Policy-making in French VET systems : trends, performance management, challenges

1. Policy-making in French VET systems: trends, performance management, challenges Governance and effective Vocational Education and Training policies: the role of evidence, Torino, 23-24 Nov 2011 Robert Fouchet, Dean of the Institute of Public Management at the Paul Cézanne University in Aix-en-Provence (Aix-Marseilles III)

2. The LOLF* and its local applications[*Loi organique relative aux lois de finances – Constitutional Bylaw on Budget Acts] Origins of the LOLF The new budget architecture Performance management tools Enhancing transparency

3. Environment: Users and context Long-rangeeffects (Impacts) Needs Socio-economic problems Intermediate effects(Results) Objectives Resources Activities Outputs Organisation: Mission, Programme, Action Efficiency Relevance Effectiveness Usefulness and sustainability Adapted from Pollitt & Bouckaert, 2004

4. The Bouckaert & Halligan framework for analysis • Two strands Coverage Processes Meso Deliverables Micro Impacts Inputs Macro • Using • Incorporating • Measuring • The stakes of the analysis of depth: • Is monitoring global? • How are hierarchical aspects taken into account? • What is the management dialogue strategy? • The stakes of the analysis of coverage: • What elements are measured? • What dimensions are scrutinised? • What is the time horizon of the analysis? • Which beneficiaries are taken into account? • When is monitoring carried out? Depth

5. Origins of the LOLF • Quest for more efficient expenditure: • Greater knowledge of content of expenditure • Identification of room for manoeuvre • Transition to a performance management approach • 1959 Order => new budget constitution • Existing commitments • Discussion focusing on resources • Priority given to consumption • Partitioning and compartmentalisation of • budget according to nature of charges, etc. • Justification from the first euro • Matrix classification • Indicators and accountability • Transparency and parliamentary scrutiny • Strengthen strategic thinking on public • finances

6. Principles of the LOLF Performance (quest for more efficient public expenditure) is the key feature of the LOLF

7. A matrix classification

8. Performance management tools: accountability 4Formal presentation to Parliament • Commitments made: annual performance plans (APP), attached to the budget bill. The APP describes the action forming the programme, measures the respective costs, defines the objectives and provides the indicators for measuring results • Results achieved: annual performance reports (APR), attached to the budget bill • APP and APR have the same presentation and the same structure so that forecasts can be compared with actual results • Vote at first reading on bill n-1 before examining the budget bill n+1 4 A written formulation of objectives: – in programme operating budgets (POB) and, where applicable, operating units (OU) –in the documents binding operators to ministries

9. Performance management tools: objectives and indicators • Objectives for citizens, users and taxpayers

10. Examples of quality of service objectives-indicators Objectives setting out the expected quality of the service provided to users (in the strict sense), i.e. capacity of the service to satisfy beneficiaries.

11. Objectives influencing the monitoring of services Performance objectives stated as operational objectives that can be monitored by the services National performance objectives Performance objectives limited Intermediate objectives to regions (POB) activity or output objectives process objectives or implementation methods: measures to improve organisation, management, etc. to particular fields of application: networks, mechanisms, etc.

12. resources activities outputs results long-range impacts The different types of objectives and indicators Performance objectives in the production chain Benefit for USERS: quality of service Benefit for CITIZENS: socio-economic effectiveness Benefit for TAXPAYERS: resource managementeffectiveness

13. resources activities outputs results long-range impacts Other objectives (excluding performance) in the production chain Intermediate objectives Objectives for implementing courses or forms of action e.g.: No. of action plans, management improvement plans, etc. Volume or allocation of output objectives e.g.: No. of certificates issued Volume, consumption, allocation of resources objectives General objectives: Socio-economic impacts depending on many factors: e.g.: rate of unemployment Volume or allocation of activity objectives e.g.: No. of hours

14. resources activities outputs results long-range impacts Objectives and indicators inbudget documents Intermediate objectives General objectives Performance objectives To justify the choice of performance objectives POB APP

15. resources activities outputs results long-range impacts The different types of objectives and indicators Performance, management monitoring and assessment Public policy assessment Management monitoring quality of service socio-economic effectiveness management effectiveness Performance measurement

16. Transition from a resource-driven approach to a result-driven approach –Infra-annual (management monitoring; management dialogue)–Annual (APR)– CIAP [Comité Interministériel d'Auditdes Programmes] audits, Court of Auditors audits, inspections, public policy assessment 4An iterative approach Initial diagnosis Analysis of results Define/redefine objectives, indicators, targets, policy instruments Implementation Results Performance-driven monitoring Formalising of objectives in APP at national level and POB at operational level

17. 2006 2003 2004 2005 T3 T4 T1 T2 T3 T4 T1 T2 T3 T4 T1 Implementation of the LOLF Second milestone: Prefiguring Third milestone: Implementation First milestone: Construction of platform • Structuring of missions, programmes, actions • 2004 experiments identified • Accounting framework • Structuring of budget-accounting classification • Guidelines of new implementation processes • Communication plans • Presentation of appropriations in LOLF format • Performance objectives and indicators • Ministerial formulation of budget-accounts classification • Appraisal and development of experiments • Accounting procedures • Training plans • 2006 budget in LOLF format • Breakdown and job monitoring arrangements • New management and organisation methods • Opening balance • Stakeholders trained for the new budget implementation process and new accounting

