EDUCATION Igniting ideas!

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Picture credits Title: Thinkstock Bonn, Berlin 2011

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Federal Cabinet resolution on the Report

on Vocational Education and Training 2011

The Federal Government’s resolution on the Report on Vocational Education and Training 2011 submitted by the Federal Minister for Education and Research.

Report on Vocational Education and Training 2011

The vocational training situation continued to improve for training place applicants in 2010, influenced by a decrease in applicant numbers due to demographic developments, an increase in the number of in-company training contracts, and reduced numbers of previously unsuccessful training applicants and young people in the transition system.

The central challenges in ensuring a future supply of skilled staff are still

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declining numbers of school leavers due to demographic

developments,

•

improving access for young people from the transition

system into vocational training, which is indispensable in this context,

•

increasing the attractiveness of training

in the dual system,

•

taking European and international developments into

account in shaping national vocational training policy .

The goal is to create an overarching initial and continuing vocational training system and closely integrate it with other areas of education and training. This means

•

structurally improving opportunities for transfer into the

dual training system,

•

establishing organic links between initial and continuing

vocational training,

•

Modernising and increasing the flexibility and attractiveness

of vocational training,

•

Expanding continuing vocational training,

•

Creating opportunities for transferring from dual, initial and

continuing vocational training into university .

The Federal Government has provided new impetus for initial and continuing vocational training policy in 2010, increasing its integrative strength, modernizing the vocational training system and strengthening German vocational training in the context of international and European cooperation. To ensure a future supply of skilled staff though vocational training, the focus will be on two areas of activity:

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A sustainable structural improvement of the transition into

vocational training . Concrete actions here include the Federal Ministry of Education and Research’s new “Education chains leading to Vocational Qualifications” (“Bildungsketten bis zum Ausbildungsabschluss”) programme, the re-orientation and extension of the National Pact for Training and Young Skilled Staff, with a particular focus on attracting young skilled staff from the transition system, and the optimising of the Federal Government’s transition system funding .

•

Increasing the attractiveness of the dual vocational training

system, especially for talented young people . In addition to preparing a national initial and continuing vocational training campaign beginning in 2011, this also includes planning and preparing a vocational training initiative to ensure a future supply of skilled staff .

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1. The Federal Government’s Vocational Training Policy Priorities

In Germany there is broad consensus in the vocational

training policy area on the vital importance of the dual vocational training system. It is attractive, provides high quality professional skills and qualifications, and results in high rates of transition into the labour market and a

comparatively low level of youth unemployment1 _{– clear}

advantages over other vocational training systems. This is proven by the review of training for 2010. The training situation for young people in Germany has continued to improve despite the global financial and economic crisis. Recurrent strong economic growth, companies’ forward-thinking personnel policies, and a reduction in the number of applicants for training places due to demographic change are the main reasons for this.

1 According to EUROSTAT, Germany had a youth unemployment

rate of 8.6 percent in December 2010, one of the lowest unemployment rates for under 25 year-olds (By way of comparison it was 20.4 percent in Europe generally and 21 percent in the EU27).

From the 1st_{of October 2009 until the 30}th_{of September 2010}

560,073 new training contracts were concluded nationally (564,307 in the previous year). This slight decline is due mainly to figures from eastern Länder and is a direct result of demographic developments. In western Länder more contracts were concluded than in the previous year. It is particularly pleasing that with 519,030 new places, another increase was recorded in the number of in-company training contracts.

The dual system has become increasingly important in the context of international training competition. The new EU Agenda 2020 on education and vocational training, adopted in 2010, clearly declared for the first time the EUwide goal of providing industry-oriented, practical vocational training, the introduction of trainee programmes, comprehensive, high quality vocational training, and opportunities to transfer from it to university. The Organisation for Economic Cooperation and Development (OECD) also overwhelmingly confirmed the importance, effectiveness and quality of Germany’s dual system in its “Learning for Jobs” comparative study, which was carried out in 17 countries worldwide and published in 2010.

Vocational training however still faces a broad range of challenges that require continuous adaptation:

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Rapid technological change and increasing qualification

requirements must be reflected in the quality of vocational training .

•

The decline in the number of applicants for training places

due to demographic developments, which are already

becoming clearly apparent, especially in eastern Länder, is changing the supply and demand ratio in the training market, increasing the risk of a future shortage of skilled workers .

•

Increasing competition for the best minds between

vocational training and universities, which increasing numbers of new students will only intensify, will require a targeted increase in the attractiveness of and in

applications to the dual system, including for high achievers .

•

The ongoing lack of opportunities for transfer between

areas of the vocational training system means that it is clearly necessary to increasingly open up and integrate schools, the transition system and dual vocational training

and to reduce the number of young people22_{who cannot}

access the dual system, which is too high .

2 The term “young person“ as used in this report does not refer to a legal definition or concrete age range.

The Federal Government wants to make Germany the ‘Federal Republic of Education’, so it has agreed with the Länder to increase total state and industry expenditure on education and research to 10 percent of gross domestic product (GDP). Federal Government spending on education and research will be increased by 12 billion EUROs by 2013. Initial and continuing vocational education is a core area of this process.

The Federal Government will also build on what it has already achieved in cooperation with the Länder and social partners and continue its tried and tested programmes and initiatives (see the Report on Vocational Education and Training 2010).

In 2010 the Federal Government set additional new priorities and spent considerable sums on concluding and implementing a variety of new initiatives and agreements.

To ensure an adequate supply of training places and young

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skilled staff, the Federal Government extended the National Pact for Training and Young Skilled Staff in the autumn of 2010 with industry organisations, acting for the first time with the Länder Ministers of Cultural and Educational Affairs as pact partners . They agreed on quantitative training goals, set new priorities and agreed on activities for dealing with demographic change .

These include increasing the attractiveness of vocational training for talented young people and the targeted integration of previously unsuccessful training applicants, young people from migrant backgrounds and the disadvantaged in the dual vocational training system .

