programming document 2017-20 - cedefopen en europe 123, 570 01 thessaloniki (pylea), greece po box...

ENEN

Europe 123, 570 01 Thessaloniki (Pylea), GREECEPO Box 22427, 551 02 Thessaloniki, GREECETel. +30 2310490111, Fax +30 2310490020, E-mail: [email protected]

European Centre for the Development of Vocational Training

ENEN

document

2017-20programming

document

2017-20programming

4152 EN – TI-AR-17-001-EN-N – doi:10.2801/578073

ISSN: 2529-4253ENEN

ISBN 978-92-896-2417-6

Luxembourg: Publications Office of the European Union, 2017

Programming document 2017-20

Please cite this publication as:Cedefop (2017). Programming document 2017-20. Luxembourg: Publications Office.Cedefop Information series.

A great deal of additional information on the European Union is available on the Internet.It can be accessed through the Europa server (http://europa.eu).

Luxembourg: Publications Office of the European Union, 2017

ISBN: 978-92-896-2417-6ISSN: 2529-4253doi:10.2801/578073

Copyright © European Centre for the Development of Vocational Training (Cedefop), 2017Reproduction is authorised provided the source is acknowledged.

Photos (pp.37,42,48,49,76-77,78,82,87,89: © Euroskills, 2016

Designed by [email protected] Printed in the European Union

The European Centre for the Development of Vocational Training (Cedefop) is the European Union's

reference centre for vocational education and training. We provide information on and analyses of vocational

education and training systems, policies, research and practice.Cedefop was established in 1975

by Council Regulation (EEC) No 337/75.

Europe 123, 570 01 Thessaloniki (Pylea), GREECEPO Box 22427, 551 02 Thessaloniki, GREECE

Tel. +30 2310490111, Fax +30 2310490020E-mail: [email protected]

www.cedefop.europa.eu

Joachim James Calleja, Director Micheline Scheys, Chair of the Governing Board

Contents

Foreword 6List of acronyms 8Mission statement, vision and values 9

SECTION I General context 12

SECTION II Multiannual programming 2017-20 172.1. Multiannual objectives 172.2. Strategic areas of operation 182.3. Multiannual programme 202.4. Human and financial resource outlook for 2017-20 28

SECTION III Work Programme 2017 383.1. Executive summary 383.2. Activities 2017 – Annual work programme 393.3. Activity fiches 2017 50

AnnexesI. Resource allocation per activity 2017-20 60II. Human and financial resources (tables) 2017-20 62III. Human Resources – quantitative (staff and MASPP) 66IV. Human Resources – qualitative 70V. Building 79

VI. Privileges and immunities 80VII. Evaluations 83VIII. Risks year 2017 86IX. Procurement plan year 2017 (Title 3 – Operational appropriations) 88X. Organisation chart 2017 90XI. Cedefop performance indicators 91

D iscussions about vocational education andtraining (VET) rarely set the blood pumpingand heart racing. This programming documentfor 2017-20 outlines how Cedefop will supportthe European Commission, Member States andsocial partners to improve VET and raise skilllevels. It features many important andinteresting initiatives that will certainly evolveover time. So, it is appropriate to outline hereour aspirations and the driving force behind ourplans; why they matter and why our guidingprinciple over the coming years will be to ‘thinkEuropean and act local’. We wish to followPresident Junker’s advice and focus, ‘on thethings that matter, concrete actions that improvepeople’s lives’.

The labour market is increasingly challeng-ing and insecure. Globalisation, technology, anageing labour force and economic uncertaintyare all changing work profiles, job prospects andcompetitiveness. Digitalisation will make mil-lions of jobs as we know them today redundantand create millions of new forms of employ-ment. Without skills, both people andenterprises are lost and quality of life may fall.

For more than a decade, the EuropeanUnion (EU) has prioritised VET reform, aimingto raise skill levels to improve employmentprospects and provide enterprises with the skillsthey need. Progress has been made.Educational attainment is rising, VET systemsare becoming more flexible and VET isincreasingly available in most Member States atpost-secondary and tertiary levels. More peopleare in lifelong learning and far fewer leaveschool or VET with low or no qualifications.European cooperation has had a strong andpositive impact on these developments.Cedefop’s role in this process, and its expertise,have strengthened European cooperation and

helped design VET policies that promoteeconomic excellence and social inclusion.

But the labour market continues to changein ways that make firm predictions difficult. Theonly evolving certainty is that many workers androbots will live next to each other in new workenvironments. At the same time, there is patchyeconomic recovery in Europe. In somecountries, employment is higher than in 2008when the crisis began; others will not see areturn to such levels for at least a decade,perhaps longer. Employers say they cannot findthe skills they want, while many skills learned atschool and in VET are underused or not used atall at work. Training providers are confident thatlearners leaving schools are ready for the jobson the market. The challenge, however, is thatjobs are changing due to ‘the rise of themachines’.

To keep pace with developments, theEuropean Commission, Member States andsocial partners, at their meeting in Riga in June2015, set out their aim ‘to promote innovationand excellence in VET’. VET reform up to 2020,emphasises implementation and integration, toadd value to people’s lives by engaging them inlearning and working. Implementation of VETpolicy priorities identified at Riga – improvingwork-based learning, key competences, qualityassurance in VET, access to VET andqualifications, and developing teachers andtrainers – needs to be coherent and mutuallyreinforcing. Examples of good practice andinnovation, in partnerships, curricula, teachingmethods and technology, need to becomesystemic. Change needs to become practice atlocal level.

The European Commission’s Skills agenda,launched in June 2016, is another major initia-tive. Some 70 million Europeans lack adequate

Foreword

reading and writing skills; even more have poornumeracy and digital skills. To help addressthese problems the agenda advocates VETbecoming a first learning choice for more peo-ple. In Cedefop, we have argued this for manyyears. Employment prospects for VET gradu-ates are often good and higher level VET isexpanding, including in universities. But indica-tions are that there will be a shortage of peoplewith VET qualifications as many people whoretire over the next decade will need to bereplaced. VET must no longer be regarded as asecond, inferior, learning option; instead, withgreater emphasis on core, transferable knowl-edge, skills and competences and with growingrecognition of the importance of learning at theworkplace, VET should take its place as a keycomponent of a broader education and trainingsystem that offers opportunities to combine dif-ferent kinds and levels of learning throughoutworking life.

Cedefop’s activities during 2017-20 will beintegrative and proactive. We will help shapeand anticipate VET policies to renew andmodernise systems. Those policies willemphasise the visibility and value of VET,empowering people and enterprises with theskills they need. Our labour market intelligenceon skill supply and demand will inform thedesign of the VET policies that will shape andvalue VET; a circular flow to bring feedback andrenewal.

To create VET systems fit for the 21stcentury we need to be bold and challengeconventional wisdom and long-held traditions.Cedefop will monitor developments, but alsoseek to provide new knowledge and freshevidence and act as a knowledge broker: tradingideas and experience, establishing partnershipsand cooperation to stimulate VET reform.

The aim to ‘think European and act local’requires bringing European experience andknowledge to help individual or groups of Mem-ber States facing specific problems. Thepurpose is to ensure that new polices andinstruments reach and support those who facethe day-to-day challenges of delivering VET.Without their input, understanding and support,VET reform cannot succeed. Cedefop willendeavour to reach not only national ministries,but also learners, principals and administratorsof VET colleges and schools, teachers, parents,non-governmental organisations, social partnersand the private sector. We will continue to sup-port training providers to implement reformsrequired to enhance the image of VET to theirlocal working and learning environments, keep-ing European policies as points of reference formobility, transparency of qualifications andcooperation on VET reform.

This is a huge task and Cedefop is not alarge agency.

But many things worth pursuing are difficult.Questions of work, career prospects, businesssuccess, equality and the creation anddistribution of wealth are at the heart of all liberalsocieties. Tackling them requires working onVET and other learning opportunities in waysthat do not always grab the headlines.

Cedefop’s aspiration and motivation is toensure that VET provides people withopportunities for better and fulfilling lives, andenterprises with the potential to grow and createquality jobs. That matters to us all.

Joachim James CallejaDirector

Foreword 7

AD administratorACVT Advisory Committee for

Vocational TrainingAST assistantCPD continuous professional

developmentCVET continuing vocational education

and trainingDCM Department for communicationDGVT Directors General for Vocational

Education and TrainingDLE Department for learning and

employabilityDRS Department for resources and

supportDSI Department for systems and

institutionsDSL Department for skills and the

labour marketEAfA European alliance for

apprenticeshipsECVET European credit for vocational

education and trainingEQAVET European quality assurance for

vocational education andtraining

EQF European qualificationsframework

ESCO European skills, competencesand occupations

ETF European Training FoundationEUROFOUND European Foundation for the

Improvement of Living andWorking conditions

ILO International LabourOrganisation

IVET initial vocational education andtraining

ISCED international standardclassification of education

ISCO international standardclassification of occupations

LM labour marketMASPP multiannual staff policy planMB mobility scoreboardMFF multiannual financial frameworkNACE National Association of Colleges

and EmployersNEET not in education, employment or

trainingNQF national qualifications

frameworkOECD Organisation for Economic

Cooperation and DevelopmentPIAAC programme for the international

assessment of adultcompetencies

PMS performance managementsystem

PD programming documentReferNet Cedefop’s European network for

VETTT training of trainersVET vocational education and

training

List of acronyms

(1) Cedefop’s mission reflects the aim and tasksoutlined in its Founding Regulation (1) andthose that the Agency has been entrustedwith over time.

