Cabinet Order No.

of

2009

Concept

“Promotion of Interest in Vocational Education

and Participation of Social Partners in Assuring the Quality of Vocational Education”

(Informative Part)

Riga

2009

Content

Definition of Terms within the Scope of the Concept / 4
Abbreviations and Designations / 6
Introduction / 7
1. / Formulation and Detailed Description of Problems / 9
1.1. / Low Prestige of Vocational Education / 9
1.1.1. / Non-conformity of the Vocational Qualification Level System with the European Qualifications Framework / 13
1.1.2. / Non-conformity of the Vocational Education Programme Offer with the Needs of Adult Education / 13
1.1.3. / Unequal Conditions for Acquisition of General Secondary Education and Vocational Secondary Education and Commencment of Higher Education Programmes / 16
1.1.4. / Uniformity of Vocational Education Institutions / 18
1.1.5. / Non-recognition of the Knowledge, Skills and Competences Acquired Outside the Formal Education / 19
1.2. / Insufficient Capacity and Mutual Co-operation of Institutions and Employers Involved in Implementation of the Vocational Education Policy / 20
2. / Policy Planning Documents and Legal Acts Connected with Solving of the Relevant Problems / 23
3. /

Forecast of Consequences if Problems are not Resolved

/ 23
4. / Problem Solutions and Variants Thereof / 24
4.1. / Promotion of Interest in Vocational Education / 24
4.1.1. / Improvement of Types and Programmes of Vocational Education / 24
4.1.2. / Establishment of the National Qualification System / 25
4.1.3. / Differentiation of Vocational Education Institutions / 29
4.1.4. / Balancing of the Conditions for Acquisition of General Secondary Education and Vocational Secondary Education / 33
4.2. / Strengthening of Participation of Social Partners and Professional Organisations in the Development and Implementation of the State Education Policy at National, Regional and Sectoral Level / 37
4.2.1. / Strengthening of Tripartite Co-operation of State Institutions and Social Partners at National Level / 37
4.2.2. / Strengthening of Tripartite Co-operation of State Institutions and Social Partners at Regional Level / 38
4.2.3. / Strengthening of Tripartite Co-operation of State Institutions and Social Partners at Sectoral Level / 39
4.3. / Determination of Participation and Liability of State Institutions, Social Partners and Professional Organisations in Formal Education / 51
4.3.1. / Development of Vocational Education Programmes / 51
4.3.2. / Documents to be Issued by Vocational Education Institutions / 52
4.4. / Determination of Participation and Liability of State Institutions, Social Partners and Professional Organisations in Non-formal Education / 53
5. / Description of the Necessary Draft Legal Acts / 62
6. / Procedures for the Submission and Evaluation of Reports / 62

