ulrike benzer, ralph conrads, laura roser, maryam shariat-razavi … social self... ·...
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Ulrike Benzer, Ralph Conrads, Laura Roser, Maryam Shariat-Razavi
Assessment and Recognition of Foreign
Qualifications –
a cross-country comparison
Seite 2
2/3 of immigrants have obtained their
qualifications abroad
immigrants with foreign qualifications face
substantial obstacles to unfold their skills
highly educated immigrants with foreign
qualifications have lower returns to their
education (employment prospects, wages)
than the native-born with domestic
qualifications
more than 1/4 of highly educated immigrants
are formally overqualified for their job
there are large cross-country differences in
skills at given education levels
the quality of education systems differs
widely, especially between high- and low-
income countries
Important issue, because…
OECD (2017), Making Integration Work: Assessment and Recognition of Foreign Qualifications, OECD Publishing, Paris.
http://dx.doi.org/10.1787/9789264278271-en
Seite 3
immigrants who obtained formal recognition are more often employed
and work in better jobs than their peers without recognition
the improvement associated with recognition is particularly pronounced
for immigrants from lower-income countries
most immigrants who apply for recognition succeed in obtaining either
full or partial recognition
only few immigrants use existing recognition mechanisms
applications in health and welfare sector are clearly overrepresented
Important issue, because…
Seite 4
Ten main policy lessons
Lesson 1 - establish a right to the assessment of foreign qualifications What? Why? - not everywhere all immigrants have access to recognitions procedures (determined by
legal status, type of qualification or the country of the qualification)
Who? - extension to any holder of a foreign diploma (principle of equal treatment)
How? – integration of assessment of foreign qualifications into a comprehensive recognition law
Lesson 2 - Make sure that recognition procedures are quick and provide
opportunities to assess foreign qualifications prior to arrival What? Why? – the earlier assessment the earlier the integration into segments of the labour market will
be, long recognition procedures bear the risk of scarring effects and depreciation of professional skills
Who? – beneficial for all migrants and employers
How? – fixing the maximum admissible processing time for recognition of foreign qualifications in
legislation (5 days up to 6 months), offering prospective migrants the possibility to have foreign
qualifications assessed prior to arrival
Lesson 3 - Facilitate information and application through one-stop-shops for
the assessment and recognition of foreign qualifications What? Why? – Procedures often vary across different regulated professions, levels and types of
qualification and regional or provincial legislations. “One-stop-shops” reduce the complexity/barriers and
improve the accessibility and transparency of the system
Who? – They should serve the needs of applicants (regardless of the type/level of qualification, of the
target profession). One-stop-shops are helpful for immigrants who are unfamiliar with the bureaucracy.
How? – one-stop shops should ensure that services are accessible by all migrants: walk-in offices,
online tools and phone hotlines (depending on country’s size)
Seite 5
Ten main policy lessons
Lesson 4 - Strengthen systems for the recognition of prior learning and
ensure effective access for immigrants What? Why? – to give immigrants the chance to assess and certify competencies, regardless of how
and where these skills have been acquired, this includes RPL on informal and non-formal learning that
has been obtained through previous work experience or voluntary activities as a complement to formal
recognition procedures
Who? – RPL measures prevent penalization of persons who acquired skills through work-experience or
who do not have a formal diploma; it is also valuable for humanitarian migrants with problems to proof
their qualifications. And: RPL is useful to identify needs of further training by cost-effective means.
How? – in the best case, it is embedded in a legal framework for RPL granting a legal right to undergo
an assessment procedure of prior learning
Lesson 5 - Link partial recognition to bridging courses What? Why? – immigrants who receive a partial recognition have to repeat a large part or all of their
training in the receiving country, it often involves substantial costs (time/money) and can have lock-in
effects that delay labour market integration and activation of skills, effective bridging courses offer a
quick and a cost-efficient solution enabling immigrants to fill specific skills gaps
Who? – migrants whose qualifications are not fully equivalent to a domestic degree
How? – partial recognition decisions should include a clear statement about which skills are missing and
which additional training is needed, bridging courses should be available in co-operation with
professional and educational bodies for licensing examinations and help them find traineeships and
work placements, in order to eventually obtain full recognition
Seite 6
Ten main policy lessons
Lesson 6 - Ensure that regulatory bodies treat immigrants fairly What? Why? – Things are often complex for immigrants who are still residing abroad or for those who
lack official documentation of their qualifications (due to flight from war in conflict-ridden zones), this
leads to a disadvantage over native-born applicants. To ensure that recognition practices do not
discriminate but comply with principles of fairness and transparency “fairness commissioners” can be
established.