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To further the national integration of schools, the transition system and the dual vocational training system, the Federal Government has launched the “Educational chains leading to vocational qualifications” (“Bildungsketten bis zum Ausbildungsabschluss”) initiative in coordination with the Länder, which is designed to prevent students from dropping out of school, avoid ‘holding patterns’ in the transition system, and ensure a supply of young skilled staff through vocational training . Three integrated funding instruments will be used to achieve this: analyses of potential starting in grade 7, mentors for the transition into the labour market to provide continuous individual monitoring and support to school students in need of assistance over several years, and practice-oriented career orientation measures starting in grade 8 . The initiative started in November 2010 . Initial Federal Government-Länder agreements to systematically anchor the “Educational chains” approach in the Länder have also been made or agreed on in parallel . Improving the efficiency of the transition system is the goal of a research unit appointed by the Federal Government that will present its reform proposals in 2011 . To improve the transition to training, initiatives in the National Pact for Training to strengthen in-company training preparation have also been agreed on .

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To strengthen vocational training, an initiative will be

launched in 2011 to attract employees to more continuous training and make more targeted use of relevant Federal Government funding programmes, improving the transparency and quality of training programmes and better integrating initial and continuing vocational training . A further priority is the “Increasing the attractiveness of vocational education for talented young people” (“Attraktivitätserhöhung Berufliche Bildung für Leistungsstarke”) campaign to attract talented young people to initial and continuing vocational training .

•

One important area of activity is ensuring the quality,

flexibility and mobility of vocational training . Priorities here include ensuring the quality of the vocational training process, the systemic linking of related occupations into professional groupings, the provision of access to and transfer of credits from previous professional qualifications to university qualifications, and the creation of procedures for evaluating and transferring credits from the previous professional qualifications of migrants .

This report is structured as follows:

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Chapter 2 deals this year with activities in the area of “mobility” .

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Chapter 3 describes training market developments and identifies areas requiring further action .

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In Chapter 4 major Federal Government actions and programmes to promote initial and continuing vocational training are presented . This chapter also deals with the vocational training system’s orientation towards the future

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Chapter 5 contains information about European and international cooperation in the area of vocational training .

The data report on the Report of Vocational Education and

Training33_{, which is published by the Federal Institute for}

Vocational Education and Training (Bundesinstitut für Berufs bildung – BIBB) and issued at the same time as the Report on Vocational Education and Training, complements the Federal Government’s Report on Vocational Education and Training.

3 cf. http://datenreport.bibb.de

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2. Promoting transfer opportunities – demands of a modern

training system

Globalisation and demographic change pose central challenges for society and the education system. Against this background, the education system’s high levels of performance must be maintained and it must be adapted to future challenges. A closed education system cannot adequately meet the demands of a modern, mobile and equal society. Creating an education and training system that provides transfer opportunities and facilitates access and transition is one of Germany’s great political and social challenges.

To improve opportunities for lifelong learning and make it more attractive, new incentives must be created and existing obstacles eliminated. Increasing opportunities for transfer in the education and training system will be a major factor in achieving these goals. Education policy must create adequate promotional prospects of equal value, facilitating access, integrating initial and continuing vocational training and effectively increasing transitions between educational sectors. Opportunity for transfer between different education system sectors in this sense means being able to have achievements and learning outcomes recognised and transferred from one educational sector into another. It also means including skills acquired in informal learning processes. The education system – from early childhood education through to the tertiary sector – must be a consistent overall system and specifically and proactively provide transparent developmental paths that offer opportunities for transfer.

The proposal for a “German Qualifications Framework for Lifelong Learning”, adopted on the 10th_{of November 2010, has} created a framework covering all qualifications in the German education and training system spanning different educational sectors. In making the equivalences and differences of qualifications transparent through its orientation towards learning outcomes, the German Qualifications Framework should substantially contribute to increasing transfer opportunities.

The steps that have been taken towards increasing opportunities for transfer between vocational education and university and towards creating transfer opportunities within vocational education will be focused on in the following section. Measures and programmes designed to make it easier to enter into vocational training (opportunities for transfer on the threshold to vocational education) are described in detail in Chapter 4.1 of this report.

Transfer opportunities in the focus of educational policy The topic of transfer opportunities per se is not new to this decade. A lack of transfer opportunities has been identified as a structural deficit of the German education system since the 1960s. The recommendations of the “Innovation Circle on Vocational Education and Training” (“Innovationskreis

Berufliche Bildung”)4_{, adopted under the BMBF’s leadership}

in 2007, called for comprehensive transfer opportunities at the interfaces and transitions between school and vocational training, initial and continuing vocational training, and vocational training and higher education.

4 cf. www.bmbf.de/pub/IKBBBroschuere10_Leitlinien.pdf These

recommendations, which focused on vocational training, identified important preconditions for the structural support of lifelong learning through more transfer opportunities. Further important steps have been taken since then.

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The Federal Government and Länder agreed at the

education summit, “Getting Ahead Through Education”, held in October 2008 in Dresden, to promote transitions from vocational education or continuing vocational education to university with an “upgrade package” . This is designed to significantly increase the number of vocationally qualified students starting university without

the usual university entrance qualifications by 2012 .5

5 cf. www.bmbf.de/pub/beschluss_bildungsgipfel_dresden.pdf.

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One major milestone on the way to further opening up

access to university is the resolution of the “Conference of Ministers of Education and Cultural Affairs” (Kultus ministerkonferenz) on “Entry to higher education for applicants with vocational qualifications but with no school-based university entrance qualification” of the

6th_{of March 2009 and its gradual implementation by the}

Länder . With this decision, the Länder agreed on joint criteria for access to higher education for vocationally qualified applicants who do not hold university entrance qualifications . Under this scheme, holders of advanced vocational qualifications (master craftsmen, technicians, certified senior clerks or the like) are provided with a general university entrance qualification . Vocationally qualified applicants without advanced vocational qualifications receive a subject-restricted higher education entrance qualification if they have completed at least two years of relevant vocational training, can demonstrate three years of relevant professional practice and successfully complete an aptitude test or one year of trial studies .

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The “Joint Länder Structural Targets for the Accreditation of Bachelor’s and Master’s Degree Courses” updated by the Conference of Ministers of Educational and Cultural Affairs in 2010 also opened up the possibility that an entrance examination would suffice in certain exceptional cases for continuing education Master’s courses instead of a university degree qualifying the graduate to enter a profession . This would benefit holders of advanced vocational qualifications, who would be able to directly access Masters courses after passing an entrance examination and fulfilling possible further entrance requirements .

In December 2010 the BIBB’s board adopted a recommendation to promote opportunities for transfer between vocational and university education and training.6

6 cf. www.bibb.de/dokumente/pdf/HA139.pdf

To support the transition from vocational education to university and create study conditions that better meet the needs of all involved, the board proposed a series of concrete actions. These include incorporating rules for transferring credits from vocational qualifications into universities’ examination regulations, expanding degree courses for those in employment, and providing more intensive information and consultancy.

Transfer opportunities – status and developments Legal regulations also provide a framework for opening up access and transitions between educational pathways and levels. The Vocational Training Act (Berufsbildungsgesetz – BBiG), amended in 2005, includes various regulations to make the recognition and transfer of previously acquired educational achievements possible.

Transfer opportunities are also supported by countless Federal Government activities and initiatives, which are linked with a variety of interfaces.

Improving the transparency of learning outcomes At the end of general school education young people face the challenge of choosing a course of training and finding a traineeship. For those who do not succeed in finding a vocational training place, the so-called ‘transition system’ is an opportunity for vocational orientation and a chance to acquire pre-vocational skills and eliminate existing disadvantages so as to pave the way into vocational training. The transition to the dual system and transfer of credits for learning achievements acquired in vocational training preparation make highly transparent learning outcomes necessary. Creating these outcomes and making the transition into training possible remains a crucial task.

Increasing mobility within the vocational training system

Another interface in the vocational training system is between full-time school-based and dual vocational training. Opportunities for transfers between these two sub-systems can be increased by transferring credits from learning

achievements in full-time school-based education and training to dual vocational training. This will help prevent those who have completed full-time school-based vocational training and transfer to dual vocational training from getting stuck in educational ‘holding patterns’.

Full-time, school-based vocational training is usually a training course that is legally recognized and regulated by Länder laws. In 2008/2009 there were approximately 227,700 students at full time vocational schools (outside

the parameters of the BBiG/HwO)7_.

7 cf. data report on the Report on Vocational Education and Training 2010, page 242

Section 7 of the BBiG (Vocational Training Act) authorizes Länder governments to pass regulations on the complete or partial transfer of credits from training courses at vocational schools to dual vocational training. These options however are little used in the Länder and decisions to shorten periods of vocational training often remain isolated cases. The DECVET pilot initiative projects (see the following section for a detailed description) have made it their mission to identify equivalences between full-time school based and dual vocational training courses so as to facilitate transfers between training courses and avoid redundancies by transferring credits from previous learning achievements.

A further possibility for promoting transfer opportunities lies in transferring credits from learning outcomes in a range of vocational training disciplines. After a trainee changes a training occupation within an occupational field – or breaks off vocational training or changes training employer – it can be assumed that they have achieved learning outcomes that could be credited. The existence of curricular interfaces in these occupations can be demonstrated, but standardised procedures at these interfaces are lacking. These will however be indispensable in enabling future skilled staff to find their way quickly into employment.

A vocational qualification, which is a major precondition for successful integration into working life, can also be acquired without completing vocational training by successfully sitting a final examination. Admission to final examinations under the terms of S. 45 Para. 2 of the BBiG (Vocational Training Act) or S. 37 Para. 2 of the HwO (Crafts Code) (so-called ‘external examination’) makes it possible for those with professional experience to acquire a vocational qualification that will not only improve their chances on the labour market but also expand their access to lifelong learning. In 2009, 28,000 people acquired a vocational qualification in this way.

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After acquiring a first certificate qualifying the holder to enter a profession, whether this is after completing dual vocational training or via the admissions procedure for examination by a particular Chamber, further training offers employees an opportunity to continue education and training and thus also to acquire a higher qualification and a chance to upgrade their role in their enterprise. Financially supported by advanced vocational training funding, around

157,500 employees8 _{started such training in 2009.}

8 Source: Federal Statistical Office

The number of advanced vocational qualifications funded increased by 18 percent compared with the previous year. According to the Federal Employment Agency (BA) (using provisional projected data) 585,584 training measures and continuing vocational training or qualifications during short-time work were also funded in 2010.

A current survey by the German Chamber of Industry and Commerce (Deutsche Industrie und Handelskammertag – DIHK) of those who had completed Chamber of Industry and Commerce (Industrie und Handelskammer – IHK) continuing education examinations shows that 67 percent were promoted or now have more responsibility, 61 percent improved their financial situation, 31 percent increased their job security, and 21 percent were managing their work better than before the training. Around 7 percent found a job after training. The survey “Upgrading training and studies – vocational and occupational biographies in comparison” („Aufstiegsfortbildung und Studium – Bildungs und Berufsbiographien im Vergleich“), carried out by the Vocational Training Research Initiative of

the BMBF9_{showed, using some advanced qualifications as}

examples, that those who had completed advanced vocational qualifications succeeded, by improving their professional performance, in obtaining more interesting and demanding work, which also usually results in higher earnings.

9 cf. www.bmbf.de/de/6201.php

Expanding professional skills means improving both career and promotion prospects and the ability to adequately react to the changing demands of work.

As well as completed vocational training, admission to advanced vocational training also requires several years of professional experience, during which employees informally acquire skills that may be suitable for credit transfers. Easier access to further training would promote increased transfer opportunities between initial and continuing vocational training. This would make it easier to recruit personnel for senior expert and managerial roles. Identifying possible options for transferring professional experience credits to further training is one of the tasks of the DECVET pilot initiative (for a detailed description see following section). The goal must be to further improve transitions between initial and continuing vocational training to promote individual opportunities for promotion.