(2) In the 1960s and 1970s, the economic andsocietal challenges that Europe faced led toreforms in education and training. Skilledlabour shortages coexisting with highunemployment and the need to recogniseVET qualifications across Member Stateswere among the drivers of the EU agenda.Cedefop was meant to help implement ‘acommon VET policy’ and complementMember State activities. Article 2 ofCedefop’s Founding Regulation (see boxbelow) reflects this context and the need tounderstand the Member States’ very differentand differentiated VET systems and thequalifications they provide.

(3) The grounds for cooperation in VET hadalready implicitly been laid in the 1951 agree-ment establishing the European Coal andSteel Community and then in the Treaty ofRome (Articles 118 and 128 (2)). Since then,the legal basis (3) and the EU level VET pol-icy agenda have evolved. Europeancooperation within the so-called ‘Copen-hagen process’ (4) has generated common

(1) Council of the European Union (1975). Council Regulationof 10 February 1975 establishing the European Centre forthe Development of Vocational Training (Cedefop). EEC No337/75. Official Journal of the European Communities, L 39,13.2.1975 as last amended by Council Regulation EC No2051/2004.

(2) Article 118 is about promoting close cooperation betweenMember States in the social field. Article 128 refers to theneed to promote cooperation on basic and advancedvocational training.

(3) Articles 165 on encouraging cooperation between MemberStates for ‘the development of quality education’ and 166 on‘a vocational training policy’ of the Lisbon Treaty.

(4) What is the Commission doing for vocational education andtraining? http://bit.ly/1a1s1R5

Mission statement, vision and values

(a) The aim of the Centre shall be to assist theCommission in encouraging, at Communitylevel, the promotion and development ofvocational training and of in-service training.To that end, within the framework of theguidelines laid down by the Community, itshall contribute, through its scientific andtechnical activities, to the implementation ofa common vocational training policy.It shall, in particular, encourage the exchangeof information and the comparison ofexperience.

(b) The main tasks of the Centre shall be:• to compile selected documentation

relating in particular to the presentsituation, the latest developments andresearch in the relevant fields, and tomatters of vocational training structure;

• to contribute to the development andcoordination of research in the abovefields;

• to disseminate all useful documentationand information;

• to encourage and support any initiativelikely to facilitate a concerted approach tovocational training problems. The Centre’sactivity in this respect shall deal in partic-ular with the problem of the approximationof standards of vocational training with aview to the mutual recognition of certifi-cates and other documents attestingcompletion of vocational training;

• to provide a forum for all those concerned.

(c) In its activities the Centre shall take intoaccount the links which exist betweenvocational training and the other branches ofeducation.

http://ec.europa.eu/education/policy/vocational-policy/index_en.htm

tools and principles that help make people’sknowledge, skills and competence more vis-ible and easier to compare and understand.They promote links between, and combina-tions of, different types and levels ofeducation and training (5).

(4) Cedefop has been at the leading edge ofthese developments, promoting a moreactive policy support role (6), as evident inthe Copenhagen process and ET2010 and2020 cooperation frameworks (7): it hashelped shape the EU policy agenda, sup-ported implementation and monitoredprogress in common priorities. Closer Euro-pean cooperation has, in turn, influencedCedefop’s profile and working methods. Fol-lowing external evaluation in 2007,Cedefop’s policy supporting role hasbecome more prominent and is now widelyacknowledged. Commission servicesincreasingly draw on its expertise and expectthe Agency to support their daily work.

(5) Cedefop has traditionally given high priorityto providing overviews of VET-relatedresearch. In recent years it has become arecognised centre of quantitative andqualitative policy-relevant research on skillneeds, supply and mismatch. Cedefop’sanalyses of current and future relationshipsbetween jobs, skills and qualifications,provide policy-makers with the opportunity to

be proactive in modernising VET. Itsresearch on qualifications that helpeddevelop common transparency tools basedon the outcomes of learning, has supportedVET reform across Europe and contributedto a different perception of VET.

(6) These strands of work have reinforced theAgency’s role at the interface of educationand training and the labour market, an areanot covered by any other EU organisation.

Vision and values

(7) Today, VET is seen as a pillar of lifelong andlife-wide learning, leading to initialqualifications and/or taking the form ofcontinuing education and training. VET andVET-oriented programmes for young peopleand adults exist at nearly all levels, includinghigher education. VET takes place in avariety of learning settings and contexts, notnecessarily traditionally associated with it: inschools and various other education andtraining institutions, in enterprises, or in acombination of both; in formal and non-formaleducation and training; within active labourmarket measures; on the job, throughvolunteer work or family and leisure activities.

(8) This diversity of opportunities not limited toparticular institutions or levels enables VETto cater for a wide group of (lifelong)learners. This reflects VET’s potential to helpaddress Europe’s economic and socialchallenges through its excellence andinclusion dimensions. By working to improvethe interaction between education andtraining and employment, Cedefop aims tohelp ensure VET benefits employers andindividuals alike.


(5) The European qualifications framework (EQF) based onlearning outcomes covers all education and training sectorsand levels and helps to open it up to valuing learning thathappens outside formal education and training.

(6) E.g. joint initiative of the Commission and Cedefop to set upthe European forum on transparency in 1998; suggestionsin Cedefop’s VET policy report in 2000.

(7) Strategic framework – Education and training 2020:http://bit.ly/1fKze3W

http://ec.europa.eu/education/policy/strategic-framework/index_en.htm

(9) This aim is reflected in the vision that willguide Cedefop’s work in the 2017-20programming cycle:

‘Strengthen European cooperation in vocationaleducation and training (VET) and support theEuropean Commission, Member States andsocial partners in designing and implementingpolicies for a world-class and inclusive VET thatprovide skills and qualifications relevant forworking lives and the labour market.’

(10) The values the organisation has committeditself to, will help us achieve our vision:(a) we want to be a key player in attaining

the EU policy objectives for VET, skillsand qualifications;

(b) we want to be acknowledged and val-ued by stakeholders as the Europeansource for evidence and information onVET, skills and qualifications;

(c) we want to be an efficient, well-run andcompliant agency providing a nurturingenvironment to a qualified and moti-vated staff.

(11) This vision builds on Cedefop’s role andachievements that have evolved over time:Cedefop’s work on the common Europeantools; its initiative to develop a pan-European approach for anticipating skillneeds and supply to inform VET policy andprovision and citizens, and the regularforecasts it has beenentrusted with; and themandates to develop and maintainEuropass and the European SkillsPanorama. These all bear witness to thisdevelopment.

(12) This vision also reflects the evolving EUpolicy framework. Emphasis on therelevance and impact of VET is increasing.

Cedefop’s multiannual objectives for theperiod 2017-20 reflect this shift in focus. Byrebalancing Cedefop’s work related topolicy development, policy implementationand research, our vision, values andmultiannual objectives are fully aligned tothe new policy parameters.

(13) Cedefop’s multiannual programmingreflects the objectives and renewedpriorities of Education and training 2020 (ET2020), European cooperation in VET asagreed in the Bruges communiqué and theRiga conclusions (‘Copenhagen process’),the Renewed European agenda for adultlearning and the European Commission’sNew skills agenda launched in 2016 (8).Cedefop’s work will contribute to achievingthe goals Europe set itself for 2020, as itsupports the agenda for jobs, growth,fairness and democratic change. As in thepast, the Agency will take due account ofEurope’s socioeconomic environment andemerging challenges that Member Statesand social partners will face.

(14) Progress towards achieving our vision andaccomplishing our values will be assessedat the end of the programming period usingan evaluative approach and qualitativeassessment, including the views of our keystakeholders.

Mission statement, vision and values 11

(8) European Commission (2016). A new skills agenda forEurope: working together to strengthen human capital,employability and competitiveness: communication from theCommission to the European Parliament, the Council, theEuropean Economic and Social Committee and theCommittee of the Regions. COM(2016) 381 final.http://bit.ly/2ih0ELs [accessed 7.11.2016].

http://ec.europa.eu/social/BlobServlet?docId=15621&langId=en

(15) The economic recovery has shown somegradual improvement and almost all EUMember States expect growth in the yearsto come. However, growth varies acrosscountries and the refugee crisis poses newchallenges. The exceptionally extendedperiod of crisis has left long-lasting conse-quences in many European economies,particularly high levels of unemploymentand low levels of job creation.

