity technology upgrading by technology-related skills to facilitate technology their ability to upgrade firms. upgrading; incentive adaptation and adoption technologies and programs are subject to for greater productivity; productivity are well occasional reviews but these measures are established; these are often without adequate supported by routine routinely reviewed and follow-up of reviews followed by adjusted for impact; all key recommendations. implementation of some review recommendations review recommendations. are implemented. Address critical  There is limited or no  Future supply of skills is  Assessments of future  Future skills supply is challenges in the formal assessment of assessed on an skills supply are routinely assessed for future supply of the future supply of skills. occasional basis; routinely conducted for multiple industries and skills recommendations from key sectors at the sectors at the national and assessments are regional and national international levels; implemented with some levels; recommendations recommendations are delay, often without are implemented with implemented promptly; adequate funding and little delay; responsibilities for assignment of responsibilities for implementation are clearly responsibility for implementation of spelled out and attention is implementation. recommendations are given to the realization of made explicit but without monitorable goals. explicit attention to monitorable goals. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 63 Functional Dimension 1: Strategic Framework Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Ensure coherence  There is no mechanism  Coherence of key strategic  Coherence of key  Formal mechanisms of key strategic in place to ensure WfD priorities at the strategic WfD priorities at overseeing coordination WfD priorities coherence of key strategic leadership level is the apex leadership level and implementation of WfD priorities among achieved through is achieved through WfD strategies are in place WfD leaders. informal processes that formal and informal and they support yield limited WfD mechanisms that yield strengthening structures of 3. Strengthening Critical Coordination outcomes. positive WfD outcomes. WfD policy development, budget allocations, and assessments of future skills demand and supply. Institutionalize the  Roles and responsibilities  Roles and responsibilities  Roles and responsibilities  Clear WfD roles and structure of WfD for WfD are not formally of WfD stakeholders are are well-defined and responsibilities have been roles and defined, leaving the WfD poorly defined, leaving supported by legislation institutionalized through responsibilities authority without a clear the WfD authority with a and resources that enable legislation and the WfD mandate. limited mandate and the WfD authority and authority has the limited resources to key stakeholders to mandate to formulate and discharge its discharge their respective request resources that are responsibilities effectively. functions effectively. needed for the relevant authorities to discharge their responsibilities in a transparent and effective manner. Facilitate  No formal process exists  Informal structures exist  Formal structures exist  Formal structures communication for engaging all that facilitate in key economic sectors fostering extensive and interaction stakeholders. communication and that support extensive interactions among WfD among all WfD interaction among key communication and stakeholders that stakeholders. interaction among the culminate in consensuses stakeholders relevant stakeholders. on WfD priorities and policies are in place in most sectors. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 64 Functional Dimension 2: System Oversight Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Foster articulation  No functioning  Ad hoc articulation  Ad hoc articulation  Standardized across levels and articulation arrangements exist within arrangements exist articulation programs arrangements. secondary schools and across institutions at the arrangements exist across post-secondary secondary and post- secondary and post- institutions; only ad hoc secondary levels; a secondary programs as incentives are in place to program of incentives is well as between TVET and foster articulation across in place to foster higher education; a system levels of instruction. articulation of incentives is in place to arrangements. foster articulation across 4. Diversifying Pathways for Skills Acquisition programs and levels of education and training. Promote life-long  No arrangements or  Ad hoc private resources  School- and community-  Integrated regional or learning public resources are in and arrangements based resources and national system with place to support life-long support life-long learning arrangements support one-stop online learning, recognition of and recognition of prior life-long learning and resources and prior learning, and learning; publicly-funded recognition of prior standardized disadvantaged groups. training programs exist learning; publicly-funded arrangements support with for disadvantaged training programs with life-long learning and groups subject to some minimal restrictions are recognition of prior restrictions. available for most learning; publicly-funded disadvantaged groups. training programs provide open access to all disadvantaged groups. Set policies and  There are no set policies  Introduction, adjustment  Introduction, adjustment  Management of publicly- procedures to to manage program and closure of publicly- and closure of publicly- funded training programs renew programs offerings; training funded programs are made funded programs are are made on the basis of providers may introduce, through ad hoc, non- based on a few explicit comprehensive and adjust or close publicly- standardized processes; and standardized explicit requirements funded programs at will. applications for these requirements; that include labor market changes must be done applications can be made analyses; applications can personally and are vetted online and they are vetted be made online and they by ad hoc committees. by formal committees are vetted by formal with some representation committees with from other WfD representation from other stakeholders. WfD stakeholders and they operate with a commitment to act in a timely manner. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 65 Functional Dimension 2: System Oversight Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Articulate funding  Ad hoc funding of WfD by  Systematic funding of WfD  Systematic funding of  Systematic funding of WfD strategy multiple stakeholders; no is determined by WfD is determined by is determined through evaluation of funding government agencies with government agencies consensus building among allocation and strategy. annual budget with advice from key government agencies and appropriations and line- stakeholders; annual key stakeholders; annual item allocations; only budget appropriations budget appropriations are occasional evaluations of are supported by detailed supported by detailed 5. Ensuring Efficiency and Equity in Funding funding allocation and spending plans; there are spending plans to foster strategy. routine evaluations of improved performance; funding allocation and routine evaluations of strategy. funding allocation and strategy are accompanied by appropriate reforms as needed. Allocate funds to  No formal process for  A formal process without  A formal process for  Allocation of WfD funds is achieve efficient allocating public funds for explicit criteria is in allocating public funds based on explicit criteria results WfD. place; there are no reviews based on explicit criteria aligned with WfD priorities, of allocation criteria. exists; there are periodic including efficiency in reviews of the criteria but resource utilization; there recommended changes are frequent reviews of the face relatively long criteria and implemented lags. recommendations are implemented in a timely manner. Foster  Limited or no  Limited partnership with  Extensive partnership  An institutionalized partnerships partnership between business and industry is in between WfD authority partnership network with WfD authority and place; partners have access and key stakeholders in open membership for all stakeholders in business to some public resources; business and industry; WfD stakeholders is in and industry; key key stakeholders partners have access to place; partners have access stakeholders provide few, contribute a small range of some public resources; to wide range of public if any, resources toward resources toward WfD key stakeholders resources; key stakeholders meeting WfD priorities. priorities. contribute a broad range contribute an extensive of resources for WfD. range of resources to meet WfD priorities. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 66 Functional Dimension 2: System Oversight Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Specify  No accreditation  Some accreditation  An accreditation agency  An accreditation agency accreditation standards have been standards have been has been established with standards reflecting standards established; training established; standards are with standards developed international best practices providers are free to offer infrequently reviewed; jointly with relevant is in place; accreditation any program. accreditation applies to stakeholders; standards standards are reviewed public institutions only. are reviewed internally frequently both internally on a regular or as needed and by independent basis; accreditation parties; accreditation and 6. Assuring Relevant and Reliable Standards applies to public renewal of accreditation institutions and non-state is compulsory for all providers receiving public institutions and public funding; renewal non-state training applies to the latter providers, regardless of only. their sources of funding. Strengthen skills  Competency-based  Competency-based testing  A standardized  A standardized testing and testing has yet to be applies to critical competency-based testing competency-based testing certification introduced; testing is occupations in key system is in place and system has been largely based on sectors; testing may focus applies to most established for most theoretical knowledge on a mix of theory and occupations; testing may occupations; IT-based and administered by practice and is focus on a mix of theory testing focuses on theory training providers administered and certified and practice and is and practice and is themselves. by independent third administered and administered and certified parties. certified by independent by independent third third parties. parties. Assure credibility  There is limited  Accreditation standards  Accreditation standards  A license to operate is of accreditation attention to are established through ad established with inputs issued only to institutions and of skills accreditation standards. hoc arrangements; some from WfD stakeholders and providers meeting certification support is provided to apply to all institutions accreditation standards encourage non-state and providers receiving determined by key WfD providers to seek public funding; credibility stakeholders; credibility of accreditation; credibility of of skills testing is ensured skills testing is ensured skills testing is ensured through explicit through standardized through explicit standardized testing testing protocols, standardized testing protocols and accreditation of testing protocols. accreditation of testing centers and random centers. audits. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 67 Functional Dimension 3: Service Delivery Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Link training  Weak or no links  Informal links exist  Formal links exist  Formal links exist industry and between training between some training between some training between most training research institutions and industry institutions and industry institutions and industry institutions and industry institutions and research institutions. and research institutions and research institutions, and research institutions, to improve training leading to significant leading to significant relevance and quality. collaboration in several collaboration in a wide 7. Fostering Relevance in Training Programs activities. range of activities such as the provision of industry internships and training, and the introduction and redesign of training programs. Design training  Industry has limited or  Industry has an advisory  Industry has both an  Industry has a with industry no role in identifying, role in identifying, advisory and a decision- widespread advisory and inputs prioritizing and designing prioritizing and designing making role in decision-making role in publicly-funded publicly-funded programs identifying, prioritizing identifying, prioritizing programs. in some training and designing publicly- and designing publicly- institutions, usually funded programs in some funded programs in most through informal contacts. training institutions. training institutions. Improve  Few or no measures are  Recruitment of  Recruitment of  Recruitment of competence of in place to enhance the administrators and administrators and administrators and WfD competence of WfD instructors is based on instructors is based on instructors occurs through administrators administrators and minimum academic minimum academic a competitive process instructors. qualification(s), with qualification(s), with based on both academic and instructors provisions for some in- provisions for in-service qualification(s) and service training and training and industry experience, with performance-based performance-based a wide range of in-service recruitment and retention recruitment and training programs and measures based on retention measures that performance-based occasional evaluations. are based on routine recruitment and retention evaluations. measures based on routine evaluations. