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OECD Skills Strategy Action Phase - Portugal
The OECD Skills Strategy for Portugal emphasizes the importance of adult learning to improve the workforce's skill levels and address demographic changes impacting employment and productivity. With a focus on increasing participation in adult learning, the report outlines recommendations for improving access, relevance, and governance of educational programs. Key actions include raising awareness about the value of skills, enhancing quality and flexibility of learning, and establishing effective funding and governance mechanisms.
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OECD Skills Strategy Action Phase - Portugal
- 1. OECD SKILLS STRATEGY ACTIONPHASE PORTUGAL Andreas Schleicher Director for Education and Skills, OECD OECD Centre for Skills Education and Skills Directorate 4 May 2018
- 2. 2 OECD Skills Strategy Contributesto economic prosperity Contributes to social cohesion
- 3. 3 From Diagnostic (2015)to Action (2018)
- 4. 4 A collaborative project Directoratefor Education and Skills Economics Department Directorate for Employment, Labour and Social Affairs Directorate for Science, Technology and Innovation Centre for Tax Policy and Administration Directorate for Public Governance and Territorial Development OECD PORTUGAL Ministry of Science, Technology and Higher Education Ministry of Education Ministry of Economy Ministry of Finance Ministry of Planning and Infrastructure Ministry of Labour, Solidarity and Social Security Ministry of the Presidency and Administration Modernization Office of the Prime Minister This report was co-funded by the European Commission.
- 5. 5 Timeline Action phase Whichshould be the focus of the Action Phase? Q1 2017 Q2 2017 Q3 2017 Q4 2017 Q2 2018 9-10 Feb. High- level seminar 22-24 March Fact-finding and inter- ministerial meeting to map the system OECD data and best practices KEY INPUTS 30 June Fact-finding and inter- ministerial meeting on recommendat ions 9-10 November Stakeholder Workshop #2 Towards implementatio n planning 4 May Action Report Launch What are key components, strengths and weaknesses of the current system? What types of approaches would work for Portugal? What actions need to be taken, by whom, when and how? Portugal information and perspectives 9-10 October Inter- ministerial meeting on recommenda tions 3-5 May Stakeholder Workshop #1 Understanding the system
- 6. 6 Drawing upon theinsights of stakeholders (1) Survey on implementation of recommendations Action phase Portugal findings and recommendations Two Skills Action Stakeholder Workshops Best practices provided by Qualifica centres Bilateral interviews with stakeholders Three inter- ministerial working meetings
- 7. … Drawing upon theinsights of stakeholders (2) 7
- 8. WHY THE FOCUSON ADULT LEARNING? 8
- 9. Trends shaping educationand skills GLOBALISATION DEMOGRAPHIC CHANGE TECHNOLOGICAL CHANGE 9
- 10. Skills empower countries andpeople to… ….thrive in our increasingly interconnected and rapidly changing world Skills are becoming increasingly important 10
- 11. Tasks without use of ICT Taskswith use of ICT Non routine tasks Routine tasks Non routine tasks Routine tasks Tasks without use of ICT Tasks with use of ICT Two effects of digitalisation 11
- 12. Non routine tasks, Lowuse of ICT Non routine tasks, High use of ICT Routine tasks, Low use of ICT Routine tasks, High use of ICT Non routine tasks, Low use of ICT Non routine tasks, High use of ICT Routine tasks, Low use of ICT Routine tasks, High use of ICT ( Two effects of digitalisation 12
- 13. ( Two effects ofdigitalisation 13 0% 5% 10% 15% 20% 25% 30% 35% 40% Level 1 and Below Level 2 Level 3 Level 4-5 Literacy Proficiency in OECD Countries (PIAAC) Near-term computer capabilities
- 14. 14 An increasing shareof jobs requires higher levels of skills Job polarisation in the past two decades, %-point change share of total employment, 1995-2015 Note: See description of method in source below.). Source: OECD Employment Outlook (2017), Figure 3.A1.1., Job-polarisation by country, http://dx.doi.org/10.1787/888933477940. -20 -15 -10 -5 0 5 10 15 20 Low skill Middle skill High skill
- 15. 15 Productivity growth isneeded to offset demographic changes Source: OECD (2017), Working age population (indicator). doi: 10.1787/d339918b-en (Accessed on 26 July 2017); United Nations Database, 2017 Revision of World Population Prospects, https://esa.un.org/unpd/wpp/. OECD (2017), Labour force forecast (indicator). doi: 10.1787/c6d4db79-en A. Demographic trends in Portugal, historical and projected 0 10 20 30 40 50 60 70 80 90 100 2000 2005 2010 2015 2020 2025 2030 2035 2040 2045 2050 2055 2060 2065 2070 2075 2080 2085 2090 2095 2100 0 2000 4000 6000 8000 10000 12000 x 1000 15-65 65+ Total population (right) % Projected B. Labour productivity development (2010=1), 2005-2019 0.9 0.95 1 1.05 1.1 Portugal OECD – average Projected
- 16. 16 In Portugal, skillsof younger generations are catching up rapidly Source: OECD (2017), Reading, mathematics and science performance (PISA) (indicator). doi: 10.1787/79913c69-en Development PISA-scores 2000-2015, Portugal 450 460 470 480 490 500 510 2003 2006 2009 2012 2015 2000 2003 2006 2009 2012 2015 2006 2009 2012 2015 Math Reading Science Mean PISA score Portugal Average
- 17. 17 But… many Portugueseadults still have low qualifications Educational attainment of adults (25- to 64-year-olds) in Portugal, 2016 Source: OECD (2018), Adult education level (indicator), http://dx.doi.org/10.1787/36bce3fe-en. 0 10 20 30 40 50 60 70 80 90 100 % Below upper secondary Upper secondary Tertiary
- 18. 18 And, many adultsalready have difficulties to find work Long-term unemployed (share of unemployed), 2016 Source: OECD (2017), Long-term unemployed (indicator). doi: 10.1787/c3634df7-en (accessed on 27 July 2017). 0 10 20 30 40 50 60 70 80 Korea Mexico Canada Norway UnitedStates NewZealand Sweden Turkey Denmark Australia Finland UnitedKingdom OECD–average Estonia Austria Poland Switzerland Japan Luxembourg Germany Latvia Netherlands CzechRepublic France Hungary Spain Belgium Slovenia Ireland Portugal SlovakRepublic Italy Greece %
- 19. 4 6 8 10 12 14 16 2007 2008 20092010 2011 2012 2013 2014 2015 2016 2017 % Portugal EU (28) 19 Adult learning could strengthen the position of Portuguese adults in the economy and society Participation rate in adult learning, last 4 weeks, Portugal and EU average, 2007-2017 Source: Eurostat, EU Labour Force Survey data (2017), Participation rate in education and training (last 4 weeks), trng_lfs_01 High quality adult learning, could help adults, to: • Improve current skill levels • Develop relevant skills for the future • Improve their position in the labour market • Enhance social and civic participation But… participation in adult learning is lagging behind >>> 15% EU 2020 target
- 20. 0 5 10 15 20 25 male female 25to34 35to44 45to54 55to64 Primary Uppersec Tertiary Employed Unemployed Inactive Gender Age Educationlevel Labour status % Portugal EU (28) 20 Groups most in need are not participating Source: Eurostat, EU Labour Force Survey data (2017), Participation rate in education and training (last 4 weeks), trng_lfs_01, trng_lfs_02, trng_lfs_03, trng_lfs_14, trng_lfs_04, trng_lfs_05, trng_lfs_06, trng_lfs_08b. Participation rate in adult learning, last 4 weeks, by characteristics in Portugal, 2017
- 21. HOW CAN PORTUGALIMPROVE ITS ADULT LEARNING SYSTEM? 21
- 22. Overarching recommendation Develop acoherent adult learning strategy that encompasses existing and new measures, and is aligned with other key economic policies. Key elements: - identify key skills needed - Align adult learning with other key policies - ensure sustainable financing and governance arrangements. A consultative, collaborative process: - Discuss adult learning policy with key national consultative bodies - Engage all political parties to encourage broad-based support - Engage national and local public service administration staff to facilitate implementation 22
- 23. 1. Increase awarenessabout the importance of skills for success in work and life, especially among the low-skilled population employers, and increase the motivation to undertake or deliver adult learning. 3 main priorities identified in action phase 2. Improve access, quality and relevance of adult learning, including pathways across programs, and monitoring and evaluation of results. 3. Ensure the effective governance and financing of the adult learning system 23
- 24. 1 – INCREASINGAWARENESS 24
- 25. 91.1 86.0 61.0 8.9 14.1 39.0 0 10 20 30 40 50 60 70 80 90 100 20072011 2016 % B. Reasons for not participating % of 25-64 year-olds who didn't participate Did not want Wanted but encountered difficulties 25 Willingness to participate in adult learning in Portugal 18.7 30.6 19.6 7.8 13.7 26.5 67.0 47.5 32.9 6.5 8.1 21.1 0 10 20 30 40 50 60 70 80 90 100 2007 2011 2016 % A. Will to participate, or participate more, % of all 25-64 year-olds already participated and did not want to participate more already participated but wanted to participate more did not participate and did not want to participate did not participate but wanted to participate Source: Eurostat, Adult Education Survey, 2016, trng_aes_100, trng_aes_195, trng_aes_175. Willingness to participate in adult learning is improving, but it remains a challenge Already participated Not yet participatedNot willing > Not willing > Not willing> Encountered difficulties>
- 26. 26 Barriers to participateare often high Obstacles to participation for individuals willing to participate, 2016 0 10 20 30 40 50 60 Not confident with the idea of going back to something that is like school No access to a computer or internet (for distance learning) Lack of prerequisites Other personal reasons Health problems or age not adequate for the training No suitable education or training activity (offer) Training takes place at a too distant place Lack of employer's support or public services support Family responsibilities Cost too high Conflict with work schedule or training organised at inconvenient time % Portugal EU (available countries) Source: Eurostat, Adult Education Survey, 2016, trng_aes_176.
- 27. 27 A large shareof the population has limited access to information on adult learning Access to information on learning possibilities, 2016 Source: Eurostat, Adult Education Survey, trng_aes_182, trng_aes_183, trng_aes_184, trng_aes_187. 0 5 10 15 20 25 30 35 40 45 50 Greece Hungary Poland Italy CzechRepublic Germany Slovakia Latvia Portugal UnitedKingdom Spain Switzerland Norway Slovenia Austria Luxembourg Sweden Netherlands Finland % A. Share of 25-64 year-olds with access to information on formal and non-formal learning possibilities, 2016 0 10 20 30 40 50 60 70 25to34years 35to44years 45to54years 55to64years (Pre-)primary,lowersec. Uppersec.(non-tertiary) Tertiary Internet Family/neighbour,etc Employer Careerguidance Eduinstitution Massmedia Books Age Educational attainment Source (2011) % B. Share of 25-64 year-olds with access to information by age, education and source, 2016 Portugal EU (available countries)
- 28. 28 Increasing awareness –Recommendations Recommendation 1: Improve the collection, use and dissemination of information on skill levels and the returns to skills investments, building on existing tools. Recommendation 2: Launch a comprehensive communication and awareness-raising campaign on value of skills and skills investments, with tailored approaches for specific groups. Recommendation 3: Enhance measures targeted to the public administration and providers of social services to raise awareness of the value of upskilling for themselves and their clients.
- 29. 2 – IMPROVETHE ACCESS, QUALITY AND RELEVANCE OF ADULT LEARNING 29
- 30. 30 Enrolment in adultnon-tertiary programmes has decreased between 2011 and 2016 Total enrolments in non-tertiary programmes targeted at adults Source: DGEEC, 2012, 2017. 0 20000 40000 60000 80000 100000 120000 2010-2011 2015-2016 2010-2011 2015-2016 2010-2011 2015-2016 EQF 1 or below EQF 2 EQF 3 or 4 EFA Courses Recorrente Track Recognition, Validation and Certification of Competencies Modular training
- 31. 31 Initial enrolments inthe Qualifica programme are promising 2011 2012 2013 2014 2015 2016 2017 Number of adult learning centres (CNO, CQEP, Centros Qualifica) 452 424 4 241 241 241 303 Adults participating in some form of activities 257 971 87 147 776 40 483 58 747 88 321 125 893 Participation in education and training 65 751 39 279 1 563 15 911 36 318 61 532 68 281 Participation in recognition of prior learning (RVCC) 146 372 52 327 515 4 389 12 980 17 548 28 804 Adults receiving a certification 102 932 75 250 3 400 37 2 658 8 150 10 157 Qualifica Centres began operating in 2017.
- 32. 32 Adult learning inPortugal is highly complex
- 33. 33 A systemic viewof the adult learning system is needed Inputs Financing model Governance Participants Process Content & delivery Quality framework Outputs Participation Completion Characteristics Enabling conditions Political will Capacity to implement Awareness of population General context Demography Levels of education State of economy System effectiveness Intermediate outcomes Skills Personal qualities Final outcomes Economic and social Individual and society Need for a balanced system to - optimise efficiency, and - maximise effectiveness System efficiency
- 34. 34 Monitoring and evaluatingthe adult learning system is crucial to optimise performance Evaluation of adult learning policies in comparative perspective Share of UNESCO members systematically collecting info and performing substantial analyses on adult learning and education, with position of Portugal Source: UNESCO (2016), Third Global Report on Adult Learning and Education: The Impact of Adult Learning and Education on Health and Well-Being; Employment and the Labour Market; and Social, Civic and Community Life. 0 10 20 30 40 50 60 70 80 new technologies equity issues diversity providers barriers to particip. quality criteria learning outcomes none of above social outcomes employment effect completion rates qualifications Since2009,substantial analysesaboutALE; Systematicaly collectinginfoabout ALE; Share of countries Including Portugal Excluding Portugal < Portugal < Portugal < Portugal < Portugal
- 35. 35 Improve the access,quality and relevance – Recommendations Recommendation 4: Improve the supply of high quality, relevant and flexible learning programmes. Recommendation 5: Improve pathways and the coherence of the adult learning delivery network. Recommendation 6: Strengthen quality assurance, including by developing a performance monitoring and evaluation system including a set of key performance indicators.
- 36. 3 – ENSUREEFFECTIVE GOVERNANCE AND FINANCING 36
- 37. 37 Public governance: closingthe gaps Pillars of executive capacity, 2017 Source: Sustainable Governance indicators (SGI), 2017. 0 1 2 3 4 5 6 7 8 Strategic Capacity Interministerial Coordination Evidence-based Instruments Societal Consultation Policy Communication Implementation Adaptability Organizational Reform Portugal OECD – average
- 38. 38 But funding needto be more effective and sustainable Financing adult learning: cost-sharing schemes Share of EU-countries with certain policies, and indication of which are used in Portugal, 2010-2013 Source: CEDEFOP Financing Adult Learning, http://www.cedefop.europa.eu/FinancingAdultLearning/ 0 20 40 60 80 100 saving scheme grant for individuals/voucher/individual learning account tax incentive for individuals payback clause training fund tax incentive for companies grant for companies loan training leave % < Portugal < Portugal < Portugal < Portugal
- 39. 39 Funding needs tosupport accessibility and quality Government funding: • Largely EU-funded • Peaked in 2010 but decreased after the crisis • Spread across many ministries • Funds programmes, but involves few incentives and/or accountability mechanisms to drive access and quality Funding from other sources: • Employers fund 35 hours of training per employee: 229M in 2015 • Adults pay fees for tertiary programmes • Contribution of unions not known … the funding approach needs to be clearer and redesigned to encourage accessibility, quality and drive outcomes.
- 40. 40 Effective governance andfinancing – Recommendations Recommendation 7: Set up dedicated governance bodies for adult skills: a permanent inter-ministerial team and a permanent group within an existing multi-stakeholder institution. Recommendation 8: Develop new or strengthen existing local networks at the municipal level to address current and future skills needs in line with the economic development context
- 41. 41 Effective governance andfinancing – Recommendations Recommendation 9: Establish a stable and quality-oriented funding model through a “skills financing pact” Recommendation 10: Introduce targeted financial incentives for employers (specifically SMEs) and individuals (specifically disadvantaged groups) to encourage provision and participation in training.