(16) The main implication of these trends for theEU policy agenda is that it is now morechallenging to meet many of the objectivesset in the Europe 2020 strategy; Europe isstill far from achieving the ET 2020 targeton adult participation in lifelong learning. Ina scenario of growing social inequality andgeographical disparity, simple fine-tuning ofthe labour market is not sufficient to avoidthe risk of a new prolonged period of job-less growth in the coming years. Asdevelopment of youth unemployment sug-gests, comprehensive structural reformsthat include labour market and educationand training policies can bring aboutchange (9).

(17) If we look beyond 2020, there are deeperchallenges which predate the crisis andrequire a renewed approach to VET andadult learning policies in Europe. Somelong-term trends (such as globalisation,technological advances, ICT proliferation)have been accelerated by the economicdownturn, with consequent structural

changes in the economy and the labourmarket requiring new and renewed skillsprofiles and qualifications. Concerns havebecome strong that skills mismatch, whichhas increased since the outbreak of thecrisis, prevail in European labour markets.At the same time, the demographic ageingwill lead in the next decade to a progressive– and in some countries sharp – decreasein labour supply.

(18) A specifically dedicated investment pack-age (10) within the European Commission’sagenda for jobs, growth, fairness anddemo cratic change aims to stimulate jobcreation, encourage innovation andincrease competitiveness. Main elementsare to strengthen Europe’s industrial baseand its share of renewable energy, speedup diffusion of digital technologies in indus-try, and create a business-friendlyenvironment with major private investment.President Juncker’s 2016 State of theUnion report (11), the European Commis-sion’s 2017 work programme (12) and theEuropean Council have reinforced this com-mitment (13).

SECTION I

General context

(9) European Commission (2016). The youth guarantee andyouth employment initiative three years on: communicationfrom the Commission to the European Parliament, theEuropean Council, the Council, the European Economic andSocial Committee and the Committee of the Regions. COM(2016) 646 final. http://bit.ly/2kBpIgg [accessed 7.11.2015].

(10) European Commission (2014). An investment plan forEurope: communication from the Commission to theEuropean Parliament, the Council, the European CentralBank, the European Economic and Social Committee, theCommittee of the Regions and the European InvestmentBank. COM(2014) 0903 final. http://bit.ly/2kd2bSj [accessed15.5.2015].

(11) European Commission; Juncker, J.C. (2016). State of theUnion 2016. Luxembourg: Publications Office.http://bit.ly/2jH3Rof [accessed 7.11.2016].

(12) European Commission (2016). Commission workprogramme 2017: delivering a Europe that protects,empowers and defends: communication from theCommission to the European Parliament, the Council, theEuropean Economic and Social Committee and theCommittee of the Regions. COM(2016) 710 final.http://bit.ly/2eHwzQB [accessed 7.11.2016].

https://ec.europa.eu/transparency/regdoc/rep/1/2016/EN/1-2016-646-EN-F1-1.PDFhttp://eur-lex.europa.eu/legal-content/EN/TXT/?uri=COM:2014:903:FINhttp://eur-lex.europa.eu/legal-content/EN/TXT/?uri=COM:2014:903:FINhttp://ec.europa.eu/atwork/pdf/cwp_2017_en.pdf

(19) Getting people (back) into work andpromoting equality, inclusion and solidarityis the main thread of current EU policies:from the five Presidents’ report, which callsfor ‘a stronger focus on employment andsocial performance’ (14), to the youthguarantee, the employment guidelines, therecommendation on integrating the long-term unemployed into the labour market (15),the draft reports on European cooperation inthe youth field (16), and the joint report on theimplementation of the strategic frameworkfor European cooperation in education andtraining (ET 2020) (17). ‘Skills, education andlifelong learning’ is also one of the mainpolicy domains foreseen in the envisagedEuropean pillar of social rights (18).

(20) Education and training per se cannot solvethe economic and social challenges currentlyfacing Europe but responding to the world ofemployment can help put more learners intojobs. To respond to the current technological,environmental, economic and socialchallenges requires strategies that combinethe various different policy strands. This callsfor a holistic and integrative approach toskills governance. Education and training,and particularly VET, plays a crucial role forcreating the necessary conditions foremployment, innovation and growth.

(21) In this context, VET’s excellence andinclusion goals remain important buildingblocks in the EU policy agenda and the jointwork towards the Europe 2020 goals; theseare still considered relevant, as a publicconsultation in 2014 demonstrated (19) (20).

(22) As the impact of the crisis has led tostronger emphasis on helping address thepressing economic and employmentchallenges, there is a need to ‘recalibratethe policy focus’. The ET 2020 reportstresses the role of education and trainingin ‘promoting equity and non-discriminationand in imparting fundamental values,intercultural competences and activecitizenship’. This emphasis on inclusive

SECTION IGeneral context 13

(13) See, for instance, The Bratislava declaration. Bratislava, 16September 2016. http://bit.ly/2czYdSL [accessed7.11.2016].

(14) European Commission; Juncker, J.C. et al. (2015). The fivePresidents’ report: completing Europe’s economic andmonetary union. http://bit.ly/1W9Mcy8 [accessed 7.9.2015].

(15) Council of the European Union (2015). Proposal for aCouncil recommendation on the integration of the long-termunemployed into the labour market. Political agreement.14361/15, Brussels, 27 December 2015. http://bit.ly/2l4raFH[accessed 12.1.2016].

(16) Council of the European Union (2015). Joint report of theCouncil and the Commission on the implementation of therenewed framework for European cooperation in the youthfield (2010-18). 14437/2/15 REV 2. Brussels, 25 November2015. http://bit.ly/2kBpuFJ [accessed 12.1.2016].

(17) Council of the European Union; European Commission(2015). Joint report of the Council and the Commission onthe implementation of the strategic framework for Europeancooperation in education and training (ET 2020): newpriorities for European cooperation in education andtraining. Official Journal of the European Union, C 417/04,15.12.2015, pp. 25-35. http://bit.ly/2k4NA8P [accessed12.1.2016].

(18) • European Commission (2016). Towards a pillar of socialrights. http://bit.ly/1U3csMW

• European Commission (2016). Key economic,employment and social trends behind a European pillarfor social rights: staff working document. SWD (2016) 051final. http://bit.ly/2l5Tffb [accessed 7.11.2016].

(19) European Commission (2015). Results of the publicconsultation on the Europe 2020 strategy for smart,sustainable and inclusive growth: communication from theCommission to the European Parliament, the Council, theEuropean Economic and Social Committee and theCommittee of the Regions. COM(2015) 100 final.http://bit.ly/1glRjNr [accessed 15.5.2015].

(20) Vocational education and training (VET) prepares for(nearly) all qualification levels, including the highest ones;it addresses young people and adults in a lifelong and life-wide perspective; it is offered by different institutions; VET(oriented learning) takes place in formal, non-formal as wellas informal settings. It includes initial VET, continuing VETand other types of adult learning.

http://www.consilium.europa.eu/en/press/press-releases/2016/09/pdf/160916-Bratislava-declaration-and-roadmap_en16_pdf/http://ec.europa.eu/priorities/sites/beta-political/files/5-presidents-report_en.pdfhttp://data.consilium.europa.eu/doc/document/ST-14361-2015-INIT/en/pdfhttp://data.consilium.europa.eu/doc/document/ST-14437-2015-REV-2/en/pdfhttp://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52015XG1215(02)&from=ENhttp://ec.europa.eu/priorities/deeper-and-fairer-economic-and-monetary-union/towards-european-pillar-social-rights_enhttp://eur-lex.europa.eu/legal-content/EN/TXT/?qid=1478557761991&uri=CELEX:52016SC0051http://ec.europa.eu/europe2020/pdf/europe2020_consultation_results_en.pdf

education and training, intercultural andcitizenship competences comes at a timewhen Europe faces unprecedentedchallenges: the need to support the valuesat the heart of the EU in response toterrorist attacks, and integrating largenumbers of newly arriving youth and adultsfrom several countries and different culturalbackgrounds into education and trainingand the labour market. This will put moredemands on the inclusive potential of VET.

(23) VET will need to help ensure that innovativeand skilled jobs of good quality can actuallylead to higher productivity and growth.STEM skills are expected to become moreimportant, considering that related sectorsare expected to grow faster than the aver-age. Need for STEM qualifications is notconfined to higher education level: mecha-tronics, IT, and media design can beacquired through upper and post-secondaryschool-based VET and also through appren-ticeships in several countries. The jointemployment report accompanying the 2016growth survey underlines the need: ‘Mod-ernisation, better alignment of skills andlabour market needs and sustained invest-ment in education and training, includingdigital skills, are essential for future employ-ment, economic growth and competitivenessin the EU’ (21).To embrace the digital trans-formation skills, the European Commissionhas invited Member States to developnational skills strategies (22).

