Concepts for qualifications-oriented concepts for the second-chance training of young adults

Labour market prognoses indicate that there will be a dramatic reduction in the number of unskilled jobs. This is associated with the increasing employment risk faced by the low skilled or by workers who do not have a formal vocational education and training qualification. The latest findings from a representative company survey conducted by BIBB show that around 300,000 companies are interested in providing qualifications-oriented second-chance training to this group of persons. On the basis of findings from models for the flexibilisation of existing occupational fields via training modules or partial qualifications, the present article explores how these experiences can be made usable for the second-chance training of young adults.

BIBB Training Panel

The BIBB Training Panel is a regular annual survey of 2,000 companies which is used to collect longitudinal and cross-sectional data on the training activities of companies and government authorities in Germany. The survey is funded by the Federal Ministry of Education and Research (BMBF) and carried out by BIBB in conjunction with TNS Infratest Social Research. For more detailed information, please visit www.bibb.de/qp.

Number of those without training is at a high level

According to the data of the Microcensus, 2,148,000 young people and young adults aged between 20 and 29 were not in possession of a vocational education and training qualification in 2010. This accounts for a proportion of 14.7 percent of this age group and represents a slight fall compared to past years (cf. BIBB 2013, pp. 291 ff.). These people do not have any sustainable employment prospects. The jobs they take up are increasingly being cut. The risk of unemployment experienced by this group is three times higher than that of persons who have completed vocational education and training (cf. Braun et al. 2012). Data relating to the development of labour demand points in the same direction (cf. Helmrich et al. 2012).
Within the scope of the 2012 BIBB Training Panel (see box), 2,000 companies were asked if they were prepared to consider second-chance training for unskilled adults aged between 20 and 30 as a means of covering the future need for skilled workers and training (cf. Troltsch 2013).
Eleven percent of all companies surveyed were able to envisage facilitating a second-chance vocational qualification or another form of training for young people and young adults. The readiness to offer training to young people aged between 20 and 30 and without a vocational qualification is particularly marked in companies with more than 200 employees. A high significance is attached to the second-chance training of young adults without a vocational qualification in primary and manufacturing industry, two of the sectors which are most heavily involved in the provision of training within the dual system. "Other service sector occupations" are also of relevance. ¹ 75 percent of companies which have not achieved sufficient success in the past in filling training places and jobs do not expect that their situation will change in future. 40 percent of these companies believe that second-chance training for unskilled young adults is a viable way of resolving employment problems. Especially companies which provide vocational education and training are expressing a high degree of interest. The human resources and technical infrastructure which such firms have in place mean that conditions for the systematic provision of second-chance training are likely to be particularly good. The overall extrapolated result of the survey is that, in the case of recruitment problems, more than 300,000 companies are prepared in principle to offer training to young adults who have not completed a VET qualification (cf. Troltsch 2013, p. 2). Companies are interested in systematic qualifications-oriented continuing training measures which also sufficiently cover the future requirements of the labour market. At the same time, high standards are set with regard to the quality of the measures. There is a call for nationally uniform standards such as those which apply to the structuring of state recognised training occupations.

Experiences from various initiatives and programmes can be of assistance for the second chance qualification of young adults. These initiatives and programmes are outlined below. The main focus is on current approaches towards the modularisation of existing occupational profiles, which permit flexibilisation, differentiation and greater individualisation of the training measures.