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 68 Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Promote diversity  Training occurs through  Training policies allow  Training policies facilitate  A highly-diverse mix of in training state provision only, some private providers to participation of non-state non-state training provision with no incentives to operate; training is training providers; providers offer training promote non-state provided mainly by non- training is offered mainly within a comprehensive provision of training. profit providers with few by NGOs, with a system system with a wide range incentives in place to of incentives that are of incentives is in place to foster non-state provision evaluated routinely are in foster non-state provision; of training. place to foster non-state incentives are subject to 8. Incentivizing Excellence in Training Provision provision. evaluations and the recommendations are implemented. Incentivize private  No incentives are in  At least one incentive  A system of financial  A comprehensive system providers to meet place to encourage non- that is subject to and non-financial of incentives that are WfD standards state providers to meet occasional evaluation is in incentives that are subject to both occasional WfD standards. place to encourage non- subject to occasional and and routine evaluations state providers to meet routine evaluations is in and adjustments is in place WfD standards, but no place to encourage non- to encourage non-state review system exists to state providers to meet providers to comply with ensure continued WfD standards; periodic WfD standards; periodic adherence to WfD audits are conducted to audits with penalties for standards. ensure continued noncompliance are adherence to WfD conducted and enforced to standards. ensure continued adherence to WfD standards. Motivate public  No mechanism or  Training institutions are  Training institutions are  Training institutions are training process is in place to expected to meet target expected to meet a wider expected to meet a wide institutions to ensure training repetition and graduation range of WfD outcomes; range of WfD outcomes; a respond to institutions are demand- rates but few incentives some incentives and robust system of driven. are in place ensure they penalties that are subject incentives and penalties demand for skills are demand-driven. to both occasional and that is subject to both routine evaluations are in occasional and routine place to ensure these evaluations and institutions respond to adjustments is in place to the demand for skills. ensure that the training institutions are driven by employers’ demands for skills. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 69 Policy Policy Action Level of Development Goal Latent Emerging Established Advanced Strengthen WfD  Limited attention is  Occasional monitoring  Routine monitoring and  Skills demand and supply monitoring and placed on the monitoring and evaluation of skills evaluation of skills are monitored and evaluation and evaluation of skills demand and supply is in demand and supply is in evaluated through routine demand and supply; an place; an overview of WfD place; an overview of WfD surveys and specially overview of WfD data is data is available only in data is available in commissioned studies; available through government agencies. published reports and WfD data are available informal channels only.. websites. from a consolidated website. Specify reporting  No specific data  Public institutions and  Public institutions and  Both public institutions requirements by collection and reporting non-state training non-state training and non-state training are required; training providers are required to providers are required to providers are required to 9. Enhancing Accountability for Results training institutions providers maintain their collect and maintain collect, maintain and collect, maintain and own data bases. administrative and submit a comprehensive submit a comprehensive graduation statistics; data list of data through an list of data, including reporting is voluntary for integrated management client-feedback, to the WfD non-state providers but information system to the authority using an they may be notified of WfD authority; timely integrated management non-compliance. submission is fostered information system; through incentives for incentives, penalties and compliance and data quality audits are penalties for non- performed to ensure compliance. timely reporting of reliable data. Increase focus on  No system of evaluation  Occasional evaluation  Routine evaluation and  Institutionalized routine outcomes, and monitoring is in and monitoring of monitoring of several evaluation and efficiency and place to ensure efficiency limited aspects of key aspects of training monitoring of all key innovation in delivery of training training services is in place services is in place with aspects of the delivery of services. with results used to results used to provide training services with provide feedback to the feedback to training results used to provide training institutions; institutions, to prioritize feedback to institutions, to information on labor funding allocations, and prioritize funding market outcomes of identify good practices in allocations, identify good graduates is publicly service delivery; practices and options for available for some information on labor system-level institutions only. market outcomes of improvements; online graduates is publicly dissemination of labor available for all market outcomes of institutions. graduates is available to all users. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 70 Authorship and the Bank team scored the data, designed the Acknowledgements template for the report and made substantive contributions to the final write up. This report is a product of collaborative effort The current draft has benefited from suggestions between Sue Leigh-Doyle (principal investigator) and feedback from Mary Canning, Robin Horn, and the World Bank’s SABER-WfD Team led by Charles Maguire, Manorama Gotur and Ray Jee-Peng Tan, whose members include Rita Costa, Mulvihill. Angela Demas, Ryan Flynn, Kiong Hock Lee, Joy The team gratefully acknowledges the generous Yoo-Jeung Nam, Sungmin Park, Brent Parton and financial support from the Government of the Alexandria Valerio. United Kingdom through its Partnership for Sue Leigh-Doyle collected the data using the Education Development (PFED) with the Word SABER-WfD data collection instrument, prepared Bank and from the Korean Government through initial drafts of the report, and finalized the report; the Korean Trust Fund at the World Bank. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 71 www.worldbank.org/education/saber The Systems Approach for Better Education Results (SABER) initiative produces comparative data and knowledge on education policies and institutions, with the aim of helping countries systematically strengthen their education systems. SABER evaluates the quality of education policies against evidence-based global standards, using new diagnostic tools and detailed policy data. The SABER country reports give all parties with a stake in educational results—from administrators, teachers, and parents to policymakers and business people—an accessible, objective snapshot showing how well the policies of their country's education system are oriented toward ensuring that all children and youth learn. This report focuses specifically on policies in the area of Workforce Development This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Government of the Republic of Korea THE WORLD BANK SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS