Governance Dynamics and the Application of the Multilevel Governance Approach in Vocational Education and Training (VET) in the European Neighbourhood Countries: the case of the ENPI South region

This article analyses moves towards good multilevel governance approaches in Vocational Education and Training (VET) as an effective way to improve VET policy making in transition and developing countries, focusing on the Southern Neighbourhood of the EU (ENPI South). The centralised approaches in public administration and to VET governance still prevail in this region. The new modes of governance applied by the EU in the policy area of education and training are based on the Open Method of Coordination (OMC). They are a source of inspiration to improve VET governance, taking into account the complexity of VET policies and systems. According to current European and international experiences, the most effective, relevant and attractive VET models and systems are demand‐driven. They rely on the effective and accountable participation of both state (national/local public actors) and non‐state VET stakeholders (e.g. employers, sectoral actors, unions) in decision‐making and policy implementation processes. This could also pave the way towards self‐governed and performance‐based VET provider institutions which would give quicker responses to rapidly changing labour market skills, competences and qualification needs. Thus, this means putting in practice more and better inclusion and effective cooperation and coordination of regional and local voices of VET actors and developing stronger social partnerships to engage employers, unions and civil society in shaping and investing in skills development. Furthermore, the role of methodological tools for VET governance is not only to provide an analytical ground to capture data and structure further policy advice. These tools can also be used as ice‐breakers to improve collaboration, inclusiveness, multi‐participation and trust‐building among policy makers as they work together on very sensitive issues such as reviewing country VET governance models, modes and institutional arrangements, and/or planning policy thinking and/or learning for implementing coordination mechanisms for VET policy making. The European Training Foundation (ETF) has implemented a methodology to map, analyse and self‐assess good multilevel governance in VET, inspired by how EU governance soft tools in education and training are being used. This methodology has been applied to the Governance for Employability in the Mediterranean (GEMM) project in the ENPI South region, which is a regional project implemented by the ETF and financed by the European Commission's Directorate General for Neighbourhood and Enlargements Negotiations (NEAR).     

Policy learning and governance of education policy in the EU

Open methods for coordinating (OMC) education policies in the EU rely on a number of techniques, one of which is policy learning. This article examines how policy learning and governance transform each other. More specifically, policy‐learning in the education OMC becomes differentiated into four distinct learning styles: mutual, competitive, surface and imperialistic learning. While they overlap with some forms of policy learning discussed in the literature, they are also different by focusing upon interactions and political dynamics between the European Commission and the member states. In seeking to understand how governing through learning occurs, we argue that any ‘impact’ of EU‐level policy‐learning is co‐constructed by both the European Commission and the member states. The analysis of this article is grounded in a discourse analytical and institutionalist perspective. It draws on qualitative data derived from semi‐structured interviews with officials from the Directorate General for Education and Culture in the European Commission and on EU documents generated during policy‐learning activities.     

Diagrams of Europeanization: European education governance in the digital age

Abstract

European education governance is increasingly affected by and effectuated through digital means. This article presents an analysis of the way in which Europe is increasingly deploying digital technologies, and more specifically websites, in order to shape and communicate its education policies. Drawing on the notion of the diagram as the multimodal combination of texts and visuals into a single plane, the article scrutinizes two websites that play a central role in the production and distribution of policy data: first, the European Commission’s Directorate Education and Culture website presenting the Education and Training monitor; second, the Open Education Europa website stimulating the deployment of Open Education practices in Europe. Conceived as active devices, various diagrams on these websites are analyzed in view of the operations they perform. It is argued that these diagrams portray related interplays of absence and presence, enact specific spaces into being, and call for specific ways of taking action upon the reality they purport to represent. As such, diagrams have become an integral part of European education governance in the digital age.     

‘Becoming European’? Respatialising the European Schools System through PISA for Schools

ABSTRACT

This paper examines the Organisation for Economic Cooperation and Development’s (OECD) PISA for Schools, a local variant of the more-renowned ‘main PISA’ test that measures and compares individual school performance on reading, mathematics and science against international schooling systems. Here, I address the governance implications of how PISA for Schools data has been taken up by the transnational European Schools System (ESS). Drawing suggestively across new ‘relational’ thinking around data-driven modes of governance, as well as interviews with key policy actors within the ESS, I show how PISA for Schools reflects contradictory logics within the ESS, in which the inherently context-based goal of ‘becoming European’ is juxtaposed with the desire to employ decontextualised international evidence. I conclude by exploring how the perceived need for such data, associated with the global authority of the OECD, can produce a problematic focus on data-driven practices.     

Rescaling expertise in EU policy-making: European think tanks and their reliance on symbolic,political and network capital

ABSTRACT

This article explores the strategies think tanks (TTs) from Brussels, London, Paris and Ljubljana use to exert influence on European Union (EU) policy-making. The paper argues that European TTs mobilise symbolic, political and network forms of capital built at the European level to enhance their legitimacy, credibility and visibility in the Brussels policy-making scene. The paper examines how TTs convert these forms of capital using the examples of the symbolic value of the ‘TT’ label, the role of expert providers, the strategic ‘presence’ in Brussels, and their membership in TT networks, and states the particular importance of symbolic and network capital in the EU policy context, which contribute to the legitimacy of the EU policy-making itself.     

Trans-nationalization of educational policy making: from European innovation projects in adult education to an emerging European space for lifelong learning: what model for the European vocational education and training policy?

This article is drawn from broader qualitative research on innovation in the field of professional adult training within the framework of European pilot projects such as the LEONARDO projects. This research aims at contributing to a general understanding of the phenomenon of innovation, in the context of European calls for projects, as an instrument of the European Vocational Education and Training (VET) Policy, which is supposed to transform the national training systems of EU member states according to the Lisbon Strategy. For this article, the author has chosen to present some of the results of the analysis of the European VET Policy and its transition to a lifelong learning policy. The first part of this article describes the conceptual framework and more especially three of the main concepts examined: public policy, social innovation and European space. The second part distinguishes three periods in the European VET policy’s history, identified through a genealogical examination from its first step within the European Coal and Steel Community to the present lifelong learning policy. The third part highlights the specificity of this supranational public policy model and the links between the European VET policy, the LEONARDO programme and the pilot projects. In conclusion, this article supports the idea of antagonistic logics in the evolution of this policy, on at least three levels: decision-making powers, conception of VET systems and conception of learning.     

'The centre cannot hold': complexity and difference in European Union policy towards a learning society

The notions of lifelong learning and a learning society have been an important policy driver in the European Union at both the Commission and national government levels for a number of years. Overall, these policies aim to promote the twin goals of competitiveness in international markets and social cohesion within the still-expanding borders of the Union itself. To date, however, the impact of this emphasis on lifelong learning has been relatively slight. This article argues that this is in part because the policy process in relation to the development of a learning society is based on a view of governance and power that is open to reasoned dispute, and is, therefore, bound to disappoint in relation to its espoused goals. It is suggested that, rather than implementation being the main ‘problem’ of policy, the policy context inevitably generates many recontextualizations and renegotiations of meanings according to the situations and the actors involved, thereby undermining the notion of ‘implementation’ as a technical-rational process. It is argued that the complex negotiations enacted at local level reveal and are fashioned by tensions between the membership resources available to actors. This emphasizes complexity, diversity, and difference in policy processes, bringing to the fore a communicative and distributed approach to policy rather than one that is technical and centralizing.     

Bologna 2010. The Moment of Truth?

Government policies are central factors shaping the environment of higher education institutions. European governments have included in their higher education political strategies the principal goal of implementing the European Higher Education Area (EHEA). The perceptions that key actors of higher education institutions (HEIs) have about political developments are important as they may influence the achievement of government policy. The Bologna Process is at the heart of policy coordination, the instrument selected at European and national levels to establish EHEA. This article seeks to discuss empirically the views of institutional actors about the Bologna Process, taking into consideration the achievement of EHEA. The discussion is based on the analysis of the EHEA implementation in seven HEIs located in four higher education systems — Germany, Italy, Norway and Portugal. This paper draws on the theoretic-methodological approach of the policy cycle to analyse the perceptions of HEIs' constituencies about Bologna.     

Policies of adult education in Portugal and France: the European Agenda of validation of non-formal and informal learning

This article analyses the influence of the European Union’s educational policies on the implementation of devices for the recognition and the validation of informal and non-formal learning within public policies on education and training for adults in European Union Member States. Portugal and France are taken as examples. The European Union’s statements have influenced the development of devices for recognizing adult competences, regardless of the social, cultural and economic specificities of each country. However, sociocultural and sociopolitical characteristics influence the conditions under which recognition devices and the methods of their experimentation and generalization emerge, and are the vector of conflicts of interests between macro- and micro-sociological levels. There is at the same time a ‘culture of convergence’ impelled by the European Commission, and a process of adaptation in matters of cultural and territorialised practices, which aim to avoid marginalization. Data are drawn from official documents and interviews with people in charge of training institutions.     

Filling in the gaps: European governance,the open method of coordination and the European Commission

The article addresses the way in which EU policy‐making operates, explains the relevance of ‘lifelong learning’ for the European Commission and analyses the mechanisms by which the Commission has advanced policy‐making in education and training since the Lisbon Summit. The article reviews in particular the alleged lack of effectiveness of the Open Method of Coordination in education and, second, the notion that the EU advances ‘slowly and persistently’ in its acquisition of competences in this area.     

Teacher Competence Frameworks in Europe: policy-as-discourse and policy-as-practice

This article analyses the growing focus on teacher competences in European policy discourse against the backdrop of global convergences in education reforms. It traces key ideas, policy recommendations, peer learning and documents which underscore the relevance of teacher quality for education improvement, as recently stressed in the European Commission Communication and Staff Working Documents Rethinking Education. The intertwining of teacher competence frameworks with other areas of education policy is outlined — key competences in school education, the quality of initial teacher education, and the continuous professional development of teachers — teasing out reasons for their central role. Some insights from research and peer learning then explore key implications in the defining and implementing of teacher competence frameworks in national education systems. A comparative viewpoint further analyses current policy trends about teacher competences across European national contexts, in discourse and practice. In order to do so, a framework of analysis takes into account system features as key variables affecting national policy — roles and responsibilities of stakeholders, governance and education cultures, and the status of the teaching profession. Across the variety of policy practices, the analysis endeavours to trace some emerging patterns and trends, highlighting paradigmatic national examples, with some food for thought.     

Glimpsing the Future in the Past: VET in Europe

What do we expect from Vocational Education and Training (VET) systems? Is it different from 25 years ago? This article argues that the focus has increasingly been placed on strategies for lifelong and life-wide learning that seek to reinforce continuity among the subsystems of learning, but that VET systems are, nevertheless, still expected to address many and sometimes conflicting agendas, needs and priorities. The last 25 years or so have been critical for the development of VET in Europe. Making VET more attractive and increasing its parity of esteem in relation to general secondary education have been major, recurring themes in European countries, as part of, at least conceptually, more comprehensive approaches to lifelong and life-wide learning. From 1989 to 2003, the European Journal of Education (EJE) published a special issue on ‘Trends in Vocational Education and Training’ every two years and has continued to publish on VETrelated topics. This article revisits the major themes and challenges as they were observed and discussed by the authors who wrote in those special issues and in later articles. Many were directly involved in advisory positions to governments; held key decision-making responsibilities; undertook studies and consultancy and brought technical assistance across several countries. Their articles are moments of reflection nourished by experience on the ground. This article explores how the European Journal of Education has contributed to European reflection on VET systems, policies and preoccupations in recent decades – what can we learn that is useful for shaping and formulating our present ideas about new policy from our colleagues writing about the same or similar issues 20 years ago? A key theme concerns the role of the Europe Community (and subsequently EU) as a change agent supporting bottom-up exchange and top-down stimulus for reform through an increasing integration of education and training in the socio-economic strategy of the EU.     

Balancing tensions in educational policy reforms: large-scale implementation of Assessment for Learning in Norway

This study investigates how different stakeholders in Norway experienced a government-initiated, large-scale policy implementation programme on Assessment for Learning (AfL). Data were collected through 58 interviews with stakeholders in charge of the policy; Ministers of Education and members of the Directorate of Education and Training in Norway, and the main actors such as municipality leaders, teachers, school leaders and students. Successful implementation of AfL processes was found in municipalities where there were dialogue and trust between the municipality level, school leaders, teachers and students and where the programme was adapted to the local context. Implementation was challenged when the policy was interpreted as a way of controlling the schools. Despite the successful implementation in some municipalities, the programme did not have any effect upon students’ learning outcome, as measured on national tests in reading and mathematics. The results are discussed in relation to how local assessment cultures with particular characteristics influence governing, accountability and trust.     