Who? – Fairness commissioners defend interests of any immigrant who considers applying for the
assessment and recognition of a diploma to work in a regulated profession.
How? – establishing an independent fairness commissioner by law (example Fair Access Act 2006 in
Candada)
Lesson 7 - Engage employers and other relevant non-governmental
stakeholders What? Why? – integration of employers’ expert knowledge about skills in demand into recognition
procedures, engaging employers and generating buy-in from all relevant stakeholders to ensure that
recognition procedures are known and outcomes are widely accepted
Who? – employers (especially in the non-regulated professions) often play only a minor role in formal
assessment and recognition mechanisms, recognition partnerships should include them further in the
design of recognition policies
How? – responsibility for recognition is spread across various actors, frequently competence on
recognition depends on whether or not a profession is regulated (in non-regulated professions the
relevant body to contact is usually a public evaluation agency, such as the NARIC offices, and not the
employer), thus employers should be involved systematically to improve this situation
Seite 7
Ten main policy lessons
Lesson 8 - Establish partnerships and networks for the transnational
exchange of expertise and good practice in the area of recognition What? Why? – In OECD countries exists a great potential to benefit from each other’s experience by
promoting transnational exchange of insights, evaluations, research findings or good practice.
Who? – Policy makers in charge of designing recognition systems, recognition practitioners,
professional bodies and employers. The potential for mutual learning is greatest where countries face
common concerns and challenges or share comparable policy approaches.
How? – Round table events (Canada, Australia), the European NARIC centers to improve academic
recognition or the European Recognition Manual to create more transparency
Lesson 9 - Expand bilateral and multilateral agreements on the assessment
and recognition of foreign qualifications What? Why? – to save resources and allow highly skilled migrants to start working immediately after
arrival without any delay
Who? – benefits for immigrants who aim to work in a regulated profession or to take up/continue higher
education
How? – There are examples of bilateral agreements and multilateral collaboration (Australia, Canada,
Ireland or EU). To exploit the benefits of international co-operation, there is a need for more stringent
systems for international quality assurance and international accreditation systems.
Seite 8
Ten main policy lessons
Lesson 10 - Make sure that costs do not represent a barrier What? Why? – availability of assessment procedures and bridging courses to all holders of foreign
qualifications (independently of financial means), in order to be equitable and non-discriminatory, but
fees for recognition of formal qualifications or RPL vary substantially by country or field (nothing to
several thousand euros)
Who? – unemployed migrants often have access to financial support and subsidies from the public
employment, but employed migrants are very often not eligible
How? – countries can offer assessment services free of charge or they can provide financial assistance
to reimburse those who cannot afford to pay for the service (many applicants withdraw their applications
to save the fees when they fear rejection).
Seite 9
Group 1
Please discuss following topics for 30 minutes – what is the situation
in your country in these topics (you can use the handout as a backup
for country-specific information)? What should be achieved or
improved? Please prepare one card for each country and topic.
Establish a right to the assessment of foreign qualifications
Make sure that recognition procedures are quick and provide
opportunities to assess foreign qualifications prior to arrival
Facilitate information and application through one-stop-shops for
the assessment and recognition of foreign qualifications
Strengthen systems for the recognition of prior learning and ensure
effective access for immigrants
Link partial recognition to bridging courses
Seite 10
Group 2
Please discuss following topics for 30 minutes – what is the situation
in your country in these topics (you can use the handout as a backup
for country-specific information)? What should be achieved or
improved? Please prepare one card for each country and topic.
Ensure that regulatory bodies treat immigrants fairly
Engage employers and other relevant non-governmental
stakeholders
Establish partnerships and networks for the transnational
exchange of expertise and good practice in the area of recognition
Expand bilateral and multilateral agreements on the assessment
and recognition of foreign qualifications
Make sure that costs do not represent a barrier
Seite 11
Lesson 1 - right to assessment of foreign qualifications
Legal right? – Yes. Limitation: Restricted to EU/EEA nationals and non-EU/EEA nationals with a valid residence permit and a statement of validity.