- 42. HOW DID STAKEHOLDERINPUT CONTRIBUTE TO RECOMMENDATIONS? 42
- 43. 43 Using stakeholders’ ideasas a key input to develop recommendations • GPS of training (occupational dashboard ) • User-driven digital platform • Local network for education and training • Inter-municipal training plan Initiatives proposed (4 May workshop) • Strengthen identification of skills needs • Create work-based learning programme • Create a lifelong professional training fund • System of public-private financing for lifelong learning Awareness and information Access and quality + Labour market relevance Financing Literature analysis Data analysis Expert opinion Taking a system approach Priority setting = 11 Recommendations for adult learning system Portugal
- 44. 44 Stakeholders’ views onrecommendations; importance, funding and time to implement 0 20 40 60 80 100 7: Set up dedicated governance bodies for adult skills 8: Develop or strengthen local networks to address skills needs 10: Introduce financial incentives to encourage training 3: Raise awareness of value of upskilling in public admin. and social services 2: Launch a communication and awareness-raising campaign 5: Improve pathways and the coherence of the adult learning delivery network 1: Improve the collection, use and dissemination of information 9: Establish a funding model through a “skills financing pact” 4: Improve supply of high quality, relevant, flexible learning programmes 6: Strengthen quality assurance via performance monitoring and evaluation % Very important or essential Moderately or slightly important Not important -80 -60 -40 -20 0 20 40 60 80 7: Set up dedicated governance bodies for… 5: Improve pathways and the coherence… 6: Strengthen quality assurance via… 1: Improve the collection, use and… 8: Develop or strengthen local networks to… 2: Launch a communication and… 3: Raise awareness of value of upskilling… 9: Establish a funding model through a… 4: Improve supply of high quality, relevant,… 10: Introduce financial incentives to… % % > EUR 100.000 per year % > 2 years A. Importance of recommendations Share of respondents in survey B. Funding and time to implement
- 45. 45 Stakeholders’ views onconditions for success Key conditions for success, by percentage of times ranked as top condition 0 5 10 15 20 25 30 35 40 Legislative provisions providing more autonomy to the parties involved in AL Legislative provisions requiring actions from parties involved in AL Right skills of national and local staff for implementation Sufficient funding Motivation of national and local staff to make it a priority Clarity about impact and benefits of implementation for all stakeholders Sufficient political consensus %
- 46. 46 For more information •To access the full report in English, and executive summary in Portuguese, visit: http://www.oecd.org/skills/nationalskillsstrategies/buildingeffectiveskillsstrategiesatnationalandl ocallevels.htm. Full report also accessible on OECD iLibrary: http://www.oecd.org/publications/skills-strategy- implementation-guidance-for-portugal-9789264298705-en.htm • Director for Education and Skills: andreas.schleicher@oecd.org • To discuss OECD’s work on National Skills Strategy projects: montserrat.gomendio@oecd.org; • To learn more about the OECD’s work on skills visit: www.oecd.org/skills/ OBRIGADO!
Editor's Notes
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- #3 2
- #7 The Action Phase involved a highly interactive process to ensure we could provide you with analysis and recommendations based on our own analysis and knowledge of international best practice, and insights from Portugal’s stakeholders. This engagement was important not only to help us make recommendations that are relevant to the Portuguese context, but also because sustainable change can only happen – especially in a complex area like adult learning – if all stakeholders are aware, engaged and committed to action. To engage stakeholders and gather insights, we held: Two stakeholder workshops, with a diversity of representatives of business, unions, education sector, research institutes, the nonprofit sector and government. A series of bilateral interviews with stakeholders across three technical missions to better understand how the system works and their perspectives A call for best practices in adult learning – to which 9 Qualifica Centres responded A survey on how to implement the recommendations, which stakeholders attending the second workshop were invited to complete. The survey asked about evaluating the importance of recommendations, the time and budget needed for implementation, which organisation should lead implementation, and to identify the key conditions necessary to support implementation. And three inter-ministerial meetings with the National Project Team, one to map the adult learning system, and two to discuss in depth the recommendations
- #8 7
- #11 Skills are becoming increasingly important, they empower countries and people to… ….thrive in our increasingly interconnected and rapidly changing world …so countries can ill afford not to take a strategic approach to ensuring that people: develop the rights skills And use these skills fully and effectively
- #25 To start with the first priority; increasing awareness
- #26 to participation.