欧洲学分体系中ECTS和ECVET的分析与启示

欧洲学分体系是世界范围内发展最早、试验较为成功的学分互认体系,对其进行深入分析与总结,可为我国远程教育领域学分互认体系建设的研究与实践提供有益参考。欧洲学分体系根据其应用范围,分为ECTS和ECVET两个系统。对两个系统深入分析和对比发现,两者虽然在定位、内容等方面存在差异,但其共同点在于都是欧洲学分体系的核心经验与成果,主要体现在:以学习者为中心,重视学习结果;围绕学习者终身学习需要,建立终身学习资格框架;重视质量保证,致力于提高机构之间质量的透明度和认可度。欧洲学分体系的经验成果对于我国学分互认体系建设的目的与内容、核心与难点、实施要点与保障措施等方面都有重要启示。     

Framing ICT-enabled Innovation for Learning: the case of one-to-one learning initiatives in Europe

This article discusses 1:1 learning initiatives in Europe in the context of a mapping framework of ICT-enabled innovation for learning. The aim of the framework, visualised as a spider's web, is two-fold: (i) to provide a further understanding of the nature of ICT-enabled innovation for learning; and (ii) to depict the impact of existing and emerging innovative initiatives using ICT in the Education and Training context. We present 1:1 learning initiatives in Europe as a case of ICT-enabled innovation for learning with significant scale, scope, and impact at system level and being implemented in real settings. We identified and analysed 29 1:1 learning initiatives from 19 European countries reaching a total of approximately 620,000 schools and 16,800,000 students. The application of the framework to the case of 1:1 learning in Europe (implemented in multi-faceted educational settings) showed the current state of development and the emerging trends regarding the nature, the reach, the target groups and the impact of 1:1 innovation in learning. Regarding the nature of innovation, 1:1 learning strategies in Europe can be considered as mostly incremental. There is a need to progressively move the focus away from the devices and infrastructure to the learners and to 1:1 pedagogies. The framework can contribute (i) to policy interventions -at micro, meso and macro level- aimed at diversity and systemic implementation and (ii) to strategic planning by a multiplicity of actors such as policy makers, researchers and practitioners, increasing the impact of ICT-enabled innovation in Education and Training.     

Psychodata: disassembling the psychological,economic, and statistical infrastructure of ‘social-emotional learning’

ABSTRACT

Psychology and economics are powerful sources of expert knowledge in contemporary governance. Social and emotional learning (SEL) is becoming a priority in education policy in many parts of the world. Based on the enumeration of students’ ‘noncognitive’ skills, SEL consists of a ‘psycho-economic’ combination of psychometrics with economic analysis, and is producing novel forms of statistical ‘psychodata’ about students. Constituted by an expanding infrastructure of technologies, metrics, people, money and policies, SEL has travelled transnationally through the advocacy of psychologists, economists, and behavioural scientists, with support from think tank coalitions, philanthropies, software companies, investment schemes, and international organizations. The article examines the emerging SEL infrastructure, identifying how psychological and economics experts are producing policy-relevant scientific knowledge and statistical psychodata to influence the direction of SEL policies. It examines how the OECD Study on Social and Emotional Skills, a large-scale computer-based assessment, makes ‘personality’ an international focus for policy intervention and ‘human capital’ formation, thereby translating measurable socio-emotional indicators into predicted socio-economic outcomes. The SEL measurement infrastructure instantiates psychological governance within education, one underpinned by a political rationality in which society is measured effectively through scientific fact-finding and subjects are managed affectively through psychological intervention.     