Lesson 2 - quick recognition procedures
Statutory processing times for assessment? – Yes. 120 days for professional qualifications, 90 days for academic degrees
Average duration of an assessment procedure? – N.A.
Assessment prior to arrival? - Yes (only academic degrees at university and highly qualified EU-Blue Card workers)
Lesson 3 - one-stop-shops
One-stop shops for assessment? – No, planned for professional qualifications covered by EU Professional Qualification Directive).
Information about recognition procedure? – Yes, not pro-actively: two centres provide information upon request
Lesson 4 - recognition of prior learning
Possibility to have prior learning recognised? – Yes
Legal right to have prior learning recognised? – Yes
Systematic information about the Recognition of Prior Learning? – No
Assessment methods used for Recognition of Prior Learning? – Still in development
Documents resulting from Recognition of Prior Learning? – “Citizen’s training booklet” recording a person’s skills and Competencies
Enter higher levels of education and training based on RPL? – No
Lesson 5 - bridging courses
Availability of bridging offers for immigrants with partial recognition? – No
Systematic information about bridging offers? –
Type and components of bridging programmes? – Vocational training
Lesson 6 - fair treatment
Alternative assessment methods for applicants without (full) documentation? – Yes
Languages in which applications are accepted for recognition? – Italian (some universities accept academic degrees in English, Spanish or French)
Subsidies to cover or reimburse the costs of translation? – No
Lesson 7 - engage employers and stakeholders
Regulated occupations? – No employer involvement
Non-regulated occupations? – No employer involvement
Lesson 8 - transnational exchange
Lesson 9 - bilateral and multilateral agreements
Bilateral agreements with Argentina, Australia, Austria, China, Cyprus,1 Ecuador, France, Germany, Former Yugoslavia, Malta, Mexico, United
Kingdom, Slovenia, San Marino, Spain, Holy See and Switzerland
EU Professional Qualifications Directive (2013/55/EC)
Lisbon Convention on the Recognition of Qualifications concerning Higher Education
Convention on the recognition of studies, diplomas and degrees of Higher Education in the Arab and European states in the Mediterranean
Lesson 10 - no barrier by costs
Fee Recognition? – Yes. Vary by educational institution and required bridging measures, etc.
Subsidies Recognition? – No
Fee RPL?: N.A.
Italy
Seite 12
Lesson 1 - right to assessment of foreign qualifications
Legal right? – Yes. Limitation: Restricted to Lisbon Recognition Convention rules for higher qualifications (signatory countries) and to EU Directive
2013/55/: EU/EEA member countries concerning professional qualification .
Lesson 2 - quick recognition procedures
Statutory processing times for assessment? – Yes. 90-120 days for EU/EEA professional qualifications in regulated professions, 120 days for higher
education credentials covered by the Lisbon Recognition Convention
Average duration of an assessment procedure? – 90% of files are processed in less than 1 month, maximum 4 months
Assessment prior to arrival? - Yes (6% of applications)
Lesson 3 - one-stop-shops
One-stop shops for assessment? – Yes (CIEP), Qualifications in non-regulated professions
Information about recognition procedure? – Yes, Immigrants who have signed the reception and integration contract are systematically informed in
the framework of introduction activities
Lesson 4 - recognition of prior learning
Possibility to have prior learning recognised? – Yes (Validation des acquis de l’expérience, about 10% of participants)
Systematic information about the Recognition of Prior Learning? – No
Assessment methods used for Recognition of Prior Learning? – A combination of interviews and workplace assessments
Documents resulting from Recognition of Prior Learning? – Domestic diploma
Enter higher levels of education and training based on RPL? – Yes
Lesson 5 - bridging courses
Availability of bridging offers for immigrants with partial recognition? – No
Systematic information about bridging offers? – / Type and components of bridging programmes? –
Lesson 6 - fair treatment
Alternative assessment methods for applicants without (full) documentation? – No (but alternative assessment methods are being developed)
Languages in which applications are accepted for recognition? – Depends on the languages spoken by the staff of the recognition centre (French,
German, English, Spanish, Italian, Portuguese and Arabic did not require translation in 2015)
Subsidies to cover or reimburse the costs of translation? – No
Lesson 7 - engage employers and stakeholders
Regulated occupations? – No employer involvement
Non-regulated occupations? – No employer involvement
Lesson 8 - transnational exchange
Lesson 9 - bilateral and multilateral agreements
Bilateral agreements with Quebec/Canada, Germany, Italy and Poland
EU Professional Qualifications Directive (2013/55/EC)
Lisbon Convention on the Recognition of Qualifications concerning Higher Education
Agreements with universities or schools
Lesson 10 - no barrier by costs
Fee Recognition? – Yes. 70 Euro.