Increasing access to university

Few holders of vocational qualifications without a (subject restricted) university entrance qualification start a university course after vocational training and/or a period of work. The quota of first-year students with no conventional higher education entrance qualification in Germany in 2007 was just over 1 percent. It must however be taken into account that the vocational and university education systems are broadly accepted and highly regarded and the combination of company-based vocational training and a university course is often seen as a successful way of obtaining a vocational qualification. In the winter semester of 2009/2010, 21 percent of first-year students had completed company-based training. Among students at universities of applied sciences, 37 percent had already completed company-based training when they began their studies; at universities this proportion was

11 percent.10

10 Source: Higher Education Information System (HIS): HIS survey of first year students, winter semester 2009/10. Calculations by the Federal Institute for Vocational Education and Training

Against the background of a possible shortage of skilled workers and the increasing importance of lifelong learning, increased transfer opportunities could contribute to securing a future supply of skilled staff. The value of an academic education is also growing as a result of the increasing complexity of operational workflows. A number of companies have already recognised this and are actively involved in the academic education of their skilled staff, who already have in some cases many years of professional experience, by supporting their participation in studies while in employment. Individuals also regard greater opportunities to transfer credits that offer comprehensive training and promotion options as

an opportunity. 22 percent of respondents in the 7th _Chamber

of Industry and Commerce (IHK) continuing education and training success survey who had completed IHK continuing education examinations stated that they wanted to obtain further qualifications at university level.

In recent years the lack of opportunities for transfer from vocational to university education has often been reduced to a too restrictive provision of access to higher education for holders of vocational qualifications without a (subject restricted) university entrance qualification. The wider general conditions must however be designed to motivate and support holders of vocational qualifications to start university courses.

Particular attention must be paid to the transfer of credits for acquired professional skills. Holders of vocational qualifications have usually already acquired a broad range of qualifications through their vocational training, professional practice and possible continuing education and training. Here the BMBF’s ANKOM initiative has proven the feasibility

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of transferring credits for acquired professional skills to university courses for various combinations of academic and vocational disciplines and developed practical credit transfer processes.

Holders of vocational qualifications also need attractive courses of study that take the specific characteristics of this target group into account. Those holding vocational qualifications who decide to start a university course after vocational training or a period of employment are not only much older than other students; they also usually have far-reaching family and financial obligations. University courses designed for those in employment or part –time study make it possible to combine work, study and afamily. Course methodology and teaching must also be oriented towards this target group and reference made to previous professional experience. These demands are met by the “Advancement through Education: Open Universities” competition, the goal of which is to develop and expand future-oriented courses of study.

The BMBF’s actions and programmes: promoting talent, exploiting potential

Structuring general conditions to facilitate access to and transitions between educational levels but also between sub-systems of the education and training system is a major educational policy task. The goal must be to vitiate the rigid barriers between educational sectors and promote equality of opportunity and participation in lifelong learning. For this reason, the BMBF has initiated a range of actions and programmes to promote opportunities for transfer in recent years.

Jobstarter Connect

Since 2009, pilot projects in the “Jobstarter Connect”11

funding programme have been trialing training modules in 14 occupations requiring formal training. These training modules facilitate transitions between school, work and placement in vocational training. The possibilities for these transitions that emerge from this funding programme’s

findings are described in Chapter 4.1.3 of this report.

11 cf. www.jobstarter.de/de/1208.php Vocational Qualification Perspectives

With its “Qualification-oriented modular training for adults without vocational qualifications” (“Abschlussorientierte modulare Nachqualifizierung”) funding initiative in the

“Vocational Qualification Perspective”12_{programme (two}

rounds of funding from 2008 –2013) the BMBF is seeking to create sustainable and appropriate general conditions for the subsequent acquisition of vocational qualifications and thereby to contribute to reducing the number of unskilled and semi-skilled young adults in and outside employment. To this end, training concepts for adults without vocational qualifications that are tailored to specific regional requirements will be adapted and implemented, existing funding options made transparent and bundled, and

consultancy and support structures expanded13 _{in cooperation}

with regional labour market players.

12 cf. www.perspektiveberufsabschluss.de 13 cf. Chapter 4.1.3

DECVET – the pilot initiative to develop a credit system for vocational education and training

Creating transitions in the national vocational training system at prominent interfaces is the focus of the pilot initiative “DECVET – development of a credit system for vocational education and training”. A consistent system for describing and transferring learning outcomes in vocational training has been lacking so far. The BMBF’s DECVET pilot initiative, which started in 2007, seeks to remedy this lack and identify and implement solutions.

Ten pilot projects have been funded in different industries to identify and trial current potential for transferring credits in and around the dual system. The development of transparent, open procedures for transferring learning outcomes is designed to increase vertical and horizontal opportunities for transfer between sub-areas of vocational training. Such procedures are being trialed at four prominent interfaces in the vocational training system:

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between vocational training preparation and dual

vocational training,

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within dual vocational training at the interface

of joint cross-occupational qualifications in an occupational field,

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between full-time school-based and dual vocational

training,

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between dual vocational training and further training

as regulated by sections 53 and 54 of the Vocational Training Act (BBiG) .

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The pilot projects aim to develop models and procedures for identifying, assessing and transferring learning outcomes. Models for transferring credits were developed based on the following individual steps:

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Definition of achievement-oriented learning outcomes,

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Assessing, validating and documenting learning outcomes

(procedures for ascertaining skills),

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Development of proposals for defining credit points,

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Identification of possible potential for transferring

credits at the interfaces around the dual system (equivalence comparison),

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Development of transferable credit transfer models .

By the end of the DECVET pilot initiative in 2012 as well as the processing and assessment of test results, an overarching analysis of projects and the development of generalised statements and synchronisation of this national initiative with European processes is planned.

The continuing education grant

The BMBF’s continuing education grant14_{supports young}

people in gaining professional qualifications after successfully completing vocational training.

14 cf. www.sbbstipendien.de/weiterbildungsstipendium.html This grant funds specialist continuing education, for example to become a technician, master tradesman or certified senior clerk, as well as interdisciplinary training courses, such as computer courses or intensive language courses, and courses of study for those in employment that build on training or employment. Funding is provided to cover the costs of measures, travel and subsistence, and of necessary equipment. Applications can be made for grants of a total of 5,100 EUROs for an unlimited number of continuing education courses eligible for funding within the three-year funding period. In the intake year of 2010, around 5,800 new applicants were accepted into the programme. 17,000 young skilled workers from the intake years 2008 to 2010 are currently taking advantage of this continuing education grant for their further professional qualification, making the continuing education grant Germany’s biggest grant programme.

Recognition of Vocational Competencies in Higher Education (ANKOM)

The goal of the BMBF’s ANKOM15_{initiative was to identify}

skills acquired in professional (continuing) education as equivalent academic credits transferrable to higher education courses and develop corresponding transfer models.