(24) Raising productivity and growth depends onensuring that people can get the bestpossible value out of the skills they possess,by finding suitable jobs in which their skillsare not only used, but also continuouslydeveloped. The need for serious effortsfrom government and social partners todevelop every workplace as a place ofcontinuous learning is increasinglyemphasised. Workers and people hit hardby the crisis need stronger support througha mix of learning and activation policies,which include customised VET provisionsand work-based learning. This also implies(re-)organising work to promoteopportunities for learning as well as usingtools and methods to ensure valuing,recognition and transferability of their skillsand competences. Labour marketintelligence combined with guidance andcounselling should support finding careerdevelopment paths that fit best to people’squalifications and aspirations.

(25) Supporting a shared commitment in thiseffort, the European Commission’s Newskills agenda launched in 2016 (23) works‘towards a common vision about thestrategic importance of skills for sustainingjobs, growth and competitiveness’. Itssuccess will not only depend on thecommitment and expertise of education,training and labour market actors and social


(23) European Commission (2016). A New skills agenda forEurope: working together to strengthen human capital,employability and competitiveness: communication from thecommission to the European Parliament, the Council, theEuropean Economic and Social Committee and theCommittee of the Regions. COM(2016) 381 final.http://bit.ly/2ih0ELs [accessed 7.11.2016].

(21) European Commission; Council of the European Union(2015). Draft joint employment report from the Commissionand the Council accompanying the communication from theCommission on the annual growth survey 2016. COM(2015) 700 final. http://bit.ly/2jLUAGT [accessed 12.1.2016].

(22) This initiative is part of the New skills agenda; see below.

http://ec.europa.eu/social/BlobServlet?docId=15621&langId=enhttp://ec.europa.eu/europe2020/pdf/2016/ags2016_draft_joint_employment_report_en.pdf

partners. It will also require a shift inmindsets of organisations and civil society;people will need to use the opportunitiesthey are offered to tap into their talents. Itadvocates adequate upskilling pathways forEurope’s nearly 70 million low-skilled toimprove their employment opportunities andaims to ensure all young people and adultshave the strong key competence baseneeded in the 21st century across all sectorsand occupations. VET plays a central rolein the skills’ agenda. Attractiveness andquality of VET vary significantly acrossEurope. While many European countrieshave strong initial VET systems that have ahigh standing among citizens and in thelabour market, in too many others VET stillhas a poor reputation and is considered asecond choice for young people. Evidenceshows that even countries with traditionallystrong initial VET face declining enrolmentin VET. Some countries suffer from a lack ofparity of esteem with the ‘academic’ highereducation sector, which can undermine theimportant role played by VET foremployment and growth. The outcomes ofnational initial and continuing VET also varysignificantly between European countries,demonstrating the importance of monitoringand reviewing more systematically theactual learning outcomes of VET ascompared to the intended ones.

(26) VET provision for young people and adults,whether initial or continuing, at secondary,post-secondary or tertiary level, is complexand delivered by an increasing range ofinstitutions and stakeholders. The need torethink and broaden the concept of VET,and to consider how these diverseinstitutions and stakeholders can interact

and work in combination with the labourmarket, is increasingly important. This willalso require reflection on how initial andcontinuing VET are connected, underliningthe need for a life-course perspective wherelearning careers are developed hand inhand with occupational careers. Learningoutcomes based qualifications frameworksshould be used more actively to visualiseopportunities and pathways and to supportrecognition/validation.

(27) European tools for transparency andrecognition of qualifications provide asystematic infrastructure that supportspermeability (24) between VET and otherforms of education and training, enablingindividualised and flexible learningpathways. By promoting mobility acrosssectors and borders, these tools are alsoengines of lifelong employability. This callsfor quality jobs that integrate non-formal andinformal learning as well as effective qualityassurance arrangements.

(28) All forms of work-based learning, especiallyapprenticeship, are recognised as crucial toensuring people acquire relevant and(potentially) excellent skills at all levels. Atthe same time, expanding different types ofwork-based learning at different levelsrequires enterprises that are willing tocooperate and have the capacity to provideplacements and training. Involving

SECTION IGeneral context 15

(24) Permeability of education and training systems: ‘Capacityof education and training systems to enable learners to:access and move among different pathways (programmes,levels) and systems; validate learning outcomes acquiredin another system or in non-formal/informal setting’.Cedefop (2014). Terminology of European education andtraining policy: a selection of 130 key terms: second edition.Luxembourg: Publications Office. http://bit.ly/2l5R8Yx

http://www.cedefop.europa.eu/en/publications-and-resources/publications/4117

stakeholders across education/training andthe labour market is critical to ensuringsuccessful VET policy. How to moderniseand further strengthen the tripartite characterof VET at all qualifications levels in differentnational contexts remains a key challenge:this partnership between education/trainingand labour market actors is a prerequisite toachieving aims in countries’ joint work onVET for young people and adults. As agreedin the Riga Presidency conclusions(Copenhagen process) (25), this joint workwill focus on five main areas in the period upto 2020 to achieve the objectives endorsedin the Bruges communiqué in 2010:(a) all forms of work-based learning for

young people and adults, with specialattention to apprenticeships;

(b) quality assurance mechanisms in linewith the EQAVET recommendation andfeedback loops to IVET and CVET;

(c) access to VET and qualifications for allthrough flexible systems, guidance andvalidating non-formally and informallyacquired skills;

(d) key competences in both IVET andCVET;

(e) initial and continuing professionaldevelopment of VET teachers, trainersand mentors in school and work-basedsettings.

(29) Work in these areas will be underpinned by:promoting excellence and innovation inVET, linking businesses with VET schools;focusing on learning outcomes; establishingcomprehensive validation arrangementsand using the common European toolsconsistently; and ensuring efficient funding.To achieve these deliverables, strongpartnerships, particularly with socialpartners, will be crucial.

(30) Accomplishing the VET deliverables andthe Renewed European adult learningagenda is also at the heart of the Europeancooperation framework for education andtraining more generally (ET 2020) and its sixnew priorities (26). These and otherinitiatives to support Member States in theirreforms are reinforced in the 2016 Newskills agenda which aims to:(a) improve the quality and relevance of

skills formation;(b) make skills and qualifications more

visible and comparable;(c) improve skills intelligence and

information for better career choices.(31) Together these policy documents set the

key parameters for Cedefop’s work in thecoming years.


(25) Since 2002, European countries, social partners and theEuropean Commission have worked together on commonpriorities for VET. In Copenhagen they committed to makingmobility for work and learning and access to lifelong learningeasier. A series of communiqués that set policy prioritieshave guided this voluntary process. The Brugescommuniqué in 2010 combined a long-term vision for 2020with a series of actions that countries agreed to put in placeby 2014. Its objectives are in line with the Education andtraining 2020 framework. In June 2015, the Riga Presidencyconclusions outlined a new set of actions for 2015-20.NB: This list is an abridged version of the deliverables. For

further information, please see http://bit.ly/1a1s1R5and http://bit.ly/1K4p2Y7 [accessed 7.9.2015].

(26) Council of the European Union ( 2015). Joint report of theCouncil and the Commission on the implementation of thestrategic framework for European cooperation in educationand training (ET 2020): new priorities for Europeancooperation in education and training. Official Journal of theEuropean Union, C 417/04, 15.12.2015, p.25-35.http://bit.ly/2k4NA8P [accessed 18.11.2016].

http://ec.europa.eu/education/policy/vocational-policy/index_en.htmhttp://www.cedefop.europa.eu/en/news-and-press/news/european-ministers-endorse-riga-conclusions-vethttp://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=CELEX:52015XG1215(02)&from=EN

2.1. Multiannual objectives

(32) Cedefop’s mission and its expertise at theinterface between education and trainingand the labour market have guided its pastand current objectives, medium-termpriorities and annual work programmes.External evaluations have confirmed thatCedefop’s work has been well aligned withthe EU’s overall policy agenda, to ET 2020and the objectives and priorities of theCopenhagen process.

(33) In the future, support to and follow-up ofthe Copenhagen process with its Brugescommuniqué and Riga conclusions willremain at the heart of Cedefop’s work.The Riga deliverables and the RenewedEuropean agenda for adult learning, thoughprocesses in their own rights, form a mainpillar of the renewed priorities of the overallET 2020 framework. Together with theEuropean employment initiatives and theEuropean Commission’s New skills agenda(27) they will guide Cedefop’s work in thecoming years. Sound understanding ofhighly differentiated VET systems, policydevelopments and labour market changesand skill needs across Europe haveenabled Cedefop to assist the EuropeanCommission, Member States and socialpartners in shaping and implementingcommon VET-related policies. And it is this

expertise which also enables the Agency torebalance its activities.