BIBB has conducted a pilot initiative to develop a methodological approach towards the flexibilisation and differentiation of recognised training occupations and implemented this in 14 training occupations (cf. Frank/Grunwald 2009). The aim of the pilot initiative was to enable young people and young adults to acquire a staged vocational qualification in the transitional area and to reduce "waiting loops". Alongside flexibilisation of the occupational fields via curricular structuring in the form of training modules, the objective was also to create flexibility in terms of time. This means that training can be extended over a period in line with the individual prior learning of the young people and can also be interrupted and recommenced at a later point should acute problem situations occur. ² Six to ten competence and learning outcomes oriented training modules were structured for the occupations. Development work took place at BIBB within the scope of the usual regulatory procedures in conjunction with the social partners on the employers' side and with the Standing Conference of the Ministers of Education and Cultural Affairs (KMK). Alongside the general training plan, a skeleton curriculum for vocational schools was also included. The training modules are delineated and nationally standardised units within the overall curricular structure of an occupational profile. They are aligned to work and business processes typical of the occupation and arise from a holistic occupational profile which they thus represent in their entirety. Qualified vocational education and training is only established once all modules have been completed. Existing examination regulations remain unchanged. This means that the principle of the regulated occupation remains intact as the constitutive basis of dual vocational education and training. The training modules have been undergoing piloting since 2008 via 40 projects within the scope of the Federal Ministry of Education and Research (BMBF) programme JOBSTARTER CONNECT (cf. Ekert/Rotthowe/Weiterer 2012). Interim results indicate a positive trend. Project participants view the absence of uniform standards to assess the learning success of the modules as a crucial weakness. The deployment of procedures that are both standardised and valid would significantly increase the acceptance of the training modules (cf. Ekert/Ornig/Grebe 2013). Training modules are currently being developed for 21 further occupations.

From 2008 to 2013, the Federal Ministry of Education and Research (BMBF) funded 42 projects for "qualifications oriented modular second chance training" as part of the "Vocational qualification perspective" programme in order to make a contribution towards the establishment of sustainable structures for second chance training. The projects made use of the BIBB training modules in some cases (cf. German Aerospace Centre (DLR) Project Provider 2013). At the same time, an evaluation project of the requirements for competence assessment in second chance training was also initiated (cf. Central Agency for Continuing Vocational Education and Training in the Skilled Crafts 2013).

On the basis of the BIBB concept for the design of training modules, the Federal Employment Agency (BA) launched a project in 2009 for the "Optimisation of training provision for the low skilled unemployed" (cf. BA 2013). This pursues the aim of developing and implementing a new continuing training concept for the low skilled in order to enable this group of persons to follow a step-by-step route to a vocational training qualification. The partial qualifications of the BA were developed by the Research Institute for Vocational Education and Training (f-bb). Binding competence assessment procedures and the certification of partial qualifications were also additionally stipulated. The aim is for the modular structure to pave the way for intermittent transition to occupational employment. Certification aims to facilitate a subsequent entry into second chance training in the case of interruptions. The project is based on the assumption that a modular and learning outcomes oriented structure makes it easier to acquire partial qualifications, even for people who are unused to learning. This approach means that learning achievements are not lost and can be accumulated over the further course of training, even in the event of interruptions, and be credited towards a recognised training occupation. The certificates legitimated by the BA aim to achieve national validity and to increase transparency and acceptance. The certificate also includes indications as to the status of the partial qualification within the overall summary of the occupational field or area of activity (cf. f-bb/iwp 2011, p. 101).

Taking an analysis of needs as a basis, five occupations and one area of activity were given a modular structure and selected for the development and piloting of partial qualifications. Following a two-year piloting phase, the conclusions drawn by the BA are positive in overall terms. It is emphasised that a strengthening of public relations work within the organisations of the BA and the job centres and systematic information for companies and institutions on the opportunities of using partial qualifications are required in order to foster nationwide deployment. At the same time, target group oriented and low threshold advisory and support provision can assist participants, who are often unaccustomed to learning, with the successful completion of partial qualifications and help illustrate further development pathways (cf. BA 2013, p. 56). The final report also stresses that the number of persons progressing to further partial qualifications (i.e. systematic subsequent completion) could be larger if the entitlement to provide certification was available to the training institutions. Relevant nationally standardised competence assessment, which can only be achieved via the competent bodies, is viewed as a decisive success factor for an expansion of the use of partial qualifications. Endeavours are being made to strengthen cooperation with the chamber organisations for this purpose. The initially hostile attitude on the part of the chambers towards nationwide pilot projects for the certification of partial qualifications was later abandoned at the regional level of the chamber districts (see below). Comprehensive introduction is linked with the further development of nationally standardised partial qualifications on the basis of existing occupational profiles, a task which the BA itself has indicated it is unable to undertake (cf. ibid. P. 57).

