a strategy for the development of adult learning in kosovo for the

8/8/2019 A Strategy for the Development of Adult Learning in Kosovo for the ...

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Table of Contents Page

PART 1

Introduction1. A strategy for adult learning

2. Closer integration with the region of South East Europe and theEuropean Union

3. Stakeholder dialogue4. Justification for adult learning

4.1. Kosovo at a cross-road4.2. Need for and scope of adult learning

5. Analysis of cause and effect of adult learning problems

5.1. Problem 1: Major skills deficits and skills mismatches5.1.1. Low investment in workforce development by enterprises

5.1.2. Difficulties sustaining management training and developing

skills of small firms5.1.3. Legacy of the past- no value placed on learning by society

5.1.4. Large numbers of unskilled job-seekers

5.1.5. Poor motivation and few incentives for learning5.1.6. Inadequate learning infrastructure

5.1.7. Difficulties in the learning process5.1.8. Lack of commitment by the State to adult learning

5.1.9. Donor support and longer-term sustainability of adult learning5.2. Problem 2 - Uncoordinated approach across relevant ministries5.2.1. Shared responsibilities

5.2.2. Different policy agendas5.2.3. Gaps - developing non-formal, ICT and internet learning

5.2.4. Compartmentalisation, un-coordinated approaches and poor data

5.3. Problem 3 -Lack of systemic approach in developing adult learning5.3.1. Isolation from international debate and experience on lifelong learning

5.3.2. Key components of the system are missing

5.4.Problem 4 -Poor data, information and research base for adult learning

5.5. Problem 5-Inadequate level of financial resources and difficulties inraising additional finance

5.6. Problem 6- Low value placed on adult learning

5.7. Problem 7- Lack of sustainable partnerships in design and implementation


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of adult learning

PART 11

1. Strategic Objectives

1.1. Main principles

1.2. Balancing economic and social priorities in activities and finance1.3. Monitoring progress and evaluating impact

2. Strategic vision and mission3. The Strategic Objectives

3.1. Key problems to be addressed

3.2. The strategic objectives4. The Measures

4.1. Strategic Objective 1 - the increased ability of adults to survive in

the market economy through the application of knowledge andincreased competences

Measure 1: Programmes to increase basic skills

Measure 2: Programmes to upgrade skills

4.2. Strategic Objective 2 - The adoption of a unified policy approach ofgovernment to the integrated development of adult learning

Measure 2.1- Development of a common policy on adult learning

Measure 2.2 - Creation of a policy implementation frameworkMeasure 2.3 - Measures for capacity building in the field of adult learning

5.3. Strategic Objective 3 - A systemic approach adopted for the developmentof adult learning

Measure 3.1 - Development and implementation of an information,counselling and career guidance system

Measure 3.2 -Development of an occupational classification system

Measure 3.3 -Developmentand implementation of an integrated nationalqualification system, modular course provision and a system to recognise

and validate competences acquired by adults through non-formal and informal

learningMeasure 3.4 - Development of flexible formal and non- formal adult learning

opportunities with delivery and methodology appropriate to adults where

supply and demand are balanced and equal opportunities respectedMeasure 3.5. Developmentand implementation of a quality assurance system

5.4. Strategic Objective 4 - The creation of a sustainable data, informationand research base on adult learning

Measure 4 - Creation of a sustainable system for data gathering and analysis oflabour market skill trends, training demand and needs

5.5. Strategic Objective 5 - Raising the value of learning and promoting a


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learning culture in KosovoMeasure 5- Organisation of promotional activities to raise awareness of

the value of adult learning

5.6. Strategic Objective 6- the creation of sustainable partnerships in adult learningMeasure 6.1 - Capacity building of stakeholdersMeasure 6.2 -Development of on-going dialogue between stakeholders on

a common approach to adult learning and joint activities

6. Pre-condition and Assumptions7. Roles and responsibilities

8. Financial Resources9. Links with other parts of the system in the perspective of lifelong learning10. Sustainability -Partnerships and maintaining momentum

11. Disseminating Results

Annexes

Annex 1: List of Participants - Workshop 1, Workshop 2 and Strategy Building Workshop

Annex 2:Technical proposal -to be completedAnnex 3: European Quality Indicators of Lifelong learning

A STRATEGY FOR THE DEVELOPMENT OF ADULT LEARNING IN KOSOVO

FOR THE MEDIUM-TERM FROM 2005 -2015

PART 1

Introduction

1. A strategy for adult learning

1.1. This document outlines an initial adult learning strategy for Kosovo for the period 2005 to

2015. It provides a justification for the focus on adult learning which is a critically importantfor the development of relevant knowledge and competences for sustaining economic growth,the development and competitiveness of Kosovo enterprises in the market economy and for

employability of job-seekers, and in particular specific population segments that aredisproportionately affected by long-term unemployment and social exclusion. In so doing, the


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strategy aims also to contribute to greater social inclusion and poverty alleviation.

1.2. Although human resources is recognised as being important by the Kosovo authorities,

adult learning has not yet become a policy priority of the government and there is no strategyfor its development. This document argues the case for substantial policy intervention in adultlearning in response to the developing market economy, the privatisation process and the rapidincrease in new start-up enterprises. Given the worst employment situation, the largest

proportion of young people relative to the size of the population flowing into the labour marketeach year and the highest level of income poverty in South Eastern Europe, employment

intensive growth is critically important for Kosovos survival and prosperity in the twenty- firstcentury. The quality of Kosovos human resources will be a determining factor in Kosovosability to share in the benefits of the global knowledge economy and technology age which is

based on the exploitation of ideas and technology, rather than on the availability of naturalresources or low wages. A decade of repression followed by war, economic collapse, social

dysfunction and large scale migration has had a devastating impact on the level and quality ofthe skills of the Kosovo people and on the supply and quality of adult learning provision.

1.3. This document aims to fill an important gap in strategic planning for human resourcesdevelopment. It analyses the problems, outlining a series of strategic objectives, identifying

principles and support measures for substantially improving the capacity of Kosovos citizensto adapt to the market economy, to remain employable in the new labour market and to build amore cohesive society. It identifies key areas for the development of a high quality adult

learning system over the next decade. In so doing, it aims to contribute to economic and socialregeneration and progress and the strengthening of democracy. It also provides initial

suggestions for increasing financial resources from the European Unions CARDS programme,

through co- finance mechanisms and fiscal incentives for the development of adult learning.

2. Closer integration with the region of South East Europe and the European Union

2.1. Although Kosovos political status is unresolved and Kosovo remains under theinternational authority of UNMIK, administrative responsibilities are being handed over to thenational authorities and Kosovos provisional institutions are taking on greater responsibility

for economic and social reforms including education and training and their implementation.The development of adult learning is set within the wider perspective of the Stabilisation and

Association process and the fullest possible integration of the Western Balkans into thepolitical and economic mainstream of Europe and closer integration of Kosovo within the

region. In this context, a parallel development on adult learning is also being made in otherareas of the Western Balkans.