Definition of Terms within the Scope of the Concept

  • vocational basic education – initial vocational education which provides persons, without the restriction of the previous education, with an opportunity to acquire a first or second level initial vocational qualification;
  • examination centre – a commercial company or association (or a unit thereof), which, according to activities thereof in a specific field of product manufacturing, distribution or services, is accredited in accordance with the procedures specified by the Cabinet and provides persons with opportunities to acquire systemised knowledge, skills and competences corresponding to the requirements of the labour market and a vocational qualification of an expert, as well as issues a document confirming the qualification of an expert;
  • formal education – the acquisition of an education programme organised within the scope of a specific level of education, which is certified by a State recognised document confirming education or education and initial vocational qualification;
  • accreditation of education institution – the acquisition of rights by an education institution to issue State recognised educational documents regarding the acquisition of the education programmes implemented in the education institution;
  • recognition of non-formal education – the evaluation of professional competences acquired outside formal education and conforming with a specific profession and the issuance of documentarily approved evaluation;
  • institution for the recognition of non-formal education – an institution licensed in accordance with the procedures specified by the Cabinet, which performs the recognition of non-formal education;
  • non-formal education programme – a vocational in-service training programme, the content of which does not conform or partially conforms to the acquisition of the vocational qualification of a specialist;
  • second level vocational secondary education – a medium level initial vocational education, which provides an opportunity for persons with an acquired primary education to acquire a fourth level initial vocational qualification and the right to continue education at the level of a higher education;
  • primary profession – a generalised aggregate of knowledge, skills and competences, which is necessary for the achievement of work results in a specific sector at a specific structural level of qualification;
  • adult vocational education – vocational training or vocational in-service training of a person;
  • first level vocational secondary education – a medium level initial vocational education, which provides the opportunity for persons with an acquired primary education to acquire vocational secondary education without the right to continue education at the level of higher education, and third level initial vocational qualification;
  • profession – a type of occupation of a natural person in the field of the production or distribution of goods or services, also in education, culture and art, which requires a certain systemised theoretical and practical preparedness;
  • vocational training – a vocational education, which provides the opportunity for persons with previous education or professional experience to acquire a vocational qualification of a specialist at a specific level;
  • vocational education – a process, the purpose of which is to ensure persons with the knowledge, skills and competences required in the labour market;
  • vocational in-service training – non-formal education, which provides persons with an opportunity to acquire systemised professional knowledge and skills corresponding to the requirements of the labour market;
  • vocational oriented education – systemised acquisition of knowledge, skills and competences in the field of art, culture or sport, concurrently with a level of primary education or secondary education;
  • professional competences – the characteristics of the knowledge, skills and responsibility required for the performance of professional activities in a specific work situation;
  • vocational qualification examination – a test in order to evaluate the acquisition of the knowledge, skills and competences corresponding to a specific profession;
  • initial vocational education – an educational process implemented at the level of primary or secondary education, the objective of which is to ensure persons without professional experience with the acquisition of vocational education and initial vocational qualification of specific level;
  • social partners – the Latvian Employers’ Confederation and the Free Trade Union Confederation of Latvia;
  • specialisation – an aggregate of specific knowledge, skills and competences, which are necessary for the performance of duties of a specific position in a specific sector at a specific structural level of qualification;
  • vocational qualification of a specialist – a documentarily approved evaluation of the acquisition of knowledge, skills and competences corresponding to a specific specialisation.

Abbreviations and Designations

CSB / Central Statistics Bureau
EQF / European Qualifications Framework
MoE / Ministry of Economics
EU / European Union
ISCED / International Standard Classification of Education
ESF / European Social Fund
SOQE / State Office of the Quality of Education
EETCS / Education and Employment Tripartite Co-operation Sub-council
MoES / Ministry of Education and Science
MoC / Ministry of Culture
LCC / Latvian Chamber of Crafts
FTUCL / Free Trade Union Confederation of Latvia
LEC / Latvian Employers’ Confederation
MoW / Ministry of Welfare
UL / University of Latvia
Cabinet / Cabinet
SEC / Sectoral Expert Commission
NTCC / National Tri-partite Co-operation Council
VEETCS / Vocational Education and Employment Tripartite Co-operation Sub-council
MoRDLG / Ministry of Regional Development and Local Government
REEC / Regional Education and Employment Council
RVEEC / Regional Vocational Education and Employment Council
MoT / Ministry of Transport
UNESCO / United Nations Educational, Scientific and Cultural Organisation
MoE / Ministry of Environment
MoH / Ministry of Health
SCCD / State Centre for Curriculum Development

Introduction

The Latvian National Development Plan 2007-2013 (approved with Cabinet Regulation No.564 of 4 July 2006 “Regulations Regarding the Latvian National Development Plan 2007-2013”) determines that an educated and creative person is one of the main priorities for the achievement of the strategic objective – education and knowledge for the growth of the economy and technological excellence.The task of the State is to ensure every person with opportunities for general education, as well as higher and vocational education of good quality.

