National Action Plan/ Regional Action Plan 2012 - 2013
Denmark Kirsten Aagaard
National Knowledge Centre for Validation of Prior Learning
1. Introduction, including the contextualisation of the plan
The Regional Action Plan on VNIL of Denmark sets out the aspirations for the research and development of VNIL on a regional level in the Central Region Denmark1. This action plan has the objective of contributing to and intensifying the activities regarding recognition of prior learning. It is meant to form the basis for collaboration among relevant stakeholders in relation to specific initiatives and tasks concerning recognition of prior learning. It includes experiences and ongoing activities as well as target setting for future activities in the region.
The initiative and development of a regional action plan has been discussed in a meeting between Central Region Denmark educational institutions and National Knowledge Center, it has been followed up with discussions and decisions in the Competence Committee, Central Region Denmark in a process starting in October 2012 ending in June 2013.
The regional action plan is based on the Danish national policy and action plan and developed in correlation to the national strategies and initiatives.
2. Short description and analysis of the national VNIL system
The validation of non-formal and informal learning has been high on the policy agenda in Denmark for more than a decade. In 1995 legislation clarified competences in Adult Vocational Training Programmes (AMU) and in 2001 the further education system for adults was established. The legislation consists of Preparatory Adult Education (FVU) up to Master’s level and aims to award adults certificates for competences, it offers further learning and education.
Since 2004 a lot of different political initiatives have been taken. The Government and the social partners have made several agreements to strengthen validation of non-formal and informal
1 Central Denmark Region is one of 5 regions in Denmark se annex 1.
learning. The educational system in Denmark is well regulated and the majority of educations is public. Validation of non-formal and informal learning is regulated by laws.
The key legislation on validation of prior learning in Denmark is Act no. 556 of 6 June 20072, entitled
“Development of the recognition of prior learning in adult education and continuing training”. This legislation has been effective from August 2007.
The legislation gives each individual the right to have his/her prior learning experiences validated in relation to specific goals of adult education and continuing training. It focuses on the needs of the individual and aims to make the process as accessible and flexible as possible3.
Act no. 556 includes the following six educational fields:
Single course subjects in general adult education (basic level - AVU);
Single course subjects in general upper secondary education;
Vocational training programs; (AMU);
Basic adult education (GVU);
Short-cycle post-secondary adult education (VVU); and
Medium-cycle post-secondary adult education (Diploma programs).
The legislation does not include Master Programme4.
Since 2007 legislation5 admit individuals to gain access to short-cycle and medium-cycle Higher Education (Bachelor-level degrees) based on an individual competence assessment. The educational institutions are responsible for information, guidance and assessment of the individual. Validation in relation to shortening education periods (exemptions from modules, etc.) is not possible in tertiary level education in Denmark.
Principels for assesments and quality assurance:
• It is a right for the individual to request for an assessment of his or her PL.
• The individual has a responsibility for contribution to the documentation of PL.
• A user fee may be charged, but it´s free for the low skilled.
• A competence assessment should always be based on the objectives and admission requirements of the education programme.
2 https://www.retsinformation.dk/Forms/r0710.aspx?id=25349
3 http://pub.uvm.dk/2005/priorlearning/
4 The Danish Parliament decided in 2007 that Master is not included in the legislation
5 https://www.retsinformation.dk/Forms/R0710.aspx?id=145524
• Competencies should be recognised no matter where and how they are required, but without compromising the quality or standard of the education.
• The methods used must ensure a reliable assessment.
• The result of the assessment should be documented by issuing a certificate.
• The individual can appeal against certain prior learning decisions to an appeal board, the Qualifications Board.
VNIL is financially supported by the Ministry of Education or the Ministry for Science, Innovation and Higher Education.
There is no cost to the participant for: the assessment of reading, writing, spelling, arithmetic and mathematics skills in Preparatory Adult Education or in courses included in the vocational training system for a competence assessment within adult vocational training (GVU and AMU); for competence assessment for entry to general adult education programmes; or for general adult education competence assessment in order to issue a competence certificate. Within higher education there is a cost to participants for competence assessment which is fixed by the education institutions themselves and differs from one institution to another. This cost is only applicable for persons with a higher education level, qualifications up to and including upper secondary level6. In 2010 - 2011 the Ministry of Education carried out an evaluation of the Act, no. 556. The report,
“Validation of prior learning within adult education in Denmark. Status report regarding Act no. 556 of 6 June 2007”, is the most comprehensive mapping of validation of prior learning within adult education.