2.2. The strategy is anchored in the frame of reference of the European Social Fund, the maininstrument for implementing the European Unions Employment Strategy which promotes the


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creation of more and better jobs across the Community, an important policy objective given thelevel of unemployment in the European Union where 13.5 million people were unemployed in

2002 and 18.5 million if one also included the unemployed in the new Member States. The

European Social Fund gives priority to four pillars: employability (to enable adults and youngjob-seekers to acquire competences and knowledge needed in the labour market), adaptability(to enable businesses and their employees to upgrade and acquire new skills to meet thechanging demands of the economy and to new ways of working), entrepreneurship (to support

the development of small, micro businesses) and equal opportunities (to promote more equalaccess to jobs and training for women and to reduce gender segmentation between men and

women in the labour market). These four employment pillars are equally relevant to theeconomic and employment challenges that Kosovo faces to-day. The growth and survival ofKosovos growing stock of small businesses is critically important for economic prosperity. In

this connection, the European Unions Charter for Small Enterprises, which is being adoptedby Kosovo under the auspices of the Ministry of Trade and Industry, provides a useful

development framework.

2.3. At the European Unions Lisbon Council meeting (March 2000), EU Heads of State

agreed a new strategic goal to make the European Union the most competitive dynamic,knowledge-based economy in the world, capable of sustainable economic growth with more

and better jobs and greater social cohesion. Although the impact of the global knowledgeeconomy and technology developments are only gradually being felt in Kosovo, over the nextdecade this will change as Kosovo competes in the open market. Substantial investment in

Kosovos human capital through both improvements in initial education and training and in theeffective development of adult learning will be essential. Transforming adult learning, although

a complex and costly process, is an urgent matter. The approach adopted in this strategy

reflects the European Unions policy framework for developing comprehensive lifelonglearning strategies to reform education and training systems set out in the European

Commissions Communication, Making a European Area of Lifelong Learning a Reality(2001). This policy framework is structured around six building blocks: a partnership

approach, understanding the needs of the learner, adequate resourcing, facilitating access,creating a culture of learning and striving for excellence.

3. Stakeholder dialogue

3.1. The approach to adult learning that is adopted in this document is based on dialogue withthe main Kosovo stakeholders (the Ministries of Education, Sport and Technology, Labour and

Social Welfare and Trade and Industry, KTA on privatisation, the social partners through theChamber of Commerce (OEK) and the Federation of Trades Unions and civil societyrepresented by the Kosovo Education Council (KEC) which took place during two workshops

and one strategy planning meeting between October 2002 and December 2003. In addition, thestrategy has been informed by the stock-taking report produced by KEC commissioned by the


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European Training Foundation. Working in partnership is fundamental to the successfulimplementation of the strategy in Kosovo.

3.2. By ensuring the strategy is firmly rooted in the needs, aspirations and wishes of theKosovo people, whilst also aligning these with the integrated economic, employment andsocial policies of the European Union, the adult learning strategy proposed strives to meet thedual aims of promoting the economic and social development of Kosovo within the wider

perspective of future integration with the European Union.

4. Justification for adult learning

4.1. Kosovo at a cross-road

After adecade of economic and social oppression and war, at the beginning of the twenty- first

century the Kosovo authorities face major economic and social challenges as it strives torestructure and build a competitive market driven economy and a democratic society. Facedwith the imminent closure or privatisation of public or socially-owned companies that will

exacerbate already chronic unemployment levels, safeguarding as many jobs as possible,creating jobs and developing human resources will be critically important. The challenges are

daunting. With a low employment rate (under 50 %1), a substantial grey economy and a highunemployment rate (57%), employment intensive growth is essential if Kosovo is to provideemployment in the future for the majority of its citizens. With more than half of the population

living in poverty and 12% of them living in extreme poverty2, getting Kosovo back to work isvital, but major skills deficits in the adult population and young people entering the labour

market and skill mismatches will put at risk wider efforts to grow the market economy and

build a more cohesive society in the absence of a policy to develop Kosovos human resources.

4.2. Need for and scope of adult learning

4.2.1. Kosovos main policy thrust in education and training is to tackle reforms of the initialeducation and training system. Whilst these reforms are of major importance, their impact willnot begin to impact on higher workforce skills for a long time. In transitional economies adult

learning is important for moving from a situation of economic recovery to economic growth inthe short and medium term. Urgent action is needed to tackle the poor level and quality of

skills of people in the labour market. This includes learning that takes place in formalinstitutions and leads to a qualification, non-formal structured learning that takes place in work

that does not usually lead to a qualification and also informal or random learning that takes

1 Data is incomplete. Official statistics show that 270,000 people are employed but the figures exclude those

working in agriculture. More optimistic survey date from the Riinvest Institute for Development Research show

430,000 economically active workers, but workers in the grey economy are included.2 World Bank, Household Archives, Poverty Assessment Summaries: Kosovo, 2001.


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place in work, at home or in the community.

4.2.2. Adult learning includes continuing vocational education and training, second chance or

basic skills learning as well as liberal adult education. The strategy outlined in this documentdoes not focus on the latter because the main emphasis of the strategy is on employability andthe demand for new knowledge and competences in the market economy. Basic skills areincluded because functional illiteracy is a barrier to employment and basic foundation skills

underpin technical competences and traditional basic skills of literacy and numeracy at higherlevels are needed in the global knowledge economy together with a wide range of other generic

basic skills including, for example, communication and process skills related particularly toinformation communication technology skills and networking skills, problem solving skills,entrepreneurship and the ability to apply skills in the work place as well as the competence of

individuals to take responsibility for their own learning. Adult learning also fosters innovationand creativity, important qualities for business success, and, in parallel, active citizenship.

4.2.3. The universities, despite their potential as providers of adult learning a higher educationlevels, are not a main focus of this strategy for several reasons. They do not yet offer advanced

vocational/technical provision, they concentrate primarily on academic learning and full-timecourses rather than on workplace competences and their ethos tends to be characterised by a

stay away from business mentality.3 The development of universities and tertiary levelprovision generally requires a separate strategy, action plan and financial envelope. It wouldinvolve other development areas such as technology transfer and the commercial exploitation

of innovation. The main focus of this strategy is to build the skill base of Kosovo s workforceand enable more equitable access to learning by adults.

5. Analysis of cause and effect of adult learning problems

5.1. Problem 1: Major skills deficits and skills mismatches

5.1.1. Low investment in workforce development by enterprises

Kosovos difficult economic situation constrains investment in workforce development: large

employers are faced with privatisation or closure and new small and medium-sized enterprisesare focused on the immediate problems of business survival. Workforce development is not

perceived by employers as a business investment but as a cost and the development of newskills, the adaptation of the workforce to a the more competitive environment, the need for

higher level basic skills and technology skills are not perceived as being the responsibility ofenterprises but the responsibility of individuals, the education and training system or thegovernment. Enterprises are reluctant or unable to invest in workforce development because

3 KEC,Adult learning in Kosova - stocktaking report, 2003.


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they lack the capacity or the financial means to do so. In addition, in-company trainingfacilities of socially-owned companies have collapsed the slow development of private training

providers and low capacity means that supply is insufficient and the quality is variable. Donor

investment in management training has been the main driver of raising participation inlearning, and they have provided considerable financial and technical support that is beginningto bear fruit in areas such as modern management methods. However, opportunities for allworkers including older workers and workers with poor educational attainment levels to have

access to training are severely limited by finance and in-company capacity.