In the declaration regarding the intended activities of the Cabinet led by Valdis Dombrovskis (hereinafter – Declaration) the MoES has been set forward specific tasks for the development of vocational education.In Sub-paragraph 10.5 of the Declaration the MoES has been decreed to modernise and adapt the educational curriculum at all levels of education in accordance with the abilities, needs and interests of pupils, in Sub-paragraph 10.6 – to revise the content of the initial vocational education and the conformity with the requirements of the labour market in co-operation with delegated sectoral representatives and Sub-paragraph 10.7 of the Declaration determines the introduction of the recognition of professional knowledge, skills and competences acquired in an informal way.In Sub-paragraph 33.3.3 of the action plan for the introduction of a programme for the stabilisation and restoration of the growth of the economy of Latvia (approved by Cabinet Order No.123 of 19 February 2009) the MoES has been given the task of developing a concept for ensuring the promotion of interest in a vocational education and the participation of social partners in ensuring the quality of vocational education, which will serve as the basis for the development of a draft Vocational Education Law.Thereby, the prestige of vocational education and the conformity with the requirements of the labour market have been identified as the main challenges in the vocational education system.

The draft concept “Promotion of Interest in Vocational Education and the Participation of Social Partners in Ensuring the Quality of Vocational Education” (hereinafter – Concept) is a concept for improving the attraction of vocational education.The objective of the development thereof is to specify solutions for the basic challenges in implementation of the vocational education policy and to achieve the agreement of the State and social partners regarding the variants of resolving the challenges prior to the development of a new draft Vocational Education Law.

The regulation of the sector of general education is determined in the Education Law and in special laws of the sector, ensuring a balanced and clear regulation between the general and special legal norms.The Concept includes solutions to challenges, which relate to principally new directions of development of vocational education and which create significant changes to the existent vocational education system.Variants of solutions, regarding which the State and social partners will agree upon, will be included in the new draft law, which to a great extent will retain the division of text of the Vocational Education Law.It is indicated in sections of the Concept, which regulation is provided for inclusion in the draft Vocational Education Law.

Findings of the MoES National Programme “Development of Single Methodology for Enhancing Vocational Education Quality and Involving and Educating Social Partners” funded by EU Structural Funds for 2004-2007, conclusions of the MoW labour market research “Conformity of Vocational and Higher Education Programmes with the Requirements of the Labour Market” and “Professional Activities of Graduates of Higher and Vocational Education Institutions after Completion of Studies” (available:in Research and Publication Database as well as materials of the European Vocational Education Centre regarding the directions of vocational educational development in the EU have been used in the Concept.

1. Formulation and Detailed Description of Problems

1.1.Low Prestige of Vocational Education

The MoE has developed an informative report “On Forecasts for Medium-term Conformity of the Demand and Supply of the Labour Force” (hereinafter – Informative Report) (reviewed at the Cabinet meeting of 3 June 2008).Forecasts for demographic development for the time period up to 2013 are also analysed in the Informative Report.

It is established in the Informative Report that during the medium-term period (up to 2013) the decrease in the number of residents at working-age will continue in Latvia.In comparison with the period of time between 2000-2007, the number of residents of Latvia will decrease more rapidly in the next seven years – by approximately 69000. In case of a dynamic development scenario after 2013, the greatest shortage of the labour force will be observed in secondary qualification professions, i.e., the supply of the labour force will be able to ensure 95% of the demand.In order to compensate the anticipated rapid reduction of work resources, one of the main tasks of the State policy is to promote the growth of productivity and employment of residents.

Figure 1. Number of Residents (in Thousands) Aged from 15 to 64 Years of Age

When evaluating the demographic situation in the State, it must be concluded that during the time period from 2005 to 2013 the number of primary school graduates will reduce by 44% (Sources:CSP, Profesionālās izglītības iestāžu pārskati, vispārējās izglītības iestāžu pārskati). CSB, reports of vocational education institutions and reports of general education institutions).