Decisions, Provisions and Disillusionment for Non-vocational Adult Learning (NVAL) Staff in South-Eastern Europe: a comparative appraisal of some policy developments with diminishing returns

Since 2000, the European Union has given greater attention to lifelong learning, as expressed in the Lisbon presidency conclusions and the general objectives of the Education and Training 2010 work programme. In September 2007, these policy proposals were further strengthened with the announcement of the ‘Action Plan on Adult Learning’ that sets out how Member States and other stakeholders could be supported to improve, implement and develop adult education and monitor its results. Because of the multitude of policy expectations, training and professional development for adult learning staff are still relatively uncommon in some parts of Europe, despite a societal demand, which also should be interpreted in the context of changing societal conditions and needs besides raising the quality of lifelong learning. This is largely echoed in South-East Europe where the situation of the training of adult learning staff is more on the downside than most policy-makers would have expected. In most South-East European countries, adult learning is expected to provide individual, cultural, and social improvement, to address illiteracy or earlier unsatisfactory access to initial education, and mostly to respond to labour market access problems. At the same time, adult learning staff have to face obstacles such as dependency on government or EU funding, changing political perspectives on and interest in adult education, policies prescribing an enclosed employment-oriented adult education market and occasionally a lack of national legislation or frameworks and structures covering their field. Along with these general findings, this article focuses on the comparison of current policies on training and professional development of adult learning staff in Bulgaria, Cyprus, Greece and Turkey, according to three vital topics:

• • Selection procedure and working conditions of adult learning staff (focusing on recruitment, professional expectations and employment situation).
• • Opportunities and obstacles for their professional development and evaluation (focusing on career paths and monitoring, assessing and evaluating issues).
• • Societal situation for the profession (focusing on attractiveness and social impact).

     

An anatomy of authority: the Bologna and ASEM education secretariats as policy actors and region builders

ABSTRACT

This paper examines the sources of authority behind the Bologna and ASEM secretariats’ technocratic appearance and administrative routines, and argues that they are transnational policy actors in their own right. By drawing on principal-agent theory and the concept of ‘authority’, it offers an alternative framework for understanding the various forms of authority. The case studies generate three important insights. First, it shows how the secretariats derive their authority from the tasks delegated by states, the moral values and social purpose they uphold, and the expertise they possess. Second, it compares how the different governance structures of the Bologna and ASEM education processes impact on the secretariats’ authority. Third, it highlights how the secretariats exercise their respective authorities and exert their discernible influence at different stages of higher education policy-making and region-building processes.     

Cognitive-motivational variables of beginner university students in the first year of adaptation to the European Higher Education Area / Variables cognitivo-motivacionales del alumnado de nuevo ingreso en el primer año de adaptación al Espacio Europeo de Educación Superior

Abstract

Within the European Higher Education Area (EHEA) the student is the main protagonist of the learning process. This means that teachers must be aware of the cognitive-motivational aspects that influence their learning. This study analyses the academic goals, learning strategies and levels of academic engagement shown by university students in their first year of adaptation to the European Higher Education Area, as well as the relationship between these variables. The results indicate that most students are averagely oriented towards learning goals and highly oriented towards achievement goals, regularly use a wide variety of learning strategies, and show average levels of academic engagement. The correlations between some of these variables are positive and significant. Further research needs to be carried out to understand the role played by different variables in constructing quality autonomous learning processes, not only in relation to students, as in the case of this study, but also in relation to teachers, tasks, contexts, and academic institutions, as well as the different interactions between them.     

New structures of power and regulation within ‘distributed’ education policy – the example of the US Common Core State Standards Initiative

Abstract

This article focuses on the growing development towards new forms of ‘distributed’ governance within current large-scale educational reforms. The emphasis is on so-called ‘governance through standards’ as a transformative reform complex which manifests itself in a simultaneous process of regulative destabilisation and (global) reconstruction of policy control. This newly emerging regulative policy ‘ensemble’ is found to be directly related to the growing collaborative activity of cross-field networks between governmental, non-governmental and private actors. Empirically, this article refers to the so-called Common Core State Standards (CCSS) Initiative which has fundamentally reshaped US education policy since 2001. The initiative comprised the negotiation, implementation and controlling of supra-state core skill standards for K-12 education as the benchmark for other regulating instruments such as assessments, monitoring and teacher training. In the context of the CCSS, the aforementioned new structures of regulation can then be located within an entrepreneurial alliance around the non-profit organisation Achieve, Inc. Through its function as a core policy network manager, Achieve generated simultaneous practices of collaboration and distinction, discourse initiation and (invisible) norm stabilisation.