5.1.2. Difficulties sustaining management training and developing skills of small firms

The managerial, technical and innovative capabilities of small businesses are weak and

sustained support is needed. A recent MTI questionnaire revealed that the use of on- lineservices is low, despite an upward trend, partly because the services are in their infancy,

internet connections are poor and costs are high, but also because many small businesses find itdifficult to use electronic business techniques and adapt to new technology. Also, thedevelopment of e-commerce is low. Relying on donor support is not a long-term solution for

financing and developing management and skills training for small businesses. Kosovo needsto develop its own expertise, but current capacity in Kosovo to provide high quality business

training, to carry out skills needs analyses and to supply customised training programmes forindividual companies is not well-developed. There are also no incentives for small businessessuch as training vouchers, training grants or subsidies or tax concessions to encourage

investment in workforce skills.

5.1.3. Legacy of the past- no value placed on learning by society

The period of repression in the 1990s not only had an adverse impact on the supply of learning,

and its distribution across Kosovo, the value placed on learning by society declined, nolearning culture developed, people became deskilled and many disadvantaged people were leftwith unsatisfactory levels of foundation skills on which to build new workplace competences.The collapse of the former system meant that there was no innovation and development andstructured links between vocational training institutions and the business community were not

established.

5.1.4. Large numbers of unskilled job-seekers

Kosovo already suffers chronic unemployment and the situation is expected to deterioratefurther as privatisation bites, enterprises close and others down-size. Major skills deficitscompound the problem of unemployment. Of the 257,505 jobseekers registered in the Kosovo

Office of Employment network in 2002, more than half (56.6%) were unskilled. MLSWunemployment statistics, broken down by skills and educational attainment levels, show that


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employment is much more difficult for unskilled men than for men who are skilled or semi -skilled and/or have ?? completed high school or university. The unemployment statistics for

women, who make up 44.5% of job-seekers, show that they have difficulty in obtaining

employment irrespective of whether they are unskilled or semi-skilled and their educationalattainment level appears to have little impact on their chances of employment. The statisticspoint to the difficulties in obtaining employment generally and to gender imbalances in thelabour market, with semi-skilled and skilled women finding it more difficult to access jobs than

their male counterparts.

5.1.5. Poor motivation and few incentives for learning

Motivating adults to learn is problematic given that there are too few incentives. With few job

opportunities and limited scope for career progression the return on learning is also low andthere are also few incentives to learn. With very limited or zero public or employer financial

support for continuing learning and low wages, many adults, who struggle to support theirfamilies, simply cannot afford to pay. Moreover, many lack the time to do so because theyhave to work long hours, despite labour laws. Among young people, there is a high incidence

of drop out from lower secondary school and high numbers leave school before they havecompleted upper secondary level schooling. With less than a third of 15-19 year-olds

participating in education and training in Kosovo, the lowest level in the Western Balkans, andonly about 17.3% of these ?? (or 17.3% of the 19/20 cohort?) going on to tertiary level studies,large numbers of unskilled young people with low educational attainment levels join the

growing numbers of adult job-seekers every year with little prospect of finding employment.Given the relatively young population of Kosovo, this is a major problem which is further

exacerbated by the demand for a different set of skills and knowledge in the market economy

and the increased demand for higher level basic skills and new technical knowledge. Theseyoung people are also ill-equipped to take responsibility for their own learning or to want to

invest in learning throughout life. The difficult economic and employment situation has alsoled to a continuing brain drain as many qualified young people, despite immigration

difficulties, seek employment opportunities outside Kosovo. These factors translate into a lowdemand for learning in the population.

5.1.6. Inadequate learning infrastructure

The learning infrastructure in Kosovo is also under-developed, its capacity to offer adultlearning is low and the quality is variable. The former adult education provision, for which

adults usually paid, collapsed during the 1990s as a consequence of the repression, economicdecline, rising unemployment and large-scale emigration. Formal adult learning, for whichMEST and MLSW are responsible, is provided by public institutions including the network of

eight new regional training centres and public and private higher education institutions. Withfew exceptions, higher education offers mainly academic courses. Some non-statutory


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provision has been developed by local NGOs and private training providers. In respect of non -formal learning, MEST took over responsibility from UNICEF for a large-scale basic literacy

and numeracy project run by NGOs in 130 centres that aims to provide training for 2,500 for

women and girls by the end of 2004. The eight new regional training centres also work withnon-statutory providers and in 2002 they jointly provided vocational training for 1658unemployed adults in a wide range of occupations. The insufficient supply of institutionsoffering adult learning at the central and local levels has existed for many years and constitutes

a major barrier to increasing participation in learning by job-seekers. Quality is variable andconstrained also by insufficient numbers of teachers and trainers, many of whom are de-

motivated, they earn low wages and there has been a large exodus from teaching. In addition,there is poor co-ordination of training activities.

5.1.7. Difficulties in the learning process

The Kosovo stakeholders identified two main difficulties -an acute shortage of finance andinadequate investment in initial and in-service training of managers, teachers and trainers.

5.1.8. Lack of commitment by the State to adult learning

The Stakeholders felt that the limited offer of public adult learning opportunities and slowdevelopment of the private training market stem from a lack of commitment by the governmentto the development of adult learning, which appears to be marginalized compared with initial

education and training given the small allocations from state budgets and dependence on donorfunding for continuing vocational training and non-formal adult learning. This lack of

commitment results in the absence of an integrated policy framework, legislation and strategy

for the development of adult learning. Reforms to modernise public initial education andtraining are slow to implement and inflexibilities in the system hinder innovation and

development. The lack of commitment by the state to the development of adult learningconstitutes a major problem.

5.1.9. Donor support and longer-term sustainability of adult learning

International donors have been the drivers of adult learning developments in Kosovo and theyhave helped establish a better understanding of its importance in underpinning economic

competitiveness, employment growth andsocial inclusion. Major donor initiatives for smalland medium-sized enterprises, continuing vocational education and training and initial

vocational education and training are being taken forward by the key ministries (MTI, MLSWand MEST). They are important developments but their longer-term sustainability remainsproblematic. In addition, they are not enough to cure major skills deficits, nor will they be

sufficient to solve the mismatch between the supply and demand for skills in the labour market.