(34) Increasing emphasis on more relevanceand impact of VET is reflected in the wayCedefop is expected to monitor countries’progress in their commonly agreed prioritiesfor VET. It has also already been evident inCedefop’s more recent work: support toimplementing national qualificationframeworks is moving towards assistingcountries more directly in this task; the workon the European Skills Panorama turnslabour market data and information intointelligence that helps policy-makers decideon skills and jobs in Europe; by pilotingcountry reviews on apprenticeships andintroducing policy learning fora, for instanceon how to write learning outcomes, Cedefophas already responded to the increasingneed to work also more closely withMember States and social partners.

(35) In the context of these developments,Cedefop’s new multiannual objectives,(a) providing new knowledge and

evidence;(b) monitoring policy trends and provide

policy analysis of developments;(c) acting as a knowledge broker for

countries and stakeholders,reflect the core functions of the Agency.Combined with the thematic strategic areasof operation (see 2.) they define the typeand scope of work the Agency intends todeliver during the programming period.

(36) Cedefop’s multiannual objectives reflect theaim pursued by the Agency to support thedesign and inform an evidence-based pol-icy agenda that fosters continuousdevelopment of VET in response to eco-nomic, social and employment challenges,

SECTION II

Multiannual programming 2017-20

(27) European Commission (2016). A New skills agenda forEurope: working together to strengthen human capital,employability and competitiveness: communication from theCommission to the European Parliament, the Council, theEuropean Economic and Social Committee and theCommittee of the Regions. COM(2016) 381 final.http://bit.ly/2ih0ELs [accessed 7.11.2016].

http://ec.europa.eu/social/BlobServlet?docId=15621&langId=en

global competition, and rapidly evolvinglabour markets in the EU. Cedefop is alsoworking to promote European cooperationand policy learning between countries,social partners and stakeholders, while sup-porting the implementation of EU policiesand measures.

(37) The achievement of Cedefop’s multiannualobjectives will be assessed using a batteryof indicators from Cedefop’s performancemeasurement system (PMS) focusing onthe outcomes achieved by the Agency.

(38) Cedefop’s PMS (detailed in Annex XI)concentrates on three types of results:(a) the organisation’s impact in helping

develop European VET policy;(b) the outcomes or achievements of

Cedefop’s activities;(c) its outputs.

(39) Outcomes are measured by performanceindicators and provide evidence of thedegree to which Cedefop’s information andexpertise is used, is of interest, and reachesits target groups. They measure, forexample, the references of Cedefop’s workin (EU) policy documents and academicliterature, Cedefop’s contribution to policy-relevant meetings of senior stakeholders(such as meetings of Directors General forVET), publication downloads, mediacoverage or quality of Cedefop’s events.

(40) A selection of Cedefop’s PMS indicators isalso used to inform the key performance

indicators (28) to assess the Director’sperformance in achieving operationalobjectives and in managing human andfinancial resources in the context of thedischarge procedure. For the workprogramme 2017, eight indicators will beused (see Annex XI). These were proposedby an ad hoc working group set up bydecision of the Cedefop Governing Board inJune 2015 and were endorsed by theCedefop Bureau in December 2015 and bythe Governing Board in September 2016.

2.2. Strategic areas of operation

(41) In line with the vision and values set for theAgency, during the programming period,three main thematic strategic areas ofoperation have been defined:(a) shaping VET: foster the renewal and

modernisation of VET systems andinstitutions in response to rapidlychanging policy needs and priorities,and support the development and useof European tools and principles pro-moting lifelong and life-wide learning;

(b) valuing VET: support the developmentand implementation of VET policies andprogrammes helping all citizens toachieve competences and skillsrequired for work, employability, entre -preneurships, and lifelong learning in aconstantly changing labour market;

(c) informing VET: inform the design ofVET and employment policies thatensure the availability of a qualifiedworkforce and its continuous andeffective skilling; promote jobs thatvalue, develop and make the best


(28) Joint statement and common approach of the EuropeanParliament, the Council of the EU and the EuropeanCommission on decentralised agencies. 19 July 2012.http://bit.ly/2hvgKR9Roadmap on the follow-up to the common approach on EUdecentralised agencies. 19 December 2012.http://bit.ly/2hv6EQ2

https://europa.eu/european-union/sites/europaeu/files/docs/body/joint_statement_and_common_approach_2012_en.pdfhttps://europa.eu/european-union/sites/europaeu/files/docs/body/2012-12-18_roadmap_on_the_follow_up_to_the_common_approach_on_eu_decentralised_agencies_en.pdf

possible use of people’s skills through -out their working lives.

(42) These thematic strategic areas of operationhave been selected taking due account ofthe context and key challenges for VET aswell as EU policy objectives. Across thesestrategic areas, activities will contribute tofulfilling the multiannual objectives of theAgency: providing evidence and newknowledge; monitoring and analysingpolicies; and acting as a knowledge brokerfor countries and stakeholders. Constantefforts will also be made to build synergiesbetween the three strategic areas ofoperation to provide an integrated view oftrends and developments and support moreeffectively policy shaping, learning andimplementation.

(43) Being a well-run organisation will supportattainment of the Agency’s vision and val-ues. Attaining our objectives will contributeto Cedefop being further acknowledged andvalued by its stakeholders as the Europeansource for evidence on VET, skills and qual-ifications. It will also ensure that the Agencyremains a key player in the attainment ofthe EU policy objectives, strengtheningEuropean cooperation and efforts by theEuropean Commission, Member States andsocial partners to design and implementworld class and inclusive VET, in line withthe Riga medium-term deliverables, theobjectives of the Copenhagen process andthe EU skills agenda.

(44) The rationale guiding Cedefop’s strategy isshown in Figure 1.

SECTION II Multiannual programming 2017-20 19

Figure 1. Rationale guiding Cedefop’s strategy

Shaping VET systemsand qualifications

Valuing VETto empower people

Informing VET by offeringlabour market intelligence

STRATEGIC AREA OF OPERATION

(a) provide new knowledge and evidence

(b) monitor policy trends and provide policy analysis of developments

(c) act as knowledge-broker for countries and stakeholders

MULTIANNUAL OBJECTIVES

Be acknowledged and valued by stakeholders as the European

source for evidence and information on VET and skills

Be a key player in the attainmentof EU policy objectives for VET,

skills and qualifications

Be an efficient, well-runand compliant Agency providing

a nurturing environmentto a qualified and motivated staff

CEDEFOP VALUES

As a European agency, Cedefop will strengthen European cooperation in vocational education and training (VET) and support the European Commission, Member States and social partners in designing and implementing policies for a world-class and inclusive VET that provide skills and qualifications relevant for working lives and the labour market

VISION

2.3. Multiannual programme

2.3.1. Strategic area of operation 1: shaping VET

(45)

(46) VET systems and qualifications should bedriven by the labour market and the need torespond to social, political and economicchanges. The pace of the changes affectingsociety, the economy, the labour marketand technologies has increased, whichimplies constant renewal and modernisa-tion of systems and institutions deliveringinitial, higher and continuing VET. VETshould continue to strike a balance betweenensuring professional and vocational excel-lence and supporting the integration of allcitizens into society and the labour market.Above all, it should provide all citizens withthe skills needed for employment and life-long learning.

(47) To rise to these challenges, EU MemberStates and social partners have engaged ina process of cooperation and have setstrategic objectives to be attained by 2020by European VET systems. They have alsoagreed on mid-term deliverables to focusreforms on key areas where modernisationis critical. This process, spearheaded by theEuropean Commission, is fully integratedwith the European process of economiccoordination (‘European Semester’) and theEducation and training 2020 objectives.

(48) The European tools and principles fortransparency of qualifications are a tangibleoutcome of European cooperation. Theyaim to increase permeability between VETand other forms of education and training,aid mobility across sectors and borders, andpromote lifelong learning and employability.

(49) Cedefop will continue to support theEuropean Commission, Member States,social partners and other VET stakeholders:monitoring policy developments and stepstaken towards implementation of thecommonly agreed objectives by EUcountries; providing technical expertise andevidence that helps shape common EUobjectives, principles and tools; andproviding concise and comparative analysisof trends, challenges and opportunities forEuropean VET systems and institutions.

(50) Working at the interface of VET and thelabour market, Cedefop is in a uniqueposition to understand how policies, toolsand principles affect diverse VET systems,institutions and stakeholders to serve theneeds of individuals, employers and societyin general.