15 cf. http://ankom.his.de

A total of eleven projects were funded from the autumn of 2005 to summer 2008. Based on the experience gained, the researchers supporting the ANKOM initiative developed the “Quality assurance guidelines for procedures to transfer credits for skills acquired professionally or outside school to university courses” (“Leitlinie für die Qualitätssicherung von Verfahren zur Anrechnung beruflicher und außerhochschulisch

erworbener Kompetenzen auf Hochschulstudiengänge”)16 _,

which describes all the main procedural steps for transferring credits (description of learning outcomes, examination of equivalencies, the arrangement of credit transfer procedures and evaluation).

16 cf. http://ankom.his.de/material/dokumente/ANKOM_ Leitlinie_1_2010.pdf

It is designed to create transparency and promote trust and confidence in the system for everyone involved (holders of vocational qualifications who are interested in further study, those involved in initial and continuing vocational training, universities, ministries, accreditation agencies etc.). The researchers’ work will continue into the summer of 2011, in order to make the results known for the purposes of a broadly-designed transfer process and to support vocational training institutions and universities in the concrete implementation of opportunities for recognising and transferring credits.

The “Advancement through Education: Open Universities” competition

The Federal Government and Länder will work together in coming years through the “Advancement through Education:

Open Universities”17_{competition to increase opportunities}

for transfer between vocational and academic training and education. The BMBF has allocated 250 million EUROs for this purpose. Current practical training courses and those designed for working adults but also dual study courses will be expanded, increasing the opportunities for lifelong learning. Concrete funding is due to begin in 2011.

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Upgrading Scholarships

Individual, personal funding and support is provided by the

BMBF’s upgrading scholarships18_.

18 cf. www.bmbf.de/de/12742.php

Even when talented skilled staff are already earning an income with their vocational qualification, monetary aspects often prevent them from starting an advanced course of study leading to further qualification.

These scholarships are designed to provide additional incentives for further study, thereby improving the career prospects of talented skilled workers. Funding for full-time study is 750 EUROs monthly and for those combining work and study 1,700 EUROs per year. Two years after the programme started, over 2,500 upgrading scholarships have already been awarded. 40 percent of those in the “upgrading scholarship” programme are currently combining work and study. Around 30 percent are studying ‘MINT’ subjects (Mathematics, Informatics, Natural Sciences and Technology – MINT for short). Eight out of ten scholarship holders are studying at a university of applied sciences and approximately 40 percent are over 30 years old. Only a third of scholarship holders have general higher education entrance qualifications. In this respect, the programme, in addition to its intrinsic objectives, also makes an important educational and social policy contribution by increasing equality of opportunity by extending access to higher education.

Shaping lifelong learning – a constant challenge Few holders of vocational qualifications currently succeed in transferring within and between educational levels with a full recognition and transfer of previously acquired skills. For Germany as an information and knowledge society, from an economic and business, educational policy but also from an individual point of view, this situation is not satisfactory. The Federal Government’s goal is therefore to support achievement-oriented workers to develop their individual potential and avoid being stuck in ‘holding patterns’ and “double qualifications”.

With the proposal for a German Qualifications Framework

for Lifelong Learning, adopted on the 10th_{of November 2010}

by the working group, the Federal Government and Länder have created an instrument covering all educational levels that makes it possible to make skills acquired in various learning and occupational contexts comparable and thus also transferrable. During the trial phase in 2010 it was however clearly shown in the exemplary referencing of qualifications in four sectors and from all levels of education that existing measures for ensuring compliance are not yet sufficiently oriented towards describing learning outcomes to be able

to establish any equivalencies. For the Federal Government, Länder and especially for training programme providers the task is to promptly formulate all measures designed to ensure compliance, curricula, general training plans, examination requirements etc. in a way that is oriented towards skills and learning outcomes.

The ANKOM and DECVET pilot initiatives, funded by the BMBF, have developed concrete practical procedures for improving the transparency and transfer of vocational skills. The Federal Government’s goal is to implement these different aspects and approaches in an overall strategy that will not only lead to single optimisations in individual education and training system sectors, but also incorporates all areas of lifelong learning, including informal learning. To ensure the attractiveness and future viability of vocational training, it is vitally important that the system opens up a broad range of attractive developmental and career opportunities and that vocational qualification are regarded as an equal “high road” to senior and higher professional positions and roles.

Germany has by international standards an extremely good and systematically structured system of initial and continuing vocational training and vocational certification. Many qualifications and skills that are elsewhere acquired at universities are successfully and adequately taught in initial and continuing vocational training in Germany. Those who have completed initial and continuing vocational training pursue occupations with high professional profiles as often as or even in competition with university graduates. The high qualification levels provided by initial and continuing vocational training are still a competitive advantage for Germany at an international level.

As well improving general structural conditions to promote transfer opportunities, the Federal Government has set itself the goal of sustainably increasing the use of existing options. To achieve this goal it will be necessary to ‘customise’ access and transfers to meet current requirements. By expanding and continuing to develop further training and study courses for those already in the workforce and developing concepts and structures for systematic consultation and support, skilled staff can be motivated to obtain an advanced qualification. All those involved in vocational training are called upon to turn these challenges into chances.

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3. The training market situation in 2010

Dual vocational training makes a sustainable contribution

to the German economy’s productivity, ability to innovate, and competitiveness. Its closeness to the employment system is a decisive advantage of dual vocational training. On the one hand it enables

companies to train their young skilled staff in a way that is practice-oriented and tailored to companies’ needs. On the other hand it offers trainees a good chance of gaining long-term employment and is thus a vital precondition in enabling them to lead independent lives and participate in society. Its closeness to the employment system also means that the training situation depends heavily on the current economic situation. This has been recently shown in the results of the BIBB survey for 2009, as the number of newly concluded training contracts declined clearly in the wake of the global economic and financial crisis (and

demographic developments)19_.

19 cf. Report on Vocational Education and Training 2010, page 9. Against this background, the BIBB’s prognosis for 2010 was for a further decline in training places offered (newly concluded training contracts plus training vacancies) of around 20,200 or

3.5 percent down to 563,00020_.