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Impact of low investment and value given to adult learning and inadequate infrastructure

on skills and participation in training

56.6% of unemployed unskilled with low educational attainment level

small volume of labour market training skills not relevant to market economy and poor basic foundation skills

low quality of teaching

lack of skilled human resources able to contribute to solving economic and socialproblems and skill mismatches

employers see training as a cost not an investment

low demand for adult learning

5.2. Problem 2 - Uncoordinated approach across relevant ministries

5.2.1. Shared responsibilities

One of the difficulties that hinders a more pro-active approach to the development of adult

learning is that responsibilities are shared across more than one ministry and sometimes theseresponsibilities are not clearly defined. The main ministries responsibilities for adult learning

are MEST and MLSW, although MTI and KTA also have an interest in some aspects. MEST score responsibilities are the development of the initial education and training system, but it hasa role in non- formal adult learning (see for example the UNICEF basic skills project for

women and girls). Although MESTs five-year strategy indicates that the education andtraining system willbe developed on the basis of lifelong learning principles, only a passing

reference is made to the development of non- formal learning in the provision of second chanceopportunities for young people who drop out to return to mainstream education and training

(see for example the project for young Roma and Ashkalia). MLSW is responsible forcontinuing vocational training for job-seekers and very disadvantaged people and also forworkers at risk of being made redundant. Linkages between basic skills provision for adults as

a pathway into continuing vocational education and training have not been explored.


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5.2.2. Different policy agendas

The Ministry of Trade and Industry has an important remit for business training and small

firmsdevelopment as it supports training for the business community at national and regionallevels and is the lead authority for implementing in Kosovo the European Charter for SmallEnterprises, which outlines a policy framework of ten development areas for small businesses,including education and training for entrepreneurship, training for managers in small

enterprises, development of quality and certification systems for them and ensuring anadequate supply of skills adapted to their needs. Yet, the main focus of the MTI is on economic

growth and business development. The Kosova Trust Agency (KTA), which is accountable toUNMIK, is responsible for the privatisation process that will affect 130,000 people. This hassubstantial implications for training, but this falls outside the remit of KTA. Different agendas

of the two main ministries and different priorities of MTI and KTA mean that there is no co -ordinated, consistent and comprehensive approach to adult learning and no priority given to its

development. In respect of the key ministries, MEST and MLSW, their focus is primarily onthe development of formal learning.

5.2.3. Gaps - developing non-formal, ICT and internet learning

The development of non- formal learning in enterprises or in the community does not appear tobe a policy priority for the two main ministries. It is not clear where responsibility lies forstimulating the development of non- formal learning, particularly in companies and in the

community, or for expanding flexible and open and distance learning, both formal and non-formal. The exploitation of information communication technologies and the expansion of

internet learning have an important role to play in opening up learning for adults and offering

them the opportunity to learn at a pace, place and level that fits their needs. This is animportant area of development for the future.

5.2.4. Compartmentalisation, un-coordinated approaches and poor data

Lifelong learning, in particular adult learning, crosses ministerial boundaries, private andpublic divides andemployment and unemployment divides. Ministry officials need to move

outside specific ministerial compartments and/or mindset if effective adult learning systems areto be developed. This is difficult in the absence of plans for economic and social development

with an integral human resource development component. Currently, individual ministries areresponsible for only a part of a more comprehensive human resources agenda and the social

and professional responsibility for adult learning are under-developed and the lines of authorityand individual responsibilities are unclear. This impact on the development of an integratedand comprehensive adult learning policy, results in less optimal co-operation and co-ordination

at different levels and between adult learning institutions on the ground and development gaps.The development of integrated adult learning policies is also hampered by the poor data and


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the lack of information on, for example, skill trends, analysis of learner needs, especially ofdisadvantaged segments of the population, and of appropriate learning methodologies for

adults. This contributes to fragmented policies which impact on institutions, on standards for

adult learning not being defined and result in poor coverage.

Problems of an uncoordinated approach

no integrated, comprehensive policy for adult learning

fragmented policies, gaps and compartmentalised approaches

open and distance learning for adults and ICT and internet-based learning

undeveloped?

no economic and social development plan with integral human resources component

professional responsibilities for adult learning underdeveloped and/or unclear

impact on whole system

paucity of data, information and analysis to provide strategic steer

lack of clarity on priorities

5.3. Problem 3 -Lack of systemic approach in developing adult learning

5.3.1. Isolation from international debate and experience on lifelong learning

Kosovo was not able until quite recently to follow international debate on lifelong learning andhas not had sufficient exposure to the positive experience of other countries. This lack ofexposure and the paucity of information and analysis of adult learner demand have contributed

to low awareness of the importance of adult learning in enterprises, who hesitate to invest inworkforce learning, and in the population generally and in government.

5.3.2. Key components of the system are missing

Basic mechanisms and components of an adult learning system are missing. The classificationof occupations has yet to be developed, along with an integrated system for vocational

qualifications, which is planned. The latter not only impacts on certification of formal learning,but it also means that there is no mechanism to accredit prior and experiential learningacquired, for example, at work, and modular courses have not yet been developed so that

adults can reduce the time needed to acquire new competences and new qualifications.Although the development of the vocational qualification framework is the first phase, it needs

to be designed in such a way that it can be adapted in the future to recognising and validatingprior learning and experience. Similarly, a vocational counselling and guidance system for allhas to be developed, although this will be hampered by insufficient information on vocational

training opportunities. There is an urgent need to improve quality of learning, but quality


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assurance mechanisms, standards and indicators consistent with international standards have tobe developed and the system implemented. There are no policies for training VET teachers and

trainers, although there are discussions with the Faculty of Education on this matter. The

distribution of adult learning is uneven and insufficient and learning opportunities are notgeared sufficiently to labour market demand. They tend to be supply-driven rather thandemand driven. In general, equal opportunities principles are not respected. The potential ofinformation communication technologies and internet-based learning for expanding flexible

open and distance formal and non-formal adult learning has not been tapped.

Systemic issues

low awareness among partners of importance of adult learning

no classification of occupations

no integrated system of vocational qualifications

no system to recognise and validate prior learning and experience

no vocational information, guidance and counselling system available to all

no quality assurance system consistent with international standards

no policy on in-service training of vocational education and training teachers/trainers

uneven and unequal distribution of learning

equal opportunities not respected

supply-driven learning opportunities

no development of open learning, ICT and internet-based learning for adults

5.4.Problem 4 -Poor data, information and research base for adult learning

One of the difficulties in Kosovo is the lack of a national data collection system because there

is no central institution to collect relevant data. This means that basic information on, forexample, education attainment and skills levels of employees, workers in the grey economy orunregistered unemployed is lacking and there is no tracking system of school drop-outs or

numbers of those who participate in non- formal adult learning and little information on whobenefits from adult learning, on outcomes or on who pays. There is also no catalogue of non-

formal learning opportunities and no research base into inter alia labour market trends, demandfor learning, learner needs and characteristics or on motivating adults to learn.


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Issues

No national data collection system, central institution for collecting adult learning dataor research base, limited information on learning opportunities

basic information missing no knowledge of potential learners

young people who drop out not offered alternative progression routes

no sustainable system of analysis of skill trends, labour market change and skill needsof employees or workers in the grey economy and no capacity to forecast skill trends

no management information system to inform strategic development of adult learning

no research base

5.5. Problem 5 - Inadequate level of financial resources and difficulties in raising additionalfinance

The root cause of insufficient funds in Kosovo lies in the collapse of industry and the economic

crisis. However, the severe shortage of finance for the development of adult learning is a majorconstraint and over-dependence on donor funding puts at risk longer-term sustainability ofdevelopments sponsored by donors. Kosovo stakeholders expressed concern that the

concentration of funding on initial education and training and small state budgets allocated toadult learning did not constitute the most optimal use of public funds. This would suggest that

public funding for learning in Kosovo is not considered from the perspective of the lifelonglearning continuum and that, although difficult, no consideration of redistributing publicfunding, for example, to disadvantaged adults with low educational levels or who lack basic

foundation skills, has taken place.

Kosovo stakeholders identified a number of difficulties in raising adequate levels of finance foradult learning. They point to the lack of co-operation of institutions in establishing an adultlearning fund, lack of a legal framework for financial contributions from employers or

individuals and the lack of funding for adult learning from employers and individuals. Theyhighlight the insufficient budget line for continuing vocational education and training, and thatadult learning has not been properly prioritised in the budget planning process. The lack of co-

financing mechanisms has meant that the disbursement of public funds for adult learning hasalso not been optimised. From the perspective of enterprises, despite the low value placed on

investment in their human capital, the difficult economic environment in which they operatealso restricts their capacity to pay.

5.6. Problem 6- Low value placed on adult learning

A combination of several factors (e.g. poor returns on learning, lack of systemic developments,


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un-coordinated approaches and inadequate levels of finance) have contributed to a low valueplaced on adult learning. At the same time, there has been a slow transformation of society

which has contributed to a lack of awareness of the importance of adult learning, scepticism

even that learning leads to tangible returns, and hindered the development of a learning culture.Some of the adverse consequences of this situation are shown in the box below.

Impact of low value placed on adult learning

no national human resources plan and no high profile given to adult learning

enterprises view adult learning as cost, not as an investment

poor returns on investment in learning are disincentives

poor motivation to learn

unequal access to learning for many disadvantaged population groups

development of a democratic society slowed down

5.7. Problem 7- Lack of sustainable partnerships in design and implementation of adult

learning

5.7.1. Another problem in developing adult learning is that it involves partnership working, not

only among ministries, but also with a wide range of partners at different levels includingnational, regional or local and also international. Partnerships for specific purposes will involve

different groupings of actors from ministries, regional and local authorities, the social partners,NGOs and providers of services including training, counselling and guidance and research. InKosovo a partnership culture is not well-developed and sustaining partnerships once they are

established can be problematic. The Stakeholders mentioned fear of financial commitment, fearof time commitment and fear of human commitment as factors that hindered sustainablepartnerships. In addition, formal (and informal) structures have to be established and the

different priorities or agendas reconciled. Sometimes, there are difficulties because of thepositions of partners or their level of responsibility. Lack of co-operation in strategic planning

stemmed from unclear responsibilities for developing adult learning at ministerial level. Lackof experience in building and sustaining partnerships at all levels and by all partners is also afactor.

5.7.2. Although protocols for co-operation have been signed by ministries, in practice this does

not always result in joint measures, integrated policies or agreements being implemented. A

number of partnership activities have been set up, including, for example, the consultativeTripartite Advisory Council (TAC) on social dialogue that involves equal representation of

employers (OEK), employees (BSPK) and the Provisional Self-Government Institutions(represented by MLSW), direct co-operation is foreseen on skills monitoring between the

employment observatory (MLSW) and SME observatory (MTI) and the development of an


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assessment and certification framework for competences acquired in formal statutoryorganisations will be taken forward through the work of the Interim National Skills Board,

whose membership involves representatives from MLSW, MEST and MTI as well as the social

partners. These need to be supported and strengthened. Co-operation betweenministries andpartners is also facilitated through donor projects. In the field of adult learning, there are nosustainable partnerships that engage all the relevant actors in a wider dialogue on policydevelopments at the national level and on implementing adult learning developments at the

regional and/or local level, including partnerships between public and private trainingproviders, between training providers, local authorities, officials responsible for local economic

development and NGOs. For partners to play a full part in adult learning developments, theremust be tangible returns for them from partnership working.

Impact

agreements between partners not implemented

dialogue between stakeholders on a common approach to adult learning not initiated comprehensive adult learning development not initiated because sustainable structures

have not been established for the co-operation between the state, social partners,

NGOs and other relevant actors

insufficient communication between adult learning providers, and with researchers

The problems outlined above are inter-dependent and a range of integrated responses will beneeded in order to reverse them and to build a high quality learning system for adults that

reflects good practice in lifelong learning. The strategy below sets out a range of strategicobjectives and measures that together will assist Kosovo in designing and implementing actionto build an effective adult learning system over the next decade that will improve workforce

skills and reduce mismatches in the supply and demand for skills. At the same time, it aims toincrease employability of job-seekers and contribute to poverty alleviation. The symbiotic

relationship between human resources development, economic growth, job creation and socialprogress means that adult learning supports economic and social development and economicand social progress leads to more incentives, higher returns on investment in learning and

higher motivation of adults and higher participation in learning. The strategy seeks tocontribute to the creation of the virtuous learning cycle.

PART 11

1. Strategic Objectives

1.1. Main principles


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A number of principles underpin the strategic objectives outlined below. Adult learning as an

essential part of human resources development supports:

the economic process of revitalising and restructuring the economy and in particular thedevelopment small and medium-sized enterprises;

employment intensive growth, local economic development, and self-employment and thereduction of reliance on the informal economy;

equality of opportunities, greater social inclusion and poverty alleviation; democratic development, a reduction in societal divisions and greater social cohesion; and by extension quality of life improvements, health and social progress.1.2. Balancing economic and social priorities in activities and finance

The strategic objectives, priorities and measures below seek to achieve a balance between:

developing the knowledge and competences of people already employed includingmanagers of small enterprises to assist in their adaptation to the market economy and togrowing small businesses;

job-seekers and people working in the informal economy; specific target disadvantaged groups to enhance their employability and to achieve a more

equitable balance in access to learning;

continuing vocational education and training and basic skills provision; increasing the overall participation of adults in learning and more equal access to it and increasing the supply of learning opportunities and improving the quality of learning.In terms of finance, the proposals seek to balance two principles -efficiency (e.g. increasing

participation in and distribution of learning and increasing outcomes) and equity (i.e. throughensuring that participation in and the distribution of learning are more equal). Although

Kosovo will continue to rely on financial and technical support from international donors forsome time, particularly the European Union, it is also important that financial planningaddresses longer-term self-sustainability through sharing costs between public funds and the

enterprises and individuals who benefit from learning through the development of co- financemechanisms.