(51) During 2017-20, the Agency will give priorityto:(a) monitoring VET policy developments

and their impact, in line with the objec-tives set by the Member States for 2020and the mid-term deliverables for VETagreed in Riga in 2015. Progress will bemonitored and analysed taking intoaccount individual country challengesand policy priorities, and using both qual-itative and quantitative indicators. Theapproach will be based on three princi-ples: strong stakeholder involvement;focus on countries’ priorities in relation to


Foster the renewal and modernisation of VETsystems and institutions in response to rapidlychanging policy needs and priorities andsupport the development and use of Europeantools and principles promoting lifelong and life-wide learning.

the mid-term deliverables and the waysto address them; and clustering coun-tries facing similar issues or with similarstatus and policy priorities to present asynthesised view of progress towardsVET policy objectives. Reports present-ing progress across countries andmid-term deliverables will be producedtwice (according to Cedefop’s mandate),in 2017 and in 2020. Work will also focuson the mobility scoreboard, sheddinglight in the challenges that IVET learnersface when they participate in interna-tional learning mobility. The Agency willalso work on key competences, one ofthe five 2015-20 deliverables analysinglinks between policies promotingselected key competences atnational/regional level and implementa-tion in initial VET. The findings will alsofeed into the interim and final reports onprogress of the 2015-20 medium-termdeliverables for VET. Choice of the com-petences and scope of the analysis willbe informed by the further work of theCommission on the review of the keycompetences framework and will bebased on information gaps identified inthe initial mapping exercise, the findingsof the monitoring process and furtherqualitative and quantitative evidencefrom other sources (e.g. OECD, JRC);

(b) developing and supporting the imple-mentation of European tools andprinciples for transparency and recogni-tion of qualifications. The focus will be onthe consistency of implementation of theEuropean qualifications framework forlifelong learning and the modernisationof national systems through the further

development of learning outcomesbased national qualifications frameworkscovering all levels and types of qualifica-tions. Work will also address the impactof qualifications frameworks on educa-tion and training policies and practicesand in particular seek to understand bet-ter the role of learning outcomes inimproving and promoting quality, trans-parency and recognition of qualifications.Building on experience from jointly devel-oping and managing Europass, Cedefopwill continue to support the Commis-sion’s effort to provide better services forskills and qualifications;

(c) deepening understanding of how thenature and role of European VET ischanging by analysing the influence ofinternal factors (such as pedagogicalapproaches and institutional models)and external ones (such as labour mar-ket, technology and demographics,demand for skills versus demand forqualifications) on the delivery and takeup of initial and continuing VET. Thiswork, supported by the evidence pro-vided through monitoring and analysesof VET policies, will feed into scenariosoutlining alternative development pathsfor European VET in the 21st century.These scenarios will strive to include theperspectives of different stakeholders,notably those of national and regionalauthorities, enterprises and tradeunions. The scenarios will demonstratehow VET policies operate at the inter-face of social, economic as well aseducation and training policy goals;

(d) contributing to the work undertaken bythe Member States, the Commission,


social partners and other stakeholderson horizontal comparisons of contentand profile of qualifications in the contextof the European qualifications frame-work. Work will also focus on providinginsights into the way qualifications aredefined, reviewed and renewed. This willtake into account the work on learningoutcomes and will support the develop-ment of relevant and high-quality VET.

2.3.2. Strategic area of operation 2: valuing VET

(52)

(53) The ultimate goal of VET policy is to meetthe needs of individuals for work, employa-bility and welfare while addressingambitious goals of stakeholders in terms ofincreased productivity, economic develop-

ment, and social inclusion. The segmenta-tion and diversity of VET policies reflectsthe fact that citizens’ and societies’ needsare diverse and that VET serves differentand sometimes conflicting objectives. Thisis why the actual value of VET policy, pro-grammes and measures depends on theirresponsiveness to contextual factors andspecific needs of individuals and targetgroups concerned.

(54) The focus of this strategic area of operationis on promoting better understanding ofwhich strategic approaches and models ofintervention can be successfully imple-mented to attract and retain people in VET,while promoting successful transitions towork and progression of individuals withinthe labour market.

(55) In-depth analysis of selected VET policies,programmes, and measures in specificnational contexts will be developed toenhance policy learning between countriesand directly support effective implementa-tion of VET policies, including the Councilrecommendation Upskilling pathways: newopportunities for adults.

(56) This will be done by building on systematic


Figure 2. Strategic area of operation 1: shaping VET – key activities 2017-20

a

2016 2017 2018 2019 2020

Changing nature and role of VET

EU tools: Synergy, implementation, policy learning

Key competences in VET

Mobility scoreboard

Monitoring VET (interim) Monitoring VET (final)

Support the diffusion and implementation ofVET policies and measures helping all citizens,and particularly specific target groups, toachieve the knowledge, skills and competencesrequired for work, employability and lifelonglearning in a constantly changing labourmarket.

collection of evidence and supportingcooperation among Member States, socialpartners and other VET and labour marketstakeholders.

(57) Cedefop will also contribute to the imple-mentation of the Council recommendationon validation of non-formal and informallearning through expert input to the work ofthe EQF advisory group (or its successor)and related peer learning activities.

(58) In line with the medium-term deliverablesagreed in Riga in 2015, during 2017-20Cedefop work will contribute to supportingVET attractiveness, effectiveness andinclusiveness where VET is provided andtargeted by focusing on:(a) promoting access to VET and its

attractiveness for individuals and firmsand improving adaptability of workers ina constantly changing labour market:efficient and integrated guidanceservices; systems and tools to improvevalidation of non-formal and informallearning; and suitable and sustainablefinancial and non-financial incentives.

(b) supporting the development of effec-tive VET policies and programmes

that provide high-quality skills and qual-ifications relevant to employability ofindividuals, entrepreneurships, andlabour market needs, with specialfocus: work-based learning in all itsforms, particularly apprenticeships; ini-tial and continuous professionaldevelopment of VET teachers, trainersand mentors; and cooperation betweenall VET stakeholders to foster continu-ing training (CVET) policy and practice.

(c) supporting the inclusive role of VET inaiding (re)integration into education andtraining and the labour market ofspecific groups of low-skilled adults.

(59) Cedefop’s work in this area will look at thedifferent roles of VET for young people andadults taking into account socioeconomiccontext as well as the broader perspectiveof VET-related policies. In-depth analysis ofVET policies, measures and practices inselected national contexts will supportpolicy learning between countries andeffective policy implementation. Cedefopwill also take full advantage of opportunitiesto engage VET stakeholders.


Figure 3. Strategic area of operation 2: valuing VET – key activities 2017-20

a

Access to and attractiveness of VET

Effectiveness of VET policies and programmes

VET for LM integration & Social inclusion

2016 2017 2018 2019 2020

2.3.3. Strategic area of operation 3:informing VET

(60)

(61) There is widespread concern that skillmismatch might prevail in Europe. Thefinancial and economic crisis has increasedunemployment to unprecedented levels insome countries, badly affecting youngpeople trying to enter the labour market.When people stay outside of the labourmarket or education and training for toolong, this negatively affects the currency oftheir skills and their chances of finding asuitable job and building a successfulcareer in the future.

(62) In parallel, a significant share of employersreport that they cannot fill vacancies andthat, despite a general rise in qualificationlevel, job applicants suffer from a lack oftechnical and soft skills as well as jobreadiness. However, Cedefop’s Europeanskills and jobs survey points to a significantunderutilisation of skills available in Europe.First, the share of individuals not being ableto find jobs matching their skills andqualifications, already significant before thecrisis, has been increasing in Europe.Second, the skills possessed by workerstend to be underused and underdevelopedby their employers. This is not only to thedetriment of employee job satisfaction andopportunities to develop skills and learn atwork, it also negatively affects enterprise

competitiveness and innovation capacity.(63) These seemingly contradicting facts and

trends are indicative of various tensions andmismatches in the labour market as well asbetween the worlds of education and train-ing and employment. By providing soundlabour market intelligence, as well as evi-dence on skills supply, demand andmismatch, Cedefop can help ease thesetensions. Labour market intelligence, includ-ing anticipation of skill needs, is instrumentalin informing VET and ensuring it can supportthe skilling and reskilling of individuals, inline with labour market needs, by makingrelevance a key factor in a person’s qualifi-cation. Good labour market intelligence,readily available to end-users also promotesthe mobility of workers between occupa-tions, sectors and countries.

(64) Raising productivity and competitiveness inEurope depends not only on education andtraining, including VET, and on meetinglabour market needs; it also requires thatpeople can find a good quality job, matchingtheir qualification and in which their skillsare valued, used, and continuouslydeveloped. Key challenges in the comingyears are to foster economic growth, toprovide the right policy and institutionalenvironments to create more and betterjobs and maintain existing ones, and to helpjob seekers finding well-matched and goodquality jobs across Europe, so as to reachthe full potential of Europe’s labour force.On top of incentives for growth andinvestment, VET is a key element of thepolicy package to be deployed to rise tothese challenges.

(65) In the period 2017-20, Cedefop willtherefore give priority to:


Inform the design of VET and employmentpolicies that ensure the availability of aqualified workforce, and its continuous andeffective skilling, and promote jobs that value,develop and make the best possible use ofpeople’s skills throughout their working lives.