The averaging results of the evaluation:
• RPL is still a broadly founded political project supported by relevant stakeholders and the social partners.
• It is still seen as a very important instrument contributing to promote adults participation in adult and continuing training and to improve adults’ possibilities on the labor market.
• But there is a potential for development and improvement especially within information about RPL, simplifying, standardization and quality assurance.
In 2010 The Ministry of Education made a national action plan with 4 initiatives crossing all relevant educational areas. The general themes are:
1. Mapping out the players guidance and counseling before RPL (the preface).
2. Examining the possibilities of RPL in the educational system to get a broader perspective for example an occupational and a job-related perspective.
3. Quality assurance with a special focus on developing a code of conduct for RPL.
6 Act no 556 of the 6th of June 2007 https://www.retsinformation.dk/Forms/R0710.aspx?id=25349
4. A local guidance and information campaign in order to support a broader implementation of RPL in all educational areas.
In spring 2011 a committee was established in order to unfold the action plan. In the report of the committee, the following model for VNIL was described:
The model describes a coherent process of four stages. It illustrates how the education perspective of the candidate can be combined with a job and employment perspective. In addition, the model shows how different stakeholders can have divergent tasks through the stages of the overall process.
It is the educational institution which is responsible for conducting prior learning assessment on the basis of the educational standards, admission requirements and competence objectives against which the candidate wishes to be evaluated.
After identifying one or more study objectives or admission requirements against which a candidate is to be evaluated, the educational institution is responsible for the specific counseling and guidance relating to the process of prior learning assessment.
Other bodies can be in charge of information, identification, guidance and counselling, in a broader perspective, in the phase leading up to the assessment process (“the pre-phase”). These include i.a. trade unions, employers’ associations, job centres, unemployment insurance funds, civic education institutions, study committees and “eVejledning” (online guidance service), who can all take care of this part of the process and often in collaboration with the educational institution.
Focus in the “pre-phase” is on establishing objectives, identifying needs, direction and wishes.
Among other things, companies can do so by defining new tasks and future business plans with matching competence profiles. For individuals, both employees and jobseekers, this part of the process may include documentation of what they have previously learnt. For both companies and individuals, the pre-phase helps clarify and identify objectives and the direction for career
development, and it helps create a potential plan for the types of formal education which would be relevant in future.
If, in “the pre-phase”, a need for formal education is identified, and the individual candidate possesses knowledge, skills and competencies within the area concerned, without having any documentation to the fact, prior learning assessment may be relevant.
In the processes of documentation and assessment at the educational institutions, the
documentation work is narrowed against the specific educational objectives and requirements. Both the applicant and the educational institution contribute to the documentation process.
According to Danish law, the assessment must be conducted solely by the educational institution offering the study programmes to which a specific assessment is related.
After the assessment process, guidance is needed to determine how the individual candidate can use his or her prior learning assessment, including a plan for a subsequent educational programme.
In order to ensure transparency in the overall process, all stages must include clear guidelines and assessment criteria.
3. The regional action plan
The regional action plan focuses on how to make improvement, quality, visibility, confidence and validity in VNIL. The regional action plan is a result of debate and recommendations made by the Competence Committee, Central Denmark Region at meetings from October 2012 until May 2013. It is written by Merete Giehm-Reese, Central Denmark Region, and Kirsten Aagaard, NVR. The following is the original document.
Regional action plan for recognition of prior learning
By Merete Giehm-Reese, Central Denmark Region, and Kirsten Aagaard, NVR
This action plan has the objective of contributing to and intensifying the activities regarding recognition of prior learning. It is meant to form the basis for collaboration among relevant stakeholders in relation to specific initiatives and tasks concerning recognition of prior learning.
Recognition of prior learning is an essential tool in the efforts to ensure that businesses in the Central Denmark Region have the competencies which they require at any time.
Purpose:
• To support that the activities regarding recognition of prior learning are intensified and that a higher degree of visibility in the process is created;
• To enhance the collaboration among key stakeholders in the work with prior learning assessment (in Danish “RKV”), i.e. educational institutions, job centres, unemployment insurance funds, trade unions etc;
• To strengthen a coherent perspective for education and employment.