Subsidies Recognition? – No
Fee RPL?: EUR 300 - EUR 2 000 (typically EUR 1 000 for an ISCED-5 level diploma (“licence”))
France
Seite 13
Lesson 1 - right to assessment of foreign qualifications
Legal right? – Yes (but not signed Lisbon Convention on the Recognition of Qualifications). Limitation: No, covers all migrants with a legal status
Lesson 2 - quick recognition procedures
Statutory processing times for assessment? – Yes. 90-120 days for professional qualifications, 60-90 days for academic qualifications
Average duration of an assessment procedure? – N.A.
Assessment prior to arrival? - No
Lesson 3 - one-stop-shops
One-stop shops for assessment? – Yes, but several units depending on type of qualification
Information about recognition procedure? – Yes, not pro-actively: information is available upon request via a national contact point
Lesson 4 - recognition of prior learning
Possibility to have prior learning recognised? – Yes, but only in a few occupations (e.g. adult educators and trainers, staff of private security services
and land loaders of the port)
Legal right to have prior learning recognised? – Yes
Systematic information about the Recognition of Prior Learning? – No
Assessment methods used for Recognition of Prior Learning? – Theoretical and practical exams
Documents resulting from Recognition of Prior Learning? – Vet- Certificates at different levels
Enter higher levels of education and training based on RPL? – No
Lesson 5 - bridging courses
Availability of bridging offers for immigrants with partial recognition? – No
Systematic information about bridging offers? – Type and components of bridging programmes? –
Lesson 6 - fair treatment
Alternative assessment methods for applicants without (full) documentation? – No
Languages in which applications are accepted for recognition? – Greek
Subsidies to cover or reimburse the costs of translation? – No
Lesson 7 - engage employers and stakeholders
Regulated occupations? – Yes, active involvement via trial periods / supervision of practice
Non-regulated occupations? – No employer involvement
Lesson 8 - transnational exchange
Lesson 9 - bilateral and multilateral agreements
No bilateral agreements, not signed Lisbon Convention on the Recognition of (higher) Qualifications but Directive 2013/55/EU on the Recognition of
Professional Qualifications is active (recognition among EU and EEA member countries, limited to regulated professional qualifications and does not
cover non-EU qualifications)
Lesson 10 - no barrier by costs
Fee Recognition? – Yes. EUR 100 for recognition of professional or non-tertiary qualifications; EUR 184 - EUR 415 for academic qualifications (EUR
230 for undergraduate level; EUR 184 for postgraduate level or doctorate; EUR 369 for post-graduate and doctorate; EUR 415 for under- and
postgraduate
Subsidies Recognition? – No
Fee RPL?: EUR 50 per certification examination (total costs for RPL may be higher depending on professional area and organisations involved).
Greece
Seite 14
Lesson 1 - right to assessment of foreign qualifications
Legal right? – Yes. Lisbon Recognition Convention and EU Directive 2013/55, Federal German Recognition Act; Federal German Expellees Act;
Regional Recognition Acts; no general limitation
Lesson 2 - quick recognition procedures
Statutory processing times for assessment? – Yes. 90 days in general, 120 days for some professional and vocational qualifications
Average duration of an assessment procedure? – 59 days
Assessment prior to arrival? - Yes (about 12% of applicants)
Lesson 3 - one-stop-shops
One-stop shops for assessment? – Yes (Central Office for Foreign Education; online portal “Recognition in Germany”, telephone hotline “Working
and Living in Germany” and the drop-in centres of the “IQ network”; competent authorities)
Information about recognition procedure? – Yes. Part of the regular counselling scheme for adult migrants and provided by employment offices; in
addition there is a multi-channel support structure for applicants including an online portal “Recognition in Germany”, a telephone hotline “Working
and Living in Germany”, 93 drop in centres (IQ network centres) at the regional level, the Central Office for Foreign Education (ZAB) and competent
authorities
Lesson 4 - recognition of prior learning
Possibility to have prior learning recognised? – Yes via two channels: the “external students’ examination” gives access to regular final examinations
