1. Recognising non-formal and informal learning
Policy considerations for Japan
Deborah Roseveare
OECD
6 March 2011

2. Outline
1. Key principles
2. Benefits of recognising learning
3. Key elements for successful RNFIL systems
4. Current challenges in Japan
5. Policy options
2

3. Outline
1. Key principles
2. Benefits of recognising learning
3. Key elements for successful RNFIL systems
4. Current challenges in Japan
5. Policy options
3

4. Key principles
Formal learning
• learning through a programme of instruction in:
– An educational institution
– Adult training centre
– Workplace learning centre
that usually results in a qualification of certificate
4

5. Key principles
Non-formal learning
• Learning through a programme that is not usually
evaluated and does not lead to a qualification of certificate
Informal learning
• Learning resulting from daily work-related, family or leisure
activities
5

6. Key principles
• RNFIL is a competence-based approach.
Competence means being able to do something to a defined
standard
• RNFIL focuses on what a person can do
not how they learnt to do it
• RNFIL provides independent verification
of what a person can do
6

7. Key principles
• RNFIL is concerned with practice, not theory
(or with practice in applying theory)
• Someone may know the theory of electricity
but can they change
a light bulb safely?
7

8. Key principles
• RNFIL is not concerned with how competency is acquired
Chef A learns to cook at a cooking school
Chef B learns to cook from his or her mother
All that matters to the diners is whether the chef can cook!
8

9. Key principles
• RNFIL is concerned with verifying what people can do
– Assessing competencies
– Providing a valid certification of competencies
9

10. Outline
1. Key principles
2. Benefits of recognising learning
3. Key elements for successful RNFIL systems
4. Current challenges in Japan
5. Policy options
10

11. Benefits
• RNFIL generates economic benefits
– It reduces the direct and the opportunity cost of formal
learning by allowing people to:
• progress more rapidly through education
• avoid wasting time on courses already mastered
• move more easily across education pathways
– It encourages people to learn in most cost-effective ways
– It makes it easier for employers to see what job applicants
are able to do and help workers to show what they can do
– It can facilitate structural adjustment and better job/skill
matching, especially for displaced workers
11

12. Benefits
• RNFIL generates educational benefits
– It makes learning more visible
– It assists people in identifying current strengths and
weaknesses and valuing what they can already do
– It fosters individual responsibility for career development
and progression by encouraging people to gain
competencies through experience
– It makes it more attractive to firms and individuals to
invest in training
– It underpins lifelong learning
12

13. Benefits
• RNFIL generates social benefits
– It improves equity and strengthens access to:
• further education
• the labour market
– It can be especially relevant for:
• disadvantaged groups (e.g. minorities, immigrants)
• disaffected youth
• older workers (who usually have a lot of experience but
also fewer formal qualifications than younger workers)
13

14. Benefits
• RNFIL generates psychological benefits
– It improves well-being by:
• making individuals aware of their capabilities
• validating their worth
• boosting their self-confidence
14

15. Benefits
• To deliver these benefits, RNFIL processes must be well-
designed and implemented properly
• Benefits only realised if society accepts RNFIL certifications
• RNFIL generates benefits but also has costs
– need careful assessment of benefits and costs and
comparison with formal education alternatives
– focus on competencies with high labour market value
– ensure procedures do not produce misleading information
about competencies
15

16. Outline
1. Key principles
2. Benefits of recognising learning
3. Key elements for successful RNFIL systems
4. Current challenges in Japan
5. Policy options
16

17. Key elements for success
• Embed RNFIL policies within broader economic strategy
and policy framework:
– integrate with lifelong