18. Summary: changes brought about by the LOLF The LOLF removes obstacles

19. Lifelong vocational training and guidance policies A decentralised view

20. Lisbon Strategy Bologna Process • Law 29/11/11 on lifelong vocational training and guidance • LOLF • Contrat de plan régional de développement des formations professionnelles (CPRDFP) [Regional Vocational Development Plan Contract] • Annual agreements for applying the CPRDFP State • Parliament • Prime Minister • Information and guidance representative • Ministries • Conseil National de la Formation Professionnelle tout au long de la vie (CNFPTLV) [National Council for Lifelong Vocational Training] • Fonds paritaire de sécurisation des parcours professionnels [Joint Fund for Rendering Career Paths Secure] • Association nationale pour la formation professionnelle des adultes (AFPA) [National Association for Adult Vocational Training] Regional level • Regional Council • Regional Director • Decentralised Administrations • Education Offices • Comité de Coordination Régional de l’Emploi et de la Formation Professionnelle (CCREFP) [Regional Coordinating Committee for Employment and Vocational Training] • CESR [Conseil économique et social de la région – Regional Economic and Social Committee] • Employee and employer representatives Citizens, operators, administrations, businesses, universities

21. Context and aims of the new vocational training and guidance system Context New aims of national and local policies Gradual enlargement of target audiences of vocational training policies • Young people from 16-25 years of age (Law of 20 December 1993) • Anyone who wishes to acquire and update knowledge to further their vocational development Recognition in law of a lifelong public guidance service Further decentralisation of powers at regional level • 2002: all target audiences, transfer to the region of matters connected to the validation of prior learning • 2004: transmission of health and social training, vocationally-oriented training in artistic and cultural fields Signature of CPRDFP in 2011 • New means of involvement connected to the BTS [Brevet de Technicien Supérieur – Advanced Vocational Training Certificate], secondary school technology pathways, vocationally-oriented training in SE Law of 29 Nov 2009 • A new ‘public lifelong guidance service to guarantee all persons access to free, full and objective information on occupations, training, certification, job opportunities and remuneration levels, as well as access to high-quality, networked and personalised guidance services’ Creation of the Conseil National de la Formation professionnelle tout au long de la vie (CNFPTLV) [National Council for Lifelong Vocational Training]: • Mission: ‘to promote nationwide dialogue between the State, the regions, the social partners and other stakeholders to define the multiannual guidelines and annual priorities for initial and continuing vocational training policies, and to design and monitor the implementation of such policies’

22. Context and aims of the new vocational training and guidance system Principal guidelines of the 2011 CNFPTLV: • 1. To take account of regional needs, the economic context, the labour market, economic and social change, and the development of occupations and qualifications • 2. To propose the provision of a coherent and coordinated lifelong information and guidance service • 3. To provide universal access to a first level of qualification • 4. To develop 0n-the-job training and apprenticeships • 5. To safeguard career paths • 6. To ensure greater clarity in training provision, which must be adapted to requirements • 7. To ensure better coordination of vocational training policies • 8. To develop expertise and observation tools for use by decision-makers

23. Drafting of CPRDFP at regional level: Provence-Alpes-Côte d’Azur • –Prefect, Directors of Education, Regional Directors Functioning –Quarterly meetings –Discuss and act upon committee proposals –Monitor CPRDFP implementation –Ensure links with Job Centres and the AFPA [Association nationale pour la formation professionnelle des adultes – National Adult Vocational Training Association] The opportunity to innovate: ‘We believe that the objectives of the Law on Lifelong Vocational Training and Guidance of 24 November 2009 fall well below the expectations of vocational training stakeholders. This is why we are going to adopt a more ambitious approach that brings the social partners together.’ (CR Chairman) • –Regional Council Chairman, Vice-Chairman responsible for VT • –Employer organisations and chambers of commerce CCREFP • –Representatives of employee organisations –Chairman of the CESR [Conseil économique et social de la région–Regional Economic and Social Committee] Organisation: Cabinet Semaphores Mandate 5 Committees Other invited bodies –Experts – Matters addressed Vocational paths and continuity, employment and regional economic development: training, social and economic investment Implementation: ‘This will be […] a compartmentalised CPRDFP, with different contracts according to the partners, [it] will be a living document, a true programming document, with specific financial commitments for each signatory. Those who can commit will sign it’ Reception service, information, guidance, support and advice: help people to obtain vocational qualifications for sustainable employment Operators: –administrations, agencies, universities, training and support bodies, etc. … … …