Number of students

Number of 9th grade students

Figure 2. Forecasts of the Number of Students in Vocational Education Institutions

The existing disproportion between the choice of primary school graduates to continue education in general secondary education and vocational education programmes confirms the low prestige of vocational education.Due to the comparatively low birth rate, a significant reduction in the number of students in vocational education institutions and in the supplement to the labour force in the labour market may be foreseen.(Sources:CSP, Profesionālās izglītības iestāžu pārskati, vispārējās izglītības iestāžu pārskati). CSB, reports of vocational education institutions and reports of general education institutions).

Secondary schools

Vocational schools

Studies not continued

Figure 3. The Choice of Primary School Graduates Continuation of Education

In comparison with the EU data regarding the proportion of educatees in initial vocational education programmes, only Estonia and Lithuania have a lower proportion (Sources:MoES, CSB, reports of vocational education institutions.Cedefop, Vocational education and training – key to the future, 2004).

Women

Men

Lithuania

Estonia

Latvia

Denmark

Netherlands

Slovenia

Czech Republic

Figure 4. Proportion of Vocational Education Students at Secondary Education Level

Achievement of objectives of the European Commission operational programme “Education and Teaching 2010” – to ensure secondary education to 85 per cent of residents up to 22 years of age by 2010 – is encumbered by the increase in the number of students deducted from education institutions.

In accordance with the strategic aim of the EU Lisbon Strategy the EU must become the most competitive and dynamic knowledge-based economy in the world.In turn, the objective of the Copenhagen Process is to promote the co-operation in vocational basic education and to help make the European education and teaching systems more efficient and compliant and the EU citizens conform with the requirements of the EU labour market.One of the main indicators for monitoring of the Copenhagen Process is the “early school leavers”.In accordance with the aforementioned monitoring indicator of the Copenhagen Process, the proportion of students deducted from vocational education programmes in 2010 must be less than 10%.The largest part of students is deducted in the first two years – in average 73% of the total number of the deducted students.In the school year 2007/2008 14-16% of the total number of the deducted students continue their studies in another education institution (Sources:CSB and reports of vocational education institutions).

Figure 5. Number of Deducted Students in % of the Total Number of Students

When evaluating in international comparison, Latvia is located in the middle of the other EU Member States in terms of the proportion of the number of deducted students (Sources:CSB, reports of vocational education institutions Prof-1 2004, Cedefop, Vocational education and training – key to the future).

Lithuania

Estonia

Latvia

Denmark

Netherlands

Slovenia

Czech Republic

Figure 6. Comparison of the Proportion in the Number of Deducted Students

In the study performed by the UL in 2007 “Professional Activities of Graduates from Higher and Vocational Education Institutions after Completion of Studies” (available:on the Research and Publications Database the attitude of graduates towards work following graduation from vocational education institutions was clarified.In accordance with the study only 59% of graduates wished to work in the relevant profession acquired and 81% of graduates who wished to work in the profession acquired are doing so.

The aforementioned facts and forecasts indicate that the disproportion in terms of the number of young persons who acquire general secondary education or vocational education programme is a significant problem in the preparation of qualified labour force, which is related not only to the demographic situation in the State but also to the low prestige of vocational education, which is based on the unwieldliness of the vocational education system in the offer of vocational education programmes for different target groups, as well as insufficient access to vocational education for residents in the context of lifelong learning.

1.1.1.Non-conformity of the Vocational Qualification Level System with the European Qualifications Framework

The existing five level vocational qualification system specified in the Vocational Education Law does not conform with the recommendation of the European Parliament and the European Council regarding the development of eight EQF levels for lifelong learning, which is planned to be introduced into Latvia by 2010.

At present the Europass appendix is not appended to a document confirming vocational qualification of primary education and secondary education level in Latvia for the transparency of skills and competences.The introduction and use of EQF in the Europass appendix to documents confirming qualification will promote the prestige of vocational education in Latvia, because it will help to confirm the acquired knowledge, skills and competences in a clear and comprehensible manner to employers and educators in the entire territory of the EU.