(a) providing high-quality evidence ontrends in the labour market and skillneeds, and delivering it to end-usersin a fit-for-purpose and timelyfashion. To do this, the Agency willcarry out research on trends in theeconomy and in companies and theirinfluence on changes in employment,jobs and skills. Using state-of-the-artmethods and tools, including big dataanalysis, the Agency will also continueto investigate changes affecting skillsupply and skill demand, as well asforecasting future skill needs inEurope (29) and the reasons behind skillmismatch. This intelligence will not onlybe put at the service of policy-makersalong with sectoral cooperation on skillsto increase the responsiveness of VET.It will also be used to supportemployment services and guidancecounsellors who help young people and

adults identify career and learningopportunities that meet and help themdevelop their skills, qualifications andaspirations, whatever the occupation,sector, region or country;

(b) identifying policies and practicesthat encourage stakeholders(including social partners), institu-tions and VET providers to work inpartnerships to address skill mis-match. The objective will be to spreadpolicies that support national, regionaland local economic developmentthrough cooperation among educationand training providers, including VETinstitutions, enterprises and otherstakeholders, with the aim of increasingthe responsiveness of education andtraining to economic needs, andimproving the efficient developmentand utilisation of skills. Attention willalso be paid to sharing successfulworkplaces models and practices forthe use and further development ofpeople’s skills;


Figure 4. Strategic area of operation 3: informing VET – key activities 2017-20

(29) According to the mandate provided to Cedefop by theCouncil, every two years Cedefop produces pan-Europeanforecasts of trends in skill supply and demand.

a

2016 2017 2018 2019 2020

Statistics on VET, adult learning and skills supply

Skills Panorama

EU Skills forecastEU Skills forecastEU Skills forecast

Capacity building on skills anticipation and matching

European Company Survey with Eurofound

Real time LMI using online vacancies

(c) supporting policy learning and helpbuilding capacity in Europe. Cedefopwill increasingly support countries andstakeholders, including social partners,who aim to develop their ownintelligence and data on skills andemployment needs, learn about themost effective and current anticipationmethods, and implement effectivepolicies and actions to tackle skillmismatch.

2.3.4. Communication and dissemination(66) Effective communication helps achieve

Cedefop’s vision and its value to ‘beacknowledged and valued by stakeholdersas the European source for evidence andinformation on VET, skills and qualifica-tions’.

(67) Like the European Commission, Cedefopcommunication is following the principles ofcorporate communications. In the context ofa European agency this requires manage -ment and steering of all internal andexternal communication activities in such away as to create a favourable point of viewamong the organisation’s key accounts andvarious stakeholders groups, whichcomprise policy-makers and social partners,researchers and international organisations,practitioners and VET training providers aswell as the wider public.

(68) The target is to link communication effec-tively to the Agency’s business strategy,expressed by its three multiannual objec-tives with well-defined performanceindicators. Efficient communication in themedium-term is more than just meeting theexpectations of various groups of keystakeholders by delivering information that

is target-group-specific, user-need-oriented,coherent, reliable, up-to-date and timely.Cedefop’s communication activities will gobeyond pure information provision and willfocus on user engagement. This meanspush/pull of a wide range of information for-mats, as well as provision of interactivechannels for stakeholder engagement.Cedefop will systematically monitor devel-opments in social media communicationand new innovative and interactive publica-tion formats, like audiovisual, infographics,animation, webinars and online polls.

(69) Cedefop communication will not work in iso-lation, but will strategically align with theCommission’s (DG EMPL) communicationunit. An integrated communicationapproach, joint forces in the areas of presswork, social media, publications andevents, as well as concerted communica-tion campaigns will assure high efficiencyand maximum outreach in the interest of theEuropean citizen. Regular exchange ofinformation will ensure identifying joint com-munication themes, goals and priorities,determining key messages, defining com-mon or complementary target audiences,and sharing efficiently resources, communi-cation channels and means for impactassessment.

(70) Another strategic milestone for Cedefop’sexternal communication will be the develop-ment of an open access repository (OAR).As an EU agency, Cedefop aims at support-ing free and accessible dissemination ofhigh-quality VET research results in theframework of the open access standard.But a Cedefop OAR will be more than justan online archive for collecting, preserving,and disseminating digital copies of the intel-


lectual output of the organisation. It will, inthe mid-term, allow Cedefop to interactmore efficiently with the international openaccess community and communicate in amore systematic manner, following the lat-est developments in dissemination ofscientific, research and policy information.The Agency’s open access policy will coverall key publications, reports, grey literature,new audiovisual and other innovative datavisualisation formats, findings fromCedefop’s activities and from partner organ-isations in Europe. Therefore the OAR is ofparamount importance for Cedefop to beacknowledged not only as an authoritativesource, but also as the leading knowledgebroker for providing evidence to inform andshape European VET policy.

2.3.5. Management and resources(71) Human capital and its management are

crucial to the effectiveness of a knowledge-based organisation such as Cedefop, andeven more so in the context of increasingbudget cuts.

(72) During 2017-20, improving attractiveness ofCedefop as an employer, while making bestuse of electronic media and networks, willsupport recruitment of highly qualified anddiverse staff.

(73) To meet evolving demands and retainhighly qualified staff, the availability of pro-fessional development systems, alongsideadequate performance management, isindispensable. Cedefop will continue toinvest in expert, manager and assistantstaff skills through its comprehensive learn-ing and development strategy.

(74) Staff wellbeing is an additional focus andwill be addressed through several policies

and initiatives, including a staff survey in2017, repeated at two-year intervals and awide-ranging health and safety action plan.Cedefop will further social dialogue andconduct supplementary activities as follow-up to the 2013 staff survey.

(75) Cedefop will continue its efforts toimplement electronic administrativeworkflows.

(76) The e-tendering project will be taken for-ward progressively during 2017-20, leadingto procurement and contract managementrun fully online and e-invoicing procedures.It will be complemented by automated fol-low-up of framework contracts.

(77) In its continuous pursuit of increasingefficiency and reducing administrativeburden, Cedefop will review its processesand investigate possible synergies andfurther efficiency gains within theorganisation. This will be supported byinitiatives to improve electronic reportingfacilities and analytical tools to applyactivity-based management to optimise useof resources.

(78) Cedefop will continue to upgrade its existingIT infrastructure and applications with newtechnologies and systems available in otherEuropean institutions. Cedefop’s stake -holders will have secure and fast access toresources, including mobile technology.

(79) The resources department will cooperateclosely with operational departments toinnovate and develop new tools which willcontribute directly to the core business,such as visualisation of large data sets.

(80) In addition to improving the functionality ofits building facilities, Cedefop will strive toimplement – subject to budgetary availabil-ity – key recommendations of the 2015


energy feasibility study to convert graduallyto a reliable, sustainable and competitiveenergy system. This work will take accountof measures/objectives defined by the proj-ect group on green initiatives to limit theenvironmental footprint.

2.4. Human and financial resourceoutlook for 2017-20

2.4.1. Overview of the past and currentsituation

2.4.1.1. Staff population overview for 2015(81) Cedefop’s 2015 establishment had 96 posts

(49 AD and 47 AST). It included 17permanent and 79 temporary posts. In2015, Cedefop employed 25 contractagents and four seconded national experts.Cedefop staff were drawn from 24 EUnationalities and one representative ofEFTA (30).

2.4.1.2. Expenditure for 2015(82) The total budget execution at the end of

2015 reached 98.24% in relation tocommitment appropriations and 82.73% inrelation to payment appropriations.

2.4.2. Resource programming for 2017-20

The estimate for the 2017-20 draft budgetrespects the budgetary constraints set out in theCommission communication on programming ofhuman and financial resources for decentralisedagencies 2014-10 (COM(2013)519 final) (31).Cedefop’s estimate is based on the experienceof previous years and had projected a furtherdrop in the weighting factor for Greece in theorder of at least -2%, possibly offset in part bya positive salary adjustment (32).

In November 2016, Cedefop receivedinformation of an unexpectedly high retroactivesalary adjustment (+3.3%) which is only offsetslightly by a further drop in the weighting factor(-0.6%). These figures have resulted in asignificant budgetary shortfall in Title 1 (staffcosts) which, in 2017, Cedefop will cover byexpanding the list of negative priorities acrossall Titles. The next programming document forthe period 2018-20 will further address theimpact of the salary adjustments rate for 2018and beyond.

This recent development illustrates thevulnerability of Cedefop’s budgetary planningand management to external factors which arecompletely outside its control and whereexperience is not a reliable guide. The budgetaryimpact of the 2016 salary adjustment, carriedforward into 2017 and beyond (and possiblycompounded by comparably high adjustmentsin the coming years) makes the cap on Title 1expenditure unsustainable and had to be offsetby setting additional negative prioritiesthroughout the programming period (seeparagraph 120 below).


(30) The four unrepresented EU nationalities are: Ireland,Lithuania, Hungary and Sweden.