The point of departure is the national effort and strategy for recognition of prior learning.
Short introduction to key concepts:
Recognition of prior learning
In 2004, the Danish Government drew up a report on recognition of prior learning for the Danish Parliament. The report had the objective of strengthening and extending the use of recognition of prior learning. The report was part of a strategy seeking to prepare Denmark for international competition and to improve the knowledge society through the development of an offensive competition strategy.
In this report, the concept of “recognition of prior learning” (in Danish
“anerkendelse af realkompetence”) is used as a superordinate term for the joint efforts in the work with prior learning.
Prior learning
Prior learning encompasses the overall knowledge, skills and competencies that a person has, irrespective of where and how they are developed and acquired.
Prior learning both includes competencies obtained through the formal education system and on the labour market (e.g. skills acquired on a specific workplace or through participating in internal competence development programmes on the workplace).
Prior learning is also third-sector competencies, e.g. competencies acquired through courses on Danish folk high schools, different leisure activities, or as a volunteer in
charity organisations, networks etc. In summary, the concept of prior learning includes formal learning, non-formal learning and informal learning.
The overall competencies developed and acquired by the individual are in focus, and the intention is to appreciate them. In principle, where and how the competencies have been acquired is insignificant –it is the actual competencies which are in focus.
In 2007, Danish Act no. 556 of 7 June 2007 regarding prior learning assessment (RKV) and individual competence assessment (IKV) was adopted, applying broadly to the Danish education system; i.e.
adult vocational training, basic adult education, general adult education, upper secondary
education, 2-year professionally oriented higher education, and continuing professional education at bachelor level. As regards ordinary study programmes, laws exist on individual competence assessment (IKV) at institutions offering vocational education and training, 2-year professionally oriented higher education, and professional bachelor programmes. This means that there are laws governing prior learning activities in all areas of education, excluding master and university degree programmes.
Particularly in connection with evaluations conducted by NCK (National Centre for Competence Development) and EVA’s evaluation from 2011 regarding the scrutiny of Act no. 556 of 7 June 2013, a series of problems have been identified, showing that the process of recognition of prior learning is slow and that strategic efforts are needed in future to intensify and improve the activities.
The problems concerning the work with recognition of prior learning can be described as follows:
• The use of prior learning assessment (RKV) is still limited;
• There is a need for information about prior learning assessment (RKV) – How to create extensive knowledge about prior learning assessment (RKV);
• Prior learning assessment (RKV) is not a system-based activity in connection with the completion of continuing education;
• Variable use of prior learning assessment (RKV) at educational institutions and within the individual institutions;
• There is a need to strengthen the collaboration among different stakeholders and to improve the process leading up to the actual prior learning assessment (the pre-phase);
• To broaden the use of prior learning assessment (RKV) – in an occupation and employment perspective;
• Assuring quality in the process, e.g. by means of a quality code.
National policy and action plan
The Ministry of Children and Education and the Ministry for Science, Innovation and Higher Education have prepared training policies regarding recognition of prior learning.
To follow up on the scrutiny of Act no. 556 of 6 June 2007 and the report drawn up by the General Education Committee on the social significance of general education, the former Ministry of Education in Denmark has drawn up an action plan on recognition of prior learning in the area of adult education and continuing training. The action plan is based on four cross-cutting themes and contains initiatives seeking to extend the implementation of prior learning assessment (RKV) in the education sector.
The four cross-cutting themes in the action plan are as follows:
1. Mapping of counseling and guidance activities leading up to the process of prior learning assessment (RKV) (the pre-phase);
2.Outline of the possibilities to extend the use of prior learning
assessment (RKV) in the education sector, including an occupation and employment perspective;
3. Assuring quality in the work with prior learning assessment (RKV), keeping a special focus on the elaboration of a quality code for recognition of prior learning;
4. More information is needed.
In the spring of 2011, the National Education Authority in Denmark appointed a committee to work on the process of prior learning assessment (RKV) and to implement the action plan for recognition of prior learning, including a mapping project.