20 cf. Report on Vocational Education and Training 2010, pages 20–21.

The results were in fact much better than forecast, largely because of positive economic developments.

The number of training places offered declined by just

1,884 or 0.3 percent to 579,678 (see Chapter 3.1, Table 1).

Western Länder even recorded a slight increase of 4,445 or 0.9 percent to 484,254 training places offered.

As well as the economic situation, demographic change is a major factor influencing the development of the training market situation. This is already clearly recognisable in eastern Länder, where the number of training places offered decreased as a result of the demographically-related decline in numbers of school leavers by 6,314 or 6.2 percent to 95,328.

Here too, the training market situation has improved because the number of young people interested in training has fallen sharply. In 2010 around 17,800 fewer young people

left general-education schools in eastern Länder than in 200921 _.

21 Further declines have been recorded among school leavers from vocational schools and previously unsuccessful training applicants.

A review of past figures makes the extent of this decline clear. The number of school leavers in eastern Länder ten years ago was around 235,000 but by 2010 it had declined by more

than half to about 114,10022_.

22 According to BIBB analyses, the decline in school-leaver numbers in eastern Länder is now so pronounced that young people’s chances of obtaining training are now ‘de-coupled’ from the local jobs market situation. Applicants therefore now have a relatively good chance of gaining a training place, even in areas where unemployment levels are currently still very high. Cf. www.bibb.de/ veroeffentlichungen/de/ publication/show/id/6524.

This has had consequences for the training market. In recent times it has almost exclusively been young people who could not obtain the training they wanted, but now the number of companies that cannot fill the traineeships they offer is increasing. It is also not only eastern Länder that are affected, even if the effects here are currently

more clearly evident23 _.

23 cf. Chapter 3.5

At the same time there are still many applicants who do not succeed in making a prompt transition from school into training. Those most affected are for example so-called ‘previously unsuccessful training applicants’, young people from migrant backgrounds and socially and educationally

disadvantaged young people24 _.

24 On the Federal Government’s measures and programmes see Chapter 4.

Against the background of long term demographic developments and to avoid a possible shortage of skilled workers, the Federal Government has agreed together with industry in the National Pact for Training 2010–2014 to specifically and increasingly give young people who have had difficulties entering into training a chance to do so. The goal must be to use all existing potential for vocational training, thereby securing a supply of skilled workers and Germany’s future position as a high-quality business location.

The Federal Government would like to thank all companies that provided training in 2009/2010 for their commitment.

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3.1. Newly concluded training contracts

and the results of the training year

on the 30

th

_{of September}

A slight plus in western Länder, a decline due to demographic developments in eastern Länder According to the results of the BIBB survey by the competent bodies, 560,073 new training contracts were concluded

nationally in the period from the 1st_{of October 2009 to the 30}th

of September 2010, which is 4,234 or 0.8 percent fewer than in

200925_.

25 As a result of a notification of corrections from one Chamber the Federal Institute for Vocational Training has revised its 2009 data, so there may be discrepancies compared with earlier statements.

This decline is solely due to the numbers of contracts concluded in eastern Länder (–7,335 or –7.4 percent to 91,663) and is thus a direct result of demographic developments.

In western Länder 468,410 more training contracts, +3.101 or +0.7 percent, were concluded than in the previous year.

Again more training vacancies than unplaced applicants

The BA’s statistics recorded 19,605 remaining training

vacancies26_{in September 2010, 2,350 or 13.6 percent more}

than in 2009.

26 The BA now includes data from accredited municipal employment agencies (zugelassene kommunale Träger – zkT) as standard in its reports on registered applicants. As a result there are discrepancies between the comparative figures provided here for 2009 compared with earlier statements (only in respect of Federal Employment Agencies (Agenturen für Arbeit – AA) and working groups (Arbeitsgemeinschafte – ARGE)). In interpreting the data it must be taken into account that total zkT and AA/ARGE figures overlap slightly, i.e. applicants who received support from both the AA/ARGE and from zkT in the search for a training place. Such double registrations are made based on need as defined in Volume 2 of the German Social Code (Sozialgesetzbuch – SGB II), or conversely upon the cessation of need. They do therefore conform with the system. It must also be taken into account that reports on registered vocational training places have hitherto contained no data from zkT. According to estimates by the BA however, only a few training places are registered with the zkT that are not also registered with the AA and ARGE. The BA assumes that there will be “no appreciable distortions” if only those vocational training places registered with the AA and ARGE are included. In contrast, taking into account applicants registered only with the AA and ARGE would lead to “serious falsifications” (see also explanations by the BA on statistics at

www.pub.arbeitsagentur.de/hst/services/statistik/201009/ To make this report more readable, we refer throughout in short to the ‘BA’, by which is meant in the context of training placements the Federal Employment Agencies (Agenturen für Arbeit) and basic social welfare agencies.

There was a particularly strong increase of 38.6 percent in the numbers of training vacancies in eastern Länder, where the number of training vacancies has quadrupled in recent years (2000: 930; 2005: 850; 2010:3.665). In western Länder too, there were 15,844 training vacancies, many more than in the previous year (+9.3 percent).

The situation for unplaced applicants is also far more favourable compared with the previous year. 12,255 applicants were still unplaced in September 2010 (–3,424 or –21.8 percent compared with September 2009). At the end of the training year there were therefore again more training vacancies than

unplaced applicants27 _.

27 The following section and Chapter 3.5. provide more

information on applicants who had alternatives on the 30.9. and a continuing wish for training placement who are registered with the BA.

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The training market situation

Compared with the previous year, the training market situation for young people has further improved. This is suggested by

the indicators measuring the training market situation28_:

28 Discrepancies with comparative figures for 2009 compared with earlier statements are due on the one hand to data revisions by the BA and BIBB, and on the other hand to the inclusion of applicants from accredited municipal employment agencies (zkT). The BA further revised data on its training markets statistics on 31.03.2011.