for vocational degrees and a standardised procedure for RPL is currently developed in the framework of the pilot project VALIKOM
Legal right to have prior learning recognised? – Yes
Systematic information about the Recognition of Prior Learning? – Yes, via a telephone hotline and regional drop-in centres of the Network IQ
Assessment methods used for Recognition of Prior Learning? – Applicants can participate in the regular exams for vocational training without prior
formal training (further components will be provided by the project VALIKOM)
Documents resulting from Recognition of Prior Learning? – Domestic degree (in regular vocational examinations)
Enter higher levels of education and training based on RPL? – Yes
Lesson 5 - bridging courses
Availability of bridging offers for immigrants with partial recognition? – Yes
Systematic information about bridging offers? – Yes (but not pro-actively; information is available via websites and information centres)
Type and components of bridging programmes? – regulated professions: completion of a compensatory measure stipulated by the competent
authority (i.e. an adaptation period or test); non-regulated occupations: continuing training measures to compensate for the missing skills
Lesson 6 - fair treatment
Alternative assessment methods for applicants without (full) documentation? – Yes, “Qualification Analysis”
Languages in which applications are accepted for recognition? – German
Subsidies to cover or reimburse the costs of translation? – Yes
Lesson 7 - engage employers and stakeholders
Regulated occupations? – Yes The Chamber of Crafts and Trades assesses the equivalence of a foreign qualification in “Meister” occupations in
skilled trades
non-regulated occupations? – Yes Employers (Chambers) are responsible for recognition procedures
Germany
Seite 15
Lesson 8 - transnational exchange
Lesson 9 - bilateral and multilateral agreements
Bilateral agreements with Austria, France and Switzerland
EU Professional Qualifications Directive (2013/55/EC)
Lisbon Convention on the Recognition of Qualifications concerning Higher Education
Convention on the recognition of studies, diplomas and degrees of Higher Education in the Arab and European states in the Mediterranean
Lesson 10 - no barrier by costs
Fee Recognition? – Usually EUR 100 - EUR 600 for regulated and non-regulated professions; EUR 200 for a certificate of equivalence for academic
qualifications in nonregulated professions
Subsidies Recognition? – Yes (for unemployed; in addition some regions offer voluntary financial support)
Fee RPL?: Approx. EUR 300 - EUR 1 200 (depending on the occupation and the examination regulations of the competent authorities)
Germany
Seite 16
Bibliography
24. Juni 2016 © Bundesagentur für Arbeit
Brücker, H., A. Glitz, A. Lerche and A. Romiti (2015), “Occupational Recognition and Immigrant Labor
Market Outcomes”, CES ifo, memo.
Büschel, U., V. Daumann, M. Dietz, E. Dony, B. Knapp and K. Strien (2015), “Abschlussbericht
Modellprojekt Early Intervention – Frühzeitige Arbeitsmarktintegration von Asylbewerbern und
Asylbewerberinnen. Ergebnisse der qualitativen Begleitforschung durch das IAB”, IAB
Forschungsbericht 10/2015.
European Commission, Cedefop, ICF International (2014), “European Inventory on Validation of Non-
formal and Informal Learning 2014”, Executive summary,
http://libserver.cedefop.europa.eu/vetelib/2014/87250.pdf.
Liebig, T. and T. Huddleston (2014), “Labour Market Integration of Immigrants and their Children:
Developing, Activating and Using Skills”, in International Migration Outlook 2014, OECD Publishing,
Paris,
http://dx.doi.org/10.1787/migr_outlook-2014-5-en.
OECD (2016a), Making Integration Work: Refugees and Others in Need of Protection, OECD Publishing,
Paris,
http://dx.doi.org/10.1787/9789264251236-en.
OECD (2016b), Skills Matter: Further Results from the Survey of Adult Skills, OECD Publishing, Paris,
http://dx.doi.org/10.1787/9789264258051-en.
OECD (2017), Making Integration Work: Assessment and Recognition of Foreign Qualifications, OECD
Publishing, Paris.
http://dx.doi.org/10.1787/9789264278271-en.
Schuster, A., M. V. Desiderio and G. Urso (2013), Recognition of Qualifications and Competences of
Migrants, International Organisation for Migration (IOM), Brussels.
Seite 17
Prof. Dr. Ralph ConradsProfessor for labour market integrationralph.conrads@hdba.de | 0621 4209-236
University of Applied Labour Studies (HdBA)
Thank you!
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