From conclusions made by the working committee:
It is imperative that the schemes improve the opportunities for the individual to be admitted to a specific study programme, to obtain accreditation for the completion of a study programme, or to have a programme abridged. Secondly, in a broad education and employment perspective, when opportunities are improved in terms of education, employment and occupation through formal recognition of prior learning. It must also be noted that the schemes applying to prior learning assessment (RKV) can be useful to businesses as the schemes can lead to a reduction of time and financial resources, compared to a situation where employees have to complete study programmes in their full length.
The members of the working committee have emphasised a series of barriers for the intended effect and quality of the schemes, and, in this respect, they have presented a number of recommendations. These barriers and recommendations are related to different aspects and stages of the assessment process.
Regional work
The regional action plan is based on the problems outlined above and the priority areas specified by the Danish ministries in relation to the work with prior learning assessment (RKV). Moreover,
the action plan is based on a status report regarding the work with prior learning assessment (RKV) in the Central Denmark Region.
Outline of former and current activities in the work with prior learning assessment in the region
• Experience from KOMPETENCEmidt 1.0 in which prior learning assessment (RKV) was considered a priority;
• The Central Denmark Region and NVR (Danish National Knowledge Centre for Validation of Prior Learning) are involved in an EU-based project which focuses on the establishment of a national or regional action plan;
• Discussion among institutions of adult education and continuing training about coherent regional activities;
• Activity under KOMPETENCEmidt about RKV i Midtjylland (i.e. prior learning assessment in the Central Denmark Region) with the purpose of enhancing and improving the quality of the work with prior learning assessment (RKV) in the region;
• Projekt IKV (TUP 2012)
Projekt IKV – pre-phase (TUP2012) About experience
A developmental project has been implemented under KOMPETENCEmidt 1.0 with a focus on gathering knowledge and improving competencies in the areas of identification, documentation and evaluation of prior learning. The intention was to educate a team of employees/consultants at each competence centre and, additionally, to organise a joint team across the six competence centres. The project strengthened the knowledge and competencies in the area of recognition of prior learning. The participants expressed their full satisfaction with this result. No team was established, and no formal cooperation agreement was made between the educational institutions and the centres for adult education and continuing training (which were established in that period).
The outcome was significant as there was a great need for knowledge and better common access to the area of prior learning. The failure to enter into a formal and organised cooperation agreement between the institutions and the centres for adult education and continuing training can largely be ascribed to financial concerns and the fact that the work with prior learning assessment (RKV) and individual competence assessment (IKV) at the educational institutions was still low and not sufficiently anchored in the organisation.
Experience from current projects
The current two large-scale cooperation projects (Projekt IKV, TUP 2012) and RKV i Region Midtjylland are in their development phase where, since November 2012, the institutions of education have worked, at a managerial level, within the following fields:
• The establishment of an organisational framework for prior learning assessment (RKV) and individual competence assessment (IKV) at the individual educational institutions.
Practitioners have been employed to work with prior learning assessment (RKV) and individual competence assessment (IKV). The institutions have almost completed their descriptions of practices, which are to be used for the elaboration of a quality code. Work is underway to find a digital solution to creating special competence and prior learning maps which can be used for guidance and counseling purposes.
• Development and description of training packages. Training packages within
construction, industry and trade are to be developed and described. These packages will serve as a starting point for counseling and for a dialogue with the corporate sector about individual competence assessment (IKV) and subsequent tests of individual competence assessment (IKV).
Key experience from previous work (provided by the secretariats at the centres for adult and continuing training):
• Through the projects, among other factors, prior learning assessment (RKV) and individual competence assessment (IKV) have been on the agenda at the individual institutions of education to an even higher degree than previously;
• The objective that prior learning assessment (RKV) and individual competence assessment (IKV) be conducted systematically across the region and as a natural activity in connection with the completion of an education requires a considerable number of stakeholders, including managers, practitioners and consultants both at and across the individual institutions of education. It takes time to establish relations.
• Concerns about the outline provisions (finances) are an important factor for the implementation of prior learning assessment (RKV) and individual competence assessment (IKV) at the educational institutions.
Suggestions for future priorities
As mentioned previously, suggestions for specific initiatives are based on previous and current experience with prior learning assessment (RKV) in the Central Denmark Region and on the initiatives specified by the Danish Ministry of Children and Education.
They can be described in the following three priorities. The specific examples of priorities are all related to prior learning; however, many of them are general priority areas relating to education and competence development which also include activities to reinforce prior learning.