(31) Also referred to as the multiannual financial framework(MFF) 2014-20.

(32) In 2015, the weighting factor for Greece was exceptionallyadjusted twice, resulting in a total reduction by -6.9% (from86.9% on 31/2/2014 to 79.9% on 31/12.2015). Since 30June 2011, the weighting factor has dropped from 94.8% to79.3%, i.e. by 15.5%.

2.4.2.1. Financial resources(83) The estimate for the 2017 budget stays

within the budgetary constraints of themultiannual financial framework (MFF)2014-20, due to the above-mentionednegative priorities. Cedefop thus requestsan EU subsidy of EUR 17 434 000 for 2017.

(84) In nominal terms, the EU subsidy has beenkept constant since 2012; this correspondsto a decreasing budget in real terms. Ittakes into consideration the redeploymentof staff because of budgetary constraints,the phasing-out of existing tasks (such asstudy visits), growth in existing tasks (seeparagraphs 101 to 113) and modified tasks(see paragraph 100).

(85) The budget 2017 has been estimated atEUR 17 869 389 (reduced by 2.73%compared to 2015 and by 0.84% comparedto 2016, since the DG EMPL delegationagreement of December 2013 ended in2016, and Norway and Iceland contributionsto the EU budget decreased by 14%). AnEU subsidy of EUR 17 434 000 is requestedand the remaining EUR 435 389 are theestimated Norway and Iceland contributionsand own revenues.

(86) The budget 2018 has been estimated atEUR 17 869 389, the same level as 2017.An EU subsidy of EUR 17 434 000 isrequested, in line with the MFF 2014-20,and the remaining EUR 435 389 are theestimated Norway and Iceland contributionsand own revenues. Revenue will notincrease as compared to 2017.

(87) The budget 2019 has been estimated atEUR 18 227 105. An EU subsidy of EUR 17783 000 is requested and the remainingEUR 444 105 are the estimated Norwayand Iceland contributions and own

revenues. Revenue is estimated to increaseby 2% compared to 2018.

(88) The budget 2020 has been estimated atEUR 18 590 967. An EU subsidy of EUR 18138 000 is requested and the remainingEUR 452 967 are the estimated Norwayand Iceland contributions and ownrevenues. Revenue is estimated to increaseby 2% compared to 2019.

(89) The forecast of Norway and Icelandcontributions and own revenues in the2017-20 draft budgets includes:(a) third-party (Norway and Iceland)

contributions:• 2017: EUR 425 389 (33);• 2018: EUR 425 389;• 2019: EUR 433 905;• 2020: EUR 442 567;

(b) revenue and allowances for servicesrendered against payment includingpublications:• 2017: EUR 10 000;• 2018: EUR 10 000;• 2019: EUR 10 200;• 2020: EUR 10 400;

(c) total third party and own revenues arethus forecast to be:• 2017: EUR 435 389;• 2018: EUR 435 389;• 2019: EUR 444 105;• 2020: EUR 452 967.


(33) The rates of the ‘proportionality factor’ for Norway andIceland, applicable as a ratio on the EU subsidy amount forthe calculation of budget forecasts of 2017, are used for theestimates of the years 2017-20. The amount increases inline with increases in the EU subsidy.

Allocation and evolution of the budgetappropriations by Title: budgets 2017-20

(90) For Title 1, the estimate is based on theprovisions for the establishment plan and itsoccupation (see also Annex III, multiannualstaff policy plan 2017-20). It takes intoaccount turnover and retirements, and thestaff resources needed for theimplementation of Cedefop’s activities.Salary and allowances calculations arebased on the latest update (November2016) of the salary scale of officials andother employees of the European Unioninstitutions and bodies applicable as of 1July 2016. Cedefop’s initial budgetestimates for salary costs were based onthe assumption of a 2% increase everyyear, linked to staff career progression(automatic step increase every two years asprovided for by the EU staff regulations).Taking into account the 3.3% increase in

salaries and allowances applicable as of2016 and the 0.6% reduction in the relevantweighting factor applicable to salaries ofstaff posted in Greece, there is increasingpressure on Title 1.

(91) Most of Title 1 costs are inelastic, as theyare derived directly from EU staff rightsunder the EU staff regulations. Themagnitude of the retroactive salaryadjustment (3.3%) could not have beenanticipated and was thus not forecast in theoriginal estimates for 2017-20. Theprogramming document for 2018-20 willneed to address the possible impact of thesalary adjustments rate for 2018 andbeyond to ensure that total appropriationsfor the years 2018-20 enable Cedefop todeliver on its mission, core activities,priorities and work programmes, and thatthey are sufficient to cover staff costs andensure the smooth running of the Agency.

(92) Title 2 appropriations will decrease in 2017and 2018 (on aggregate by 10.6%,compared to 2016) and remain stable at2018 levels, in nominal terms, in 2019 and2020. They will just cover building basicrunning costs and maintenance needs.Projects such as energy management,


Title 1. Staff expenditure

Title 2. Infrastructure andoperating expenditure

Title 3. Operationalexpenditure

TOTAL

Draft Budget2017

10 603 500

1 512 440

5 753 449

17 869 389

VAR 2018 / 2017

2.81%

-3.24%

-4.32%

0.00%

Envisagedin 2018

10 901 000

1 463 440

5 504 949

17 869 389

VAR 2019 / 2018

3.25%

0.00%

0.05%

2.00%

Envisagedin 2019

11 255 755

1 463 440

5 507 910

18 227 105

VAR 2020 / 2019

3.16%

0.00%

0.16%

2.00%

Envisagedin 2020

11 611 000

1 463 440

5 516 527

18 590 967

(34) The budget allocation by Title includes the contributionsfrom Norway and Iceland as well as own revenues, becausethey are an integral part of the Agency’s budget. Thedistinction of EU contribution allocation by Title, used in theJanuary 2016 version of the PD, is not necessary as it fitsthe purpose of presenting the budget of partially fee-financed agencies.

Table 1. Budget evolution 2017-20 by Title (34)

energy savings, green initiatives and ICTInfrastructure upgrades may only be takenforward on a case-by-case basis subject tobudgetary availability.

(93) Title 3 appropriations are expected todecrease from 2017 to 2018 by 4.32% andto remain stable in nominal terms in 2019and 2020. This is the result of the increasingpressure of staff costs, which cannot beabsorbed by the 2% increase of overallappropriations provided in the MFF for2018-20.

2.4.2.2. Human resources(94) In line with the further 5% staff cut for the

redeployment pool, Cedefop’s establish-ment plan 2016 foresees 94 posts, 92 for2017 and 91 for 2018. Successive reduc-tions in the weighting factor (35) had, until2016, in theory, provided budgetary flexibil-ity in particular for Title 3 expenditure.However, in a knowledge-based organisa-tion such as Cedefop, the accompanyingdecrease in human capital available to workon core business activities cancels out thispotential operational gain. To compoundmatters, the rapid and significant reductionin the weighting factor has a tangible impacton the Agency’s ability to attract geograph-ically diverse staff and has also negativelyaffected staff morale.

The unexpectedly high 2016 retrospec-tive salary adjustment has not onlycancelled out any residual budgetary flexi-bility; it has created a projected 2017shortfall in Title 1 which can only be cov-ered through cuts across Titles, resulting in,

for example, reduced professional develop-ment opportunities for staff, minimalresources for the greening agenda,reduced social measures and limited fur-ther ICT developments.

The budgetary impact of the 2016salary adjustment, carried forward into2017 and beyond (and possibly com-pounded by comparably high adjustmentsin the coming years) makes the cap on Title1 expenditure unsustainable (see 4.2.1).

(95) Sustained efficiency drives (see paragraphs114 to 118), redeployments and a compre-hensive restructuring of operationaldepart ments in 2015 (see paragraphs 120and 121) have been employed to addressnew and growing tasks within ever increas-ing resource constraints. These instrumentscan only yield residual further gains whichwill, in any case, not directly translate intocore business capability.

To ensure the Agency’s responsive-ness to evolving priorities and new tasks,the increasingly acute staff shortfall willneed to be addressed through clear nega-tive priorities or additional staff.

Resource outlook for 2017-20(96) While Cedefop’s mission is defined to cover

all of the Agency’s future activities, the latestexternal evaluation (2013) suggested thatthe mission should be revised to account forthe important changes in the Agency’s worksince its foundation in 1975. This seems allthe more appropriate as Cedefop’sclassification as an agency at cruisingspeed does not reflect the many new tasksit has taken on in the recent past and willhave to cover in the future. This changeshould also reflect the high political priority


(35) From 94.8% in 2010 to 79.3% in 2016.

of work at the interface between vocationaleducation and training and the labourmarket.

(97) Budgetary constraints in terms of financialand human resources need to bereconsidered, as there is an increasingrisk that Cedefop will not be able to fulfilthe various mandates and requestsunder the present circumstances.

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