1.3. Monitoring progress and evaluating impact

In addition, the strategy emphasises the need to develop a monitoring and evaluationframework to monitor progress and evaluate impact as well as to review whether the focus of

the strategy and the action plans are meeting the objectives, milestones and targets identified orwhether they have to be adapted in the light of changing circumstances. The monitoring and


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evaluation frameworks are intended to be strategic tools for developing adult learning. The useof reliable baselines and realistic targets and milestones will be necessary.

2. Strategic vision and mission

Adult learning is a panacea for solving complex economic and social problems, but, it plays animportant part, alongside wider economic and social reform measures, to reverse the cycle of

economic decline, chronic unemployment and increasing social inequalities. Access to trainingand jobs has to become much more equal and benefit all citizens, not just certain segments.

The strategic vision, mission statement and strategic objectives given below reflect theprinciples and balances outlined above for the development of an adult learning infrastructureresponsive to individual learners needs and those of the market economy so that people are

able to survive in the new labour market, contribute to its development and success and toshare in the benefits that accrue from greater economic prosperity.

At the strategy planning meeting in December 2003, participants agreed the following vision:

To build a democratic society able to sustain economic and social progress throughdeveloping human resources, pursuing equal opportunities for all citizens andcreating and

supporting a learning society.

(N.B. Stakeholders could consider replacing the wide human resources by the more focused

the acquisition of appropriate knowledge and employability skills.)

In addition, they drew up the following Mission Statement:

To raise awareness of the value of learning and increase opportunities for all citizens to

participate in continuous learning of high quality that meets the needs of individuals and those

of the labour market through building the infrastructure for adult learning and creating

sustainable partnerships.

(N.B. Do Stakeholders feel that a specific reference to the market economy is needed or is

labour marketenough?)

3. The Strategic Objectives

3.1. Key problems to be addressed

Part I of the strategy justified the focus on adult learning and analysed seven key problems

areas showing how they collectively and individually hindered the acquisition of skills for theinternal market and employment and the development of adult learning provision. These


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included:

Major skill deficits and skill mismatches Uncoordinated approach across relevant ministries Lack of systemic approach to developing adult learning Poor data, information and research base for adult learning Inadequate level of financial resources Low value given to adult learning Lack of sustainable partnerships in the design and implementation of adult learning.3.2. The strategic objectives

Six strategic objectives were agreed with the Stakeholders and include:

increased ability of adults to survive in the market economy through the application ofknowledge and increased competences; a unified policy approach adopted by government to the development of adult learning; a systemic approach adopted for the implementation of developments in adult learning; a sustainable data, information and research base on adult learning created and operating; value of learning in society increased and a learning culture in Kosovo developing and sustainable partnerships in adult learning created and functioning.The provision of adequate levels of financial resources for adult learning is about the means ofachieving the strategic objectives listed above. A discussion on issues of funding is given

below, at section 8.

4. The Measures

These strategic objectives will be taken forward through a series of measures which will

require individual action plans. An initial indication of the scope of the measures is givenunder each measure below. These are not comprehensive and are provided as a guide for thedevelopment of future action plans or programmes, which will be expected to give details of

the intervention envisaged and finance together with baseline information, targets andmilestones . In addition, action plans should include a list of monitoring and impact evaluation

and an outline of the evaluation framework (including details of timing, scope,responsibilities).

4.1. Strategic Objective 1 - the increased ability of adults to survive in the market economythrough the application of knowledge and increased competences

This will be taken forward through two separate measures:


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Measure 1: Programmes to increase basic skills Measure 2: Programmes to upgrade skillsThe scope of the activities outlined below takes account of the intention to adopt a systemicapproach to adult learning. What is at stake is to increase the overall level of skills of allpeople to, for example, a minimum of level 2 qualification in the first instance, and to shift the

level up to level 3 and beyond. Dividing measures according to beneficiary group (job-seekers,disadvantaged groups, employees, small businesses) may create administrative burdens at the

delivery level as the system develops if providers have mixed beneficiary groups. Importantinformation on employment status and skills level of beneficiaries at the start of training andthe learning outcomes and employment destination at the end can be gathered through good

management information systems.

Measure 1.1. Programmes to increase basic skills

These would include general basic skills provision, pre-vocational training and continuing

vocational training to level 2 to address employability skills that would tackle functionalilliteracy and provide adults with second chance opportunities and/or a first and second

vocational training qualification as a foundation for working life. As has been highlightedabove, over 56% of job-seekers are unskilled and have low educational attainment levels. It isno doubt equally true, despite the absence of statistical information but based on experience in

EU Member States, that substantial numbers of people in work have low educationalattainment levels, are the least likely to find alternative employment if made redundant and the

least likely to be offered training opportunities by their employers. In addition, special

programmes for target groups, such as war veterans, unskilled young people, people withspecial learning needs, ethnic minorities (e.g. Roma populations) and people living in isolated

rural areas would be included under this measure together with programmes to develop theprofessional competences of teachers and trainers. Specific initiatives to tackle gender

imbalances also need to be included with a particular focus on developing leadership skills forwomen.

Measure 1.2. Programmes to upgrade skills

These would include programmes to a level 3 vocational education qualification and above,customised training programmes for employers/employees, entrepreneurship programmes for

example for managers of small businesses and their employees, members of family businessesand people wishing to become self-employed. They could also include capacity buildingprogrammes for people involved in local economic and social development initiatives. These

programmes would include employees, people working in the grey economy and job-seekersand also the target groups listed above and small businesses. Special programmes related to


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privatisation, women in business, small business start ups or for specific priority areas (e.g.business and entrepreneurship skills, technology skills and the use of on-line services, or skills

for commerce) could be developed as well as full-time continuing vocational training courses.

Initiatives to develop the skills of the workforce for sectors defined as priority sectors for theeconomic development of Kosovo or because they are labour intensive could also be developedunder this measure. In addition, building the capacity of trainers to use modern teachingmethods, develop methodologies for different kinds of adult learners and to develop

competence in carrying out skill needs analysis and customised programme development couldbe included under this measure.

Although the development costs of vocational guidance and other support services (forexample training allowances, transport costs or child care costs) would come under a different

Strategic Objective, the on-going costs might form part of an overall package of training andsupport for beneficiaries.

4.2. Strategic Objective 2 - The adoption of a unified policy approach of government to theintegrated development of adult learning

There are three measures for Strategic Objective 2:

Measure 2.1 - Development of a common policy on adult learning Measure 2.2 - Creation of a policy implementation framework Measure 2.3 - Measures for capacity building in the field of adult learning Measure 2.1 - Development of a common policy on adult learning and Measure 2.2 -

Creation of a policy implementation framework

Measures to develop a unified policy on adult learning would include setting up appropriatecross-ministerial consultative structures to define responsibilities in adult learning, to agree

priorities, to draft policy and legislation. A cross ministerial and stakeholder adult learningpolicy group, led perhaps by the Prime Ministers Office, could be established to take thisagenda forward. The group could be charged with responsibility for drawing up an integrated

policy and the policy implementation framework. In the medium-term, it is anticipated thateconomic development plans will be drawn up and that there will be a human resources

development chapter. Developments in adult learning policy should feed into this process.