1. Reinforcing work with prior learning assessment (RKV) at the institutions offering adult education and continuing training and coordination among educational institutions,
including:
• Coordination and “Open Counseling”;
• Education/competencies with the object of establishing a platform and creating an organisation for the work with prior learning assessment (RKV) and
individual competence assessment (IKV);
• Quality assurance quality code;
• Description of practices;
• Interactive map of all practitioners;
• Development of training packages coordinated by the centres for adult education and continuing training.
In the period between 2013 and 2014, a number of cases concerning best practices and the organisation of the work with prior learning at the schools will be described.
2. Reinforced cooperation among job centres, other counseling bodies and educational institutions
Including:
• A need for identification and coordination of tasks in the “pre-phase”;
• An example of possible cooperation projects: RBR educates according to job rotation;
• Coordination and cooperation must be developed. Relations must be established;
• Experience is needed. Reinforced cooperation offers a huge potential;
• The application of existing tools, like “My competence folder”, must be discussed.
In the period between 2013 and 2014, a number of cases will be presented in which it will be described how jobseekers have their competencies documented through counseling at job centres and how jobseekers get an individual competence assessment (IKV) at a relevant institution of education. The objective here is targeted competence development and reinforced cooperation in connection with the “pre-phase”.
3. Reinforced cooperation between businesses and educational institutions where prior learning assessment (RKV) and individual competence assessment (IKV) are used.
Including:
• A need for identification and coordination of tasks in the “pre-phase”;
• Recognition of prior learning in relation to job profiles in an employment, occupation and education perspective;
• Training packages and supply;
• Businesses as ambassadors (examples from large companies and SMEs needed);
• Think outside the box;
• How is prior learning assessment (RKV) addressed?
• Is there strong backing (from organisations etc)?
• What are the barriers?
• Project entitled “Rent an HR-manager”
This means that cases will be described in which employees are subject to prior learning assessment (RKV) and individual competence assessment (IKV) in order to identify and further develop their competencies. This allows the employees to take on new
responsibilities or new job functions.
Competence development for those responsible for prior learning activities is included in all three priorities. In recognition of the fact that prior learning activities must be
continuously reinforced in the years to come, the action plan must clarify the activities concerned. Lessons will continuously be drawn from different activities and projects, and the management of projects will be coordinated. Evaluations are continuously conducted in relation to creating new projects, with the purpose of developing and improving practices in future.
Recommendations from the Competence Committee:
The Competence Committee regards recognition of prior learning as an essential tool in the work with developing the competencies among workers at all levels, including the upgrade from unskilled to skilled worker, so that the competencies cover the needs of the businesses in the region at any time.
It is therefore the general opinion of the Competence Committee that the work with prior learning assessment (RKV) must be included in all relevant activities initiated by the Central Denmark Region within the field of prior learning, i.e. all projects receiving regional or structural funds.
In the work with competence improvement, the Competence Committee generally finds it important that workers are able to document their competencies; even if such competencies are developed and acquired through work experience and not through formal training. To ensure this, all relevant stakeholders, such as unemployment insurance funds, job centres, adult education and continuing training institutions and, not least, the corporate sector, must work together.
The Competence Committee will therefore recommend and support the following:
Work with prior learning assessment (RKV) in the “pre-phase” must be initiated, i.e.
identification leading up to the elaboration of the actual prior learning assessment (RKV)/individual competence assessment (IKV);
Work with prior learning assessment (RKV) in relation to job and competence profiles in the companies;
Reinforced cooperation among stakeholders is necessary;
Professionals in the respective organisations must be organised and their competencies developed.
4. SWOT analysis
On the basis of the dialogue about the regional action plan for recognition of prior learning/ VNIL in the Competence Committee, Central Denmark Region the following statements can be drawn:
Strengths:
Widening access to education and learning and a method for competence development.
Value for the society, organisations and individuals.
Improving opportunities for employability and empowerment.
Opportunities:
A more demand-let labour market.
A more flexible and tailor made learning culture.
A lifelong learning approach to optimise different forms of learning.
To value VNIL in respect to society, organisations and individuals.
Weaknesses:
VNIL is not economical sustainable.
VNIL is time-consuming.