•

Supply and demand ratio

Following the procedure of S . 86 Para . 2 of the Vocational Training Act (Berufsbildungsgesetz – BBiG) the number of traineeships is shown as the number of newly concluded training contracts plus training vacancies still registered with the BA . Demand is calculated using the number of newly concluded training contracts and the number of young people still registered as unplaced with the BA . According to this calculation, 579,678 training places were offered in 2010, a decline of 1,884 or 0 .3 percent . Demand for training places declined by 572,328, down 7,658 or 1 .3 percent . Because demand fell more sharply than supply, the supply and demand ratio improved compared with the previous year (see Table 1) . Nationally it was 101 .3 (2009: 100 .3) . In 2010 the supply and demand ratio was more favourable in western Länder at 101 .5 (2009: 100 .7) than in eastern Länder with 99 .9 (2009: 98 .3) .

•

Expanded supply and demand ratio

Since the classic definition of demand does not completely reflect the number of young people looking for training places, the Report on Vocational Education and Training and National Education Report also include an “expanded” definition of demand, which as well as unplaced applicants also includes young people who have begun an alternative to training (for example a pre-vocational measure or

internship), but still want to undergo training29_.

29 It must be taken into account that this expanded definition of demand is entirely based on the criterion of applicants’ continued desire for a training place. In terms of placement aspects, by no means all of these young people have no fully

qualifying training place (see Chapter 3.5).

Since their number fell from 77,110 in 2009 to 72,342 in 2010 (see Chapter 3.5), the expanded supply and demand ratio also

improved compared with the previous year (see Chart 1) .

According to their definition it was less favourable than the “classic” supply and demand ratio, which was 89 .9 (previous year: 88 .5) . Applying the expanded supply and demand ratio reveals – in contrast to the “classic” supply and demand ratio – a more favourable training market situation in

eastern Länder30_.

30 This is due to a different way of dealing with unsuccessful young people and a different funding policy, see also the section of this report on “company-based and external training contracts”.

The expanded supply and demand ratio in eastern Länder was 93 .8 (previous year: 92 .1) and in western Länder 89 .2 (previous year: 87 .8) .

•

Computed placement rate

A computed placement rate that refers only to one year’s group of school leavers leaving general education schools oversimplifies market conditions, because demand for training places does not come solely from among current school leavers . The advantage of this variable is however that it corresponds relatively well with the size of one year’s group and does not depend on the numbers registered

with the BA31_.

31 cf. Chapter 3.5

In 2010 the national computed placement

rate was 66 .1 percent (see Chart 2) . This was a slight

increase compared with 2009 (64 .8 percent) . As a result of the steeper decline in numbers due to demographic developments in eastern Länder, the computed placement rate was around 15 percent better there than it was in western Länder . It also improved compared with the previous year . An adequate supply of places is achieved when the computed placement rate continuously remains

at a level of at least two thirds over several years32_.

32 cf. www.bibb.de/dokumente/pdf/a21_beitrag _lehrstellenmarkt2009.pdf, page 29 ff

This was the case nationally in 2010 . In eastern Länder this goal was clearly exceeded; in western Länder it was not entirely achieved . Given the difficult general economic conditions prevailing at the beginning of the training year, a computed placement rate of 63 .8 percent in eastern Länder – even compared with previous years – can be regarded as good .

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Table 1: Newly concluded training contracts, supply and demand 1992 to 2010 (Part 1)

Compared with previous year New training contracts Training vacan cies Unplaced appli

cants Supply Demand

Supply and demand

ratio

Contracts Supply Demand

absolute percent absolute percent absolute percent

Nationally 1992 595,215 126,610 12,975 721,825 608,190 118.7 1993 570,120 85,737 17,759 655,857 587,879 111.6 –25,095 –4.2 –65,968 –9.1 –20,311 –3.3 1994 568,082 54,152 18,970 622,234 587,052 106.0 –2,038 –0.4 –33,623 –5.1 –827 –0.1 1995 572,774 44,214 24,962 616,988 597,736 103.2 4,692 0.8 –5,246 –0.8 10,684 1.8 1996 574,327 34,947 38,458 609,274 612,785 99.4 1,553 0.3 –7,714 –1.3 15,049 2.5 1997 587,517 25,864 47,421 613,381 634,938 96.6 13,190 2.3 4,107 0.7 22,153 3.6 1998 612,529 23,404 35,675 635,933 648,204 98.1 25,012 4.3 22,552 3.7 13,266 2.1 1999 631,015 23,439 29,365 654,454 660,380 99.1 18,486 3.0 18,521 2.9 12,176 1.9 2000 621,693 25,690 23,642 647,383 645,335 100.3 –9,322 –1.5 –7,071 –1.1 –15,045 –2.3 2001 614,236 24,535 20,462 638,771 634,698 100.6 –7,457 –1.2 –8,612 –1.3 –10,637 –1.6 2002 572,323 18,005 23,383 590,328 595,706 99.1 –41,913 –6.8 –48,443 –7.6 –38,992 –6.1 2003 557,634 14,840 35,015 572,474 592,649 96.6 –14,689 –2.6 –17,854 –3.0 –3,057 –0.5 2004 572,980 13,378 44,084 586,358 617,064 95.0 15,346 2.8 13,884 2.4 24,415 4.1 2005 550,180 12,636 40,504 562,816 590,684 95.3 –22,800 –4.0 –23,542 –4.0 –26,380 –4.3 2006 576,153 15,401 49,487 591,554 625,640 94.6 25,973 4.7 28,738 5.1 34,956 5.9 2007 625,885 18,359 32,660 644,244 658,545 97.8 49,732 8.6 52,690 8.9 32,905 5.3 2008 616,342 19,507 14,515 635,849 630,857 100.8 –9,543 –1.5 –8,395 –1.3 –27,688 –4.2 2009 564,307 17,255 9,603 581,562 573,910 101.3 –52,035 –8.4 –54,287 –8.5 –56,947 –9.0