Measure 2.3 - Measures for capacity building in the field of adult learning

For the new member states, the development of national plans for economic and social

development with an integral component on human resources development was part of theplanning process under the Phare Programme for future access to the European Structural


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practice (see for example the work of the European Counselling and Guidance WorkingGroup).

Measure 3.2 -Development of an occupational classification system

This is also in the five-year strategic plan of the MLSW and study visits have already beenundertaken as a preliminary information gathering exercise. This measure will support the

development of the occupational classification system and the updating of professionals in itsuse.

Measure 3.3 -Developmentand implementation of an integrated national qualification system,

modular course provision and a system to recognise and validate competences acquired by

adults through non-formal and informal learning

Steps have already been taken to set up an Interim National Skills Board in Kosovo withmembership from the three key ministries (MEST, MLSW and MTI) and the social partners(the Federation of Kosova Trade Unions and the Kosova Chamber of Commerce) as a first step

in the creation of a permanent national authority to assure quality and standards for vocationaleducation and training in Kosovo. The INSB will also be supported by Vocational Standards

Committees (made up of experts, employers and trades people) with the remit to providetechnical assessment of vocational curricula, vocational teachers and trainers and vocationalinstitutions set against the standards of other EU countries. This measure will support the work

of the INSB and the Vocational Standards Committees and the permanent bodies that will beestablished in the future in the certification of vocational courses delivered by public providers,

certification of the competences of vocational teachers and trainers and the establishment and

maintenance of a register of accredited training providers. In addition, it will build on workalready started in Kosovo on the development of vocational curricula and modular course

provision.

Over the ten-year period of the strategy, a system to accredit the competences that adults haveacquired through non- formal and informal learning would be developed so that thesecompetences can also be recognised and validated. The measure will, therefore, promote the

exchange of experience and good practice in this field with EU member states including thenew members, especially in respect of the experience and outcomes of the Bruges process to

develop a European-wide system to recognise vocational qualifications. Whilst the currentfocus of the Kosovo authorities is on developing formal public provision rather than

developments in the private training market for adults, the latter is expected to grow and it isimportant, therefore, that in due course, Kosovo considers widening the remit of the INSB (orits successor institution) to include certification of relevant private training provision.

Measure 3.4 - Development of flexible formal and non-formal adult learning opportunities with


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delivery and methodology appropriate to adults where supply and demand are balanced andequal opportunitiesmainstreamed

Measure 3.4 is about increasing the supply and ensuring the quality of a wide range of flexiblelearning opportunities for adults in formal institutions, in enterprises and in the community.With technology advances, the expansion of open, flexible and internet learning will develop inKosovo during the period of the strategy. This measure could support in addition to formal

vocational education and training the development of open learning centres in publicinstitutions, enterprises and in community facilities and mobile learning units for isolated rural

locations. The measure would cover set up costs, including physical infrastructure andequipment costs, the development of learning materials and the professional updating ofteachers and trainers to manage and develop open learning centres. In addition, the measure

could support opportunities for the exchange of experience and good practice in thesedevelopments.

These developments will need to take into account the need to improve the physical resources(buildings, equipment and learning materials), development of methodologies suitable for

different kinds of adult learners, efforts to mainstream equal opportunities and to balancesupply-side considerations with the needs of individual learners. In this context, the continuing

professional updating of managers, teachers and trainers and researches could be supported.

Measure 3.5. Developmentand implementation of a quality assurance system

Some aspects of quality are being addressed in for example vocational education and training

through the assessment processes of the INSB that covers inputs and outputs (e.g. certification

of competences, accreditation of institutions). In addition, other areas could be included linkedto implementing lifelong learning principles: increasing participation of under-represented

adults, improved relevance of skills for the market economy/global knowledgeeconomy/technical age, in-service teacher-trainer development, universal access to high quality

information, counselling and guidance, development of systems to recognise outcomes fromnon- formal or informal learning and increased ability of individuals to take responsibility fortheir own learning and partnership working. The measure would support the development of a

set of quality indicators for adult/lifelong learning and opportunities to share good practicewith Member States in implementing quality assurance systems. The work of the European

Quality Working Group may be a useful reference point (see Annex 3 which list 15 qualityindicators for lifelong learning).

5.4. Strategic Objective 4 - The creation of a sustainable data, information and research baseon adult learning

Measure 4 - Creation of a sustainable system for data gathering and analysis of labour market


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skill trends, training demand and needs

This measure covers action to set up a national data collection system on adult learners and a

research base that would carry out labour market analyses, skill needs analyses of economicsectors or specific groups of learners (e.g. target groups such as people with disabilities, ethnicminorities, people living in isolated rural areas, people working the grey economy, warveterans) and research into issues affecting participation and motivation. The capacity to

forecast skill needs will also be developed. The measure will support the development andintroduction of management information systems.

5.5. Strategic Objective 5 - Raising the value of learning and promoting a learning culture inKosovo

Measure 5- Organisation of promotional activities to raise awareness of the value of adult

learning

An increase in the value placed on learning by adults is expected to stem from improved inputs

and outputs of learning and from more attractive learning environments (see the measures forStrategic Objective 4). Measure 5 supports promotional activities and the production of

promotional materials to increase awareness of adult learning, of the potential returns oninvestment in learning and to raise its value among all groups. Envisaged here are activitiessuch as learning festivals, learning campaigns in economic sectors to encourage and to reward

learning, mass media campaigns to stimulate learning through demonstrating the return onlearning.

5.6. Strategic Objective 6- the creation of sustainable partnerships in adult learning

Two measures support the creation of sustainable partnerships.

Measure 6.1 - Capacity building of stakeholders

This measure supports initiatives (e.g. workshops, joint activities) to develop capacity of

stakeholders (e.g. ministry officials, regional and local authorities, Employment Officeofficials, social partners, NGOs, researchers, providers of training and counselling and

guidance services, bodies responsible for local economic development initiatives) to strengthenpartnership working in adult learning at all levels.

Measure 6.2 - Development of on-going dialogue between stakeholders on a common

approach to adult learning and joint activities

Measure 6 supports the provision of technical and administrative support for key partnerships


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to operate effectively.

6. Pre-condition and Assumptions

6.1. A pre-condition for the development of adult learning is the willingness of thestakeholders to participate at all levels, national, regional and local and at the level of SouthEastern Europe and the European Union. Partnerships are pivotal to the development of adult

learning as they can provide leadership, initiative and commitment to reforms and a forum forpooling ideas, expertise, experience as well as finance.