Using these experiences as a starting point, the Association of German Chambers of Industry and Commerce (DIHK) is striving to achieve broad and active co-involvement in the certification of partial qualifications. In addition to this, the Federal Ministry of Labour and Social Affairs (BMAS) launched a qualifications related training campaign in the spring of 2013 together with the BA. These considerations are outlined below.

In March 2013, the Association of German Chambers of Industry and Commerce (DIHK) launched a pilot initiative for the "Certification of partial qualifications" with the aims of conducting pilot projects for existing partial qualifications and developing partial qualifications to cover further needs via the Chambers of Industry and Commerce. The target groups are young adults aged over 25 without a vocational qualification, job returnees and older employees without formal training. The modules or partial qualifications of BIBB and of the BA form the foundation for the initiative. Pilot projects are investigating two different procedures for certification. The certifications carry a charge which either needs to be met by the provider of the measures (training provider) or by the participants. The local Chambers of Industry and Commerce work together with the employment agencies and with the job centres where appropriate. Close collaboration with the BA is planned. The aim is to inform the regional employers' associations and the VET committees in order to increase acceptance. A steering group will organise the exchange of experiences, and an evaluation of the pilot initiative is planned (cf. DIHK 2013).

Individual chambers have already had experience with the deployment of modules/partial qualifications and the associated competence assessment. As long ago as 2012, for example, and working in conjunction with the BA, the Munich and Upper Bavaria Chamber of Industry and Commerce began a pilot project for competence assessment via training modules in a total of seven occupations. The project is to run until 2015 and will be accompanied by evaluation research. Following successful completion of the competence assessment, a chamber certificate is issued on which the training module, the reference occupation, participation in the training measure and duration of such participation are all stated. Initial results are available, for which the evaluation is positive. More than 50 percent of those completing a measure would like to do further modules and also stated that they already had a prospect of employment. Both individual benefit and subjective learning success were assessed positively. According to the evaluation of the chambers, nationally standardised training modules may be a suitable instrument for the occupational integration of low skilled people on the most permanent basis possible (cf. Amann 2012).

In the spring of 2013, the BMAS joined forces with the BA to launch the campaign "Making the most of training - looking for late entrants" with the aim of providing relevant training over the next three years to at least 100,000 young people aged between 25 and 35 and not in possession of a vocational qualification. Heinrich Alt, a Board Member at the BA, has stated that the second chance training of this target group will form a central field of activity for the agency over the coming years. The aim is to contact the young people in a targeted manner and make them an offer. At the same time, he is appealing to trade and industry to alter their recruitment strategies and give those aged over 25 the opportunity of a vocational qualification in a recognised occupation. Alongside modular training via training modules or partial qualifications, preparation for the external examination is also possible. As of the beginning of the 2013 training year, 100 young adults were able to commence their training (cf. BMAS 2013).

The opening question formulated was how qualifications oriented training measures for young adults without a formal vocational qualification can be structured, what significance the models already in place for the flexibilisation of existing occupational profiles into training modules or partial qualifications may have and how experiences gained can be used within a field that has previously been little explored.
The piloting results show that the model of structuring state recognised occupational profiles into training modules represent a viable approach which should be further developed for the target group of low skilled young adults.
Nevertheless, the following questions should be taken into account in continuing to develop nationally standardised partial qualifications.

• To which extent can the concept of trained modules be transferred and implemented in an unrestricted way for the second chance qualification of young adults without jeopardising the principle of the regulated occupation? How can nationally standardised development be secured?
• How significant are uniform and nationally applicable competence assessment procedures for the young adults and for companies interested in using the system? How can relevant processes be designed?
• What kind of structures can be put in place in companies and organisations to foster learning in order to facilitate the acquisition of competence on the part of low skilled people, who are often unaccustomed to learning, and enable them to aspire to training? Which didactic concepts and forms of learning support need to be developed and piloted at the same time?
• How must competence assessment procedures be designed so as to be suitable for identifying employability skills within the meaning of the Vocational Training Act (BBiG)?

IRMGARD FRANK
Head of Department 4 "Structure and Regulation of Vocational Education and Training / Staff Department for the Vocational Education and Training for People with Disabilities" at BIBB

Translation from the German original (published in BWP 1/2014): MARTIN STUART KELSEY, Global Sprachteam Berlin