24. General observations on the formulation and implementation of lifelong vocational training and guidance policies Sources: CNFPTLV, CCREFP Rhône-Alpes, CCREFP PACA • Diagnosis • –Often unquantified elements that can easily be transposed to other French regions • –Data sometimes old (chosen because they are available), in-depth analysis often being relegated to target-based agreements after the CPRDFP has been signed • –Diagnostic processes without using a methodical forward-looking approach • –Involvement of reliable institutions in the diagnostic stage (Observatoire Régional des Métiers [Regional Labour Market Observatory], CARIF Espace Compétences [public interest group]) • Formulation • –Continuous development of national priorities and law • –Further decentralisation and increase in number of forums in an already crowded landscape • + Better integration of local context and uptake of innovations in policy implementation • + Dialogue highlighting needs and knowledge at grassroots level • –Lack of work by Pôle Emploi [public employment service] and university vice-chancellors • Decision-making • –A process carried out as a matter of urgency • –Authorities’ role sometimes insufficiently defined • –Inconsistent political and institutional support, making it difficult to match vocational training paths and levels with employment and skills needs • + Mainstreaming: coordination between sectoral approaches and vocational sectors, regional approaches and analysis in terms of target audiences and training and work integration paths • –Diversity of parties and complexity of stakes involved, making it difficult to define objectives that can be put into operation • Implementation • Poor feedback at this point at this time • –Stakeholders’ involvement in the CPRDFP is not examined as a legally certain contractual commitment • + Diversity of operators makes it difficult to apply objectives and to formalise agreements in the framework of the CPRDFP • –Unequal attention paid to output development, monitoring and evaluation Monitoring –The complexity of the stakes and funding mechanisms raise real challenges in defining, calculating and monitoring indicators. This dimension of the CPRDFP must be professionalised. –Difficult financial commitments in multiannual projects in the context of changing ‘rules’.

25. Professionalisation in the French higher education system after the Bologna reforms: expectations and reality European professionalisation and commitments Contracting training provision in France: the four-year contract (principles, processes) Expectations and reality of the process in terms of professionalisation Expectations and reality of indicators of professionalisation

26. Professionalisation in higher education since Bologna Bologna, 1999 Leuven, 2009 (Bologna in 2020) • A system of easily readable and comparable degrees which includes the introduction of a joint diploma supplement to enhance transparency; • A system essentially based on two cycles: a first cycle of at least three years, which is advantageous to the labour market, and a second cycle (Master’s) requiring completion of the first cycle; • Employability – the parties involved must cooperate to raise initial qualifications and renew a skilled workforce, and to improve the provision, accessibility and quality of careers and employment-related guidance services. In addition, work placements embedded in study programmes and on-the-job learning must be encouraged; • Improve data collection: create multi-dimensional transparencytools. These tools should be based on comparable data and adequate indicators and should incorporate the principles of the Bologna Process relating to quality assurance and recognition;

27. Ministry/universities contracting process: four-year training • Accreditation of national degrees by the Ministry on the proposal of universities: • General degrees • Vocational degrees • Master’s degrees • Role of the AERES [Agence d’évaluation de la recherche et de l’enseignement supérieur – Research and Higher Education Quality Assurance Agency] as a quality assurance agency • Authorisation in waves on four-year contracts, then five- or even six-year contracts

28. Ministry/universities contracting process: four-year training • Process: • Negotiation of training provision (preliminary descriptors, set-up descriptors, self-test: SWOT, intra-university independent assessment, RNCP [Répertoire national de certifications professionnelles – National Register of Vocational Qualifications] descriptors, annexes describing degree) • Vote in component boards • Vote in CEVU [Conseil d’Etudes et de la Vie Universitaire– Advisory Board for University Life and Studies] then in CA [Conseilacadémique– Academic Council] • Referral to AERES • Return of assessments to training providers (A+, A, B, C) • Responses to AERES with or without changes to accreditation files • Forwarding to DGES-IP • DGES-IP opinion and notes (favourable/unfavourable, reservations, recommendations) • Responses of training providers with or without changes • Universities/Ministry negotiation • Authorised training provision.

29. Four-year training and professionalisation Hopes Realities • Length of contract: • Bringing into line with labour market realities • Quality assurance thanks to accreditation procedures • Too short/too long: • four years (assessment after less than two years) or six years (time to respond). • A very long process (2 years): • January 2010: launch • 15 October 2010: forwarding to Ministry • April 2011: AERES opinion • October 2011: DGESIP opinion • December 2011: accreditation • Indicators of professionalisation not highly valued in the accreditation file: multiplicity of other indicators: staff, attractiveness, costs of tutorial equivalent hours, part of subject/crosscutting education (degree)

30. Four-year training: indicators of professionalisation Indicators used The reality of professionalisation • Occupation codes: • RNCP: ROME [Répertoire opérationnel des métiers et des emplois – Register of Occupations and Trades] codes • Nomenclature spécialités de formation: NSF [training classification] • Subjects sector codes: SISE-DGESIP • Employment integration figures: • National survey 30 months after obtaining a Master’s. • Upskilling advice with professionals • Realities of the working world becoming more complex and changing • Sectoral and subject approaches ill-suited to the realities of the working world • Unrepresentative method (number of respondents by specialism, lack of information on the match between training and occupations) • Internal surveys not well developed or difficult to compare (different methods) • Not well developed (except for IUT [University Institutes of Technology], Licences pro [vocational degrees], apprenticeship and some components/training)