6.2. In addition to this pre-condition, certain assumptions have been made in terms ofimplementing this adult learning strategy. These include:

a commitment to positive change in society political stability formal education system develops in a lifelong learning perspective sastisfactory attendance financial resources for adult learning are increased7. Roles and responsibilities- for discussion with ALST members

Government UNMIK -KTA Stakeholders:

MEST Social Partners -OEK/BSPKMLSW EU -ETF NGOs

MTI Regional/local government

Providers:

Formal public institutions = formal learning leading to qualificationFor profit and not- for-profit private training providers (NGOs) = non-formal learning

8. Financial Resources

8.1. Indicative Budgets for Adult Learning based on multiple sources - 2005-2015, 2005-2009

and 2010-2015

2005-2015 Euro

EU Funding - CARDS Adult Learning Project

State contribution - 25%

Private contributions (enterprises/individuals) - 25%

Other donor funds - 25%


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Total Indicative Budget

2005-2010 Euro


State contribution -

Private contributions (enterprises/individuals) -

Other donor funds -


2010-2015 Euro


State contribution -

Private contributions (enterprises/individuals) -

Other donor funds -


N.B. The indicative budgets assumes lower absorption capability in the first five-year period

and the lower capacity to raise public, private and donor funds. The indicative financialpackage also takes into account progress on the development of co-finance mechanisms duringthe first five-year period.

8.2. Decisions will need to be taken on the breakdown of the budgets for each measure. This

cannot be done at this stage and will need to be based on detailed programming with fundingdetails and targets.

8.3. Whilst it is reasonable to assume that there will be an increase in financial resources from

a variety of sources for adult learning in Kosovo during the 10 year period of the strategy, keyquestions remain on how to increase substantially funding for adult learning in the short termand how to move from dependency on donor funding towards greater self-sufficiency and long-term sustainability of financial resources for adult learning. Kosovo is not alone in grappling

with this problem. Sustainable finance for adult learning will need further investigation at


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different phases of development. It is recommended that technical support be provided toenable the Kosovo authorities to consider in depth the raft of technical issues on funding

lifelong learning. The international literature on lifelong learning is quite clear that lifelong

learning, and as a central part of that, adult learning, will require substantial additionalinvestment in the twenty- first century by governments, enterprises, individuals andcommunities. The public purse cannot meet all the costs and it is fair that the burden is sharedby those who benefit and that the basis for sharing the costs takes into account the return on

investment to enterprises and/or individuals and capacity to pay. Financial mechanisms forlearning also need to take account of efficiency and equity and they need to be transparent.

8.4. Consideration will need to be given to a variety of co-finance mechanisms for adultlearning including fiscal measures (for example tax incentives), income contingent repayment

loans, payroll levies, voucher schemes, individual learning accounts. There are several factorsto take into account. In the perspective of lifelong learning, the lifelong continuum has to be

considered in the allocation of public funds and not just in terms of increasing privatecontributions. Factors such as returns on investment and capacity to pay are important inallocating public funds. Decisions on initial and adult learning need to be taken together, n ot

separately. For example, in the future, Kosovo might be able to and wish to fund up to a level 3qualification (considered to be the minimum needed for the knowledge economy) for all its

citizens, irrespective of age, but tertiary level education or training would be financed byindividuals (via, for example income contingent loans) because of the anticipated higherreturns to individuals on investment at tertiary level.

8.5. In terms of public funding for adult learning, the general consensus among OECD

countries is that governments normally target public funding on specific government priorities

(for example, on particular sectors, specific skills, or specific groups including small firms anddisadvantaged population segments). In addition, different ministerial budgets can be pooled

(in, for example, schemes for job-seekers where the costs of training are covered by ministriesof education and the subsistence costs are covered by ministries of labour out of social

benefits). These depend on specificities of line ministry responsibilities and budget lines.Schemes that pool different ministerial budgets are not straight forward and can give rise totensions. For them to succeed, they need to balance different ministerial policy priorities (e.g.

education objectives and improving skills for people to return to the labour market which canconflict).

8.6. Employers have been the main drivers of increasing participation in adult learning, partly

because they recognise that investment in their workforce can provide high returns, forexample, in increases in production and profitability and/or efficiency gains. In the globalknowledge economy, companies that succeed are those that invest heavily in their human

capital. Building this culture in Kosovo will take time, but it is essential for longer- termeconomic success. Employers and shareholders need to be see an economic return on their


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investment. Similarly, for individual employees, there needs also to be a visible return oninvestment (such as increased responsibilities, career progression and not just increased

wages). Incentives such as employer sponsorship are important in motivating people to learn.

However, employers tend to invest in those employees who are likely to offer the biggestreturns (e.g. the higher skilled, knowledge workers) and less in older workers with loweducational attainment levels and there are also wide variations in investment at the sectorlevel. So, the distribution of workforce learning sponsored by employers can be uneven and

unequal.

8.7. At the level of the individual there are two direct costs - direct training costs andsubsistence costs if adult learners lose income during training -and there is a third cost of thetime to learn. Direct costs for training (for companies and individuals) can be supported by tax

concessions or new schemes such as individual learning accounts. Entitlements or agreementson time to learn for employees often form part of social agreements and form part of

negotiations on wages and conditions of work. They have led to innovative schemes to supportworkers who need leave to participate in learning. In Germany, for example, one schemeallows individual employees to bank overtime worked against time off for learning. A key

issue in co-finance arrangements is to achieve a balance between increasing overall levels ofparticipation in learning with ensuring that under-represented populations, who are often those

who need learning most, also have equal access to it.

9. Links with other parts of the system in the perspective of lifelong learning

The strategy for the development of adult learning does not foresee the development of a

separate adult learning system but a single continuous and integrated learning system

extending beyond initial education and training that provides more diverse and appropriatelearning opportunities for adults. Ensuring good connections between the initial system and

adult learning is important. Recognising and validating the competences and knowledge ofadults acquired outside formal learning needs to be undertaken in relation to national standards

and qualification frameworks that apply to young people and adults alike. Linkages betweencounselling and guidance for young people entering the labour market and for adults already inthe labour market are also important. Rigid definitions between formal and non -formal learning

settings will begin to blur as flexible learning opportunities for adults are developed inenterprises and in the community and through partnerships between formal public providers,

private providers, employers and in-company tutors and civil society organisations.

The adult learning strategy proposed above builds on reforms that are planned for initialeducation and training. In particular, developments of tertiary level studies to incorporate moreapplied science and technology courses and advanced sub-degree technical courses linked to

the development of new semi-professional occupations (especially in medical, health andenvironmental fields) that exist or are emerging in the labour market will be important. These


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15 Lifelong learning quality indicators are discussed in the above report and include:

A: Skills, Competences and Attitudes Literacy Numeracy New skills for learning society Learning- to learn skills

B: Access and Participation Access to lifelong learning Participation in lifelong learning

C. Resources for lifelong learning

Investment in lifelong learning Educators and learning ICT in learning

D: Strategies and Systems

Strategies for lifelong learning Coherence of supply Guidance and counselling Accreditation and certification Quality assurance

a strategy for the development of adult learning in kosovo for the

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