Competences for VNIL staff need to be developed.
The collaboration between stakeholders is too week and in some degree non existing.
The VNIL is in practice not standardised.
The collaboration between educational institutions to build common methods is too week.
VNIL is still too unknown my stakeholders and individuals.
Threats:
If the economic investment in VNIL is reduced because of the economic crisis.
If the need for competence developments is not a priority.
If collaboration and synchronizing competence systems in different organisations and educational systems are not developed.
5. Summary
The development of the regional action plan can contribute to the following challenges:
To develop VNIL in a sustainable way.
To inform and improve knowledge about the possibility of obtaining VNIL.
To build up a national coherent structure for VNIL.
Institutional anchoring.
Competence development of the professionals.
Strengthen the collaboration between the sectors and stakeholders.
Integration of all the elements of the VNIL process: Information, clarification, documentation, assessment and formal recognition.
Quality assurance.
References
Aagaard, K. and Nordentoft, A. (2009): National review on Validation of Prior Learning in Denmark.
National report for the EU-Observal project. http://www.observal.org/country_profiles/denmark Aagaard, K: European Inventory on Validation of Non-formal and Informal Learning 2010. Country Report Denmark. http://libserver.cedefop.europa.eu/vetelib/2011/77455.pdf
RKV-arbejdsgruppens rapport om anerkendelse af Realkompetencer til Rådet for Voksen- og Efteruddannelse (VEU-rådet)Rådet for de grundlæggende erhvervsrettede uddannelser(REU) Rådet for Erhvervsakademiuddannelser og Professionsbacheloruddannelser(REP) Rådet for de gymnasiale uddannelser Folkeoplysningens Dialogforum, november 2011. http://www.uvm.dk/~/UVM-
DK/Content/News/Udd/Voksne/2012/Jan/~/media/UVM/Filer/Udd/Voksne/PDF12/120126%20RKV
%20arbejdsgruppen%20anerkendelse%20af%20realkompetencer.ashx
Focus on Recognition of Prior Learning, nr 3. http://www.nvr.nu (Danish)
National actions for promoting recognition of prior learning. The Ministry of Education, Copenhagen, Denmark. http://pub.uvm.dk/2008/priorlearning/hel.html
Nistrup,Ulla and Lund, Anne: Recognition of prior learning – distribution, barriers and current practice. January 2010. www.Ncfk.dk (Danish)
Prior Learning Assessment in the Adult and Continuing Education System – a Handbook. Ministry of Education, Cobenhagen. http://pub.uvm.dk/2008/rkvivoksen/
Recognition of Prior Learning within the Education System. November 2004.
The Ministry of Education, Copenhagen, Denmark. http://pub.uvm.dk/2005/priorlearning/
Validation of prior learning within adult education in Denmark. Status report regarding Act no. 556 of 6 June 2007. The Danish Evaluation Institute, 2010. www.eva.dk (Danish)
Validation of prior learning within adult education in Denmark. Status report regarding Act no. 556 of 6 June 2007. Summary and perspectives. The Danish Evaluation Institute, 2010. www.eva.dk (English)
Annex 1
About Danish Regions
Danish Regions is an organisation assisting the regions with services and relevant information.
Danish Regions is run by a board of elected regional politicians from the five regions. The board is appointed for a four-year period, and reflects the political affinities of the 205 members of the five regional councils.
At the administrative level Danish Regions has a staff of 170 persons. The association is headed by a managing director and a board of four directors.
Central Denmark Region
Central Denmark Region is one of five administrative units in Denmark. The primary responsibility of Central Denmark Region is healthcare, involving responsibility for hospital services, including
psychiatry, health insurance, general practitioners and specialists. In addition the region operates a number of social institutions.
Furthermore, the region will ensure end coordinate regional development in areas such as nature, environment, business and tourism. The region must secure the overall strategy and at the same time a top quality of services. Around 30.000 employees work to carry out regional tasks at all levels.
Central Denmark Region will ensure competence development and education in respect to the need of competences in working life. KOMPETENCEmidt is a project focusing on educational challenges http://www.kompetencemidt.dk/page.asp?pageid=603&pagename=Hvad+er+det+nye+KOMPETENC Emidt%3F
For further information regarding Danish Regions, Central Denmark Region:
http://www.rm.dk/om+os/english