New figures including zkT

2009 564,307 17,255 15,679 581,562 579,986 100.3 2010 560,073 19,605 12,255 579,678 572,328 101.3 –4,234 –0.8 –1,884 –0.3 –7,658 –1.3 Western Länder 1992 484,954 122,953 10,948 607,907 495,902 122.6 1993 456,959 83,307 13,905 540,266 470,864 114.7 –27,995 –5.8 –67,641 –11.1 –25,038 –5.0 1994 435,388 52,462 16,902 487,850 452,290 107.9 –21,571 –4.7 –52,416 –9.7 –18,574 –3.9 1995 436,082 42,889 18,821 478,971 454,903 105.3 694 0.2 –8,879 –1.8 2,613 0.6 1996 434,648 33,642 23,896 468,290 458,544 102.1 –1,434 –0.3 –10,681 –2.2 3,641 0.8 1997 448,323 25,112 30,793 473,435 479,116 98.8 13,675 3.1 5,145 1.1 20,572 4.5 1998 468,732 22,775 22,297 491,507 491,029 100.1 20,409 4.6 18,072 3.8 11,913 2.5 1999 482,213 22,657 18,517 504,870 500,730 100.8 13,481 2.9 13,363 2.7 9,701 2.0 2000 483,082 24,760 14,214 507,842 497,296 102.1 869 0.2 2,972 0.6 –3,434 –0.7 2001 480,183 23,618 11,962 503,801 492,145 102.4 –2,899 –0.6 –4,041 –0.8 –5,151 –1.0 2002 447,426 17,123 13,180 464,549 460,606 100.9 –32,757 –6.8 –39,252 –7.8 –31,539 –6.4 2003 434,747 13,994 22,267 448,741 457,014 98.2 –12,679 –2.8 –15,808 –3.4 –3,592 –0.8 2004 448,876 12,533 29,319 461,409 478,195 96.5 14,129 3.2 12,668 2.8 21,181 4.6 2005 434,162 11,786 29,334 445,948 463,496 96.2 –14,714 –3.3 –15,461 –3.4 –14,699 –3.1 2006 452,215 13,556 33,237 465,771 485,452 95.9 18,053 4.2 19,823 4.4 21,956 4.7 2007 500,787 15,953 23,077 516,740 523,864 98.6 48,572 10.7 50,969 10.9 38,412 7.9 2008 502,604 16,664 10,154 519,268 512,758 101.3 1,817 0.4 2,528 0.5 –11,106 –2.1 2009 465,309 14,500 6,903 479,809 472,212 101.6 –37,295 –7.4 –39,459 –7.6 –40,546 –7.9

New figure including zkT

2009 465,309 14,500 11,259 479,809 476,568 100.7

2010 468,410 15,844 8,494 484,254 476,904 101.5 3,101 0.7 4,445 0.9 336 0.1

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Table 1: Newly concluded training contracts, supply and demand 1992 to 2010 (Part 2)

Compared with previous year New training contracts Training vacan cies Unplaced appli

cants Supply Demand

Supply and demand

ratio

Contracts Supply Demand

absolute percent absolute percent absolute percent

Eastern Länder 1992 110,261 3,657 2,027 113,918 112,288 101.5 1993 113,161 2,430 3,854 115,591 117,015 98.8 2,900 2.6 1,673 1.5 4,727 4.2 1994 132,694 1,690 2,068 134,384 134,762 99.7 19,533 17.3 18,793 16.3 17,747 15.2 1995 136,692 1,325 6,141 138,017 142,833 96.6 3,998 3.0 3,633 2.7 8,071 6.0 1996 139,679 1,305 14,562 140,984 154,241 91.4 2,987 2.2 2,967 2.1 11,408 8.0 1997 139,194 752 16,628 139,946 155,822 89.8 –485 –0.3 –1,038 –0.7 1,581 1.0 1998 143,797 629 13,378 144,426 157,175 91.9 4,603 3.3 4,480 3.2 1,353 0.9 1999 148,802 782 10,848 149,584 159,650 93.7 5,005 3.5 5,158 3.6 2,475 1.6 2000 138,611 930 9,428 139,541 148,039 94.3 –10,191 –6.8 –10,043 –6.7 –11,611 –7.3 2001 134,053 917 8,500 134,970 142,553 94.7 –4,558 –3.3 –4,571 –3.3 –5,486 –3.7 2002 124,897 882 10,203 125,779 135,100 93.1 –9,156 –6.8 –9,191 –6.8 –7,453 –5.2 2003 122,887 846 12,748 123,733 135,635 91.2 –2,010 –1.6 –2,046 –1.6 535 0.4 2004 124,104 845 14,742 124,949 138,846 90.0 1,217 1.0 1,216 1.0 3,211 2.4 2005 116,018 850 11,154 116,868 127,172 91.9 –8,086 –6.5 –8,081 –6.5 –11,674 –8.4 2006 123,938 1,835 16,240 125,773 140,178 89.7 7,920 6.8 8,905 7.6 13,006 10.2 2007 125,098 2,338 9,576 127,436 134,674 94.6 1,160 0.9 1,663 1.3 –5,504 –3.9 2008 113,738 2,769 4,358 116,507 118,096 98.7 –11,360 –9.1 –10,929 –8.6 –16,578 –12.3 2009 98,998 2,644 2,697 101,642 101,695 99.9 –14,740 –13.0 –14,865 –12.8 –16,401 –13.9

New figures including zkT

2009 98,998 2,644 4,417 101,642 103,415 98.3

2010 91,663 3,665 3,760 95,328 95,423 99.9 –7,335 –7.4 –6,314 –6.2 –7,992 –7.7

Discrepancies between the totals for “western Länder” and “eastern Länder” and national figures may be due to data that cannot be allocated to one category or the other.

There are discrepancies in the data for 2009 compared with earlier statements due to data revisions by the BA and BIBB.

Sources: Federal Institute of Vocational Education and Training (Bundesinstitut für Berufsbildung – BIBB), Federal Employment Agency (Bundesagentur für Arbeit – BA)

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Source: Federal institute of Vocational Education and Training (Bundesinstitut für Berufsbildung – BIBB), survey of 30 .9 .; Statistics of the Bundesagentur für Arbeit (BA)

Nationally Western Länder Eastern Länder

85.0 90.0 95.0 80.0 2009 2010 93.8 89.9 89.2 92.1 88.5 87.8

Chart 1: Expanded supply and demand ratio, 2009 and 2010

Chart 2: Computed placement rate (Training contracts per 100 school leavers)

Source: Bundesinstitut für Berufsbildung (BIBB), survey of the 30 th of September, Federal Statistical Agency (StBA); before 2009 actual figures, 2010: estimate 70.0 % 75.0 % 80.0 % 85.0 % 65.0 % 60.0 % 55.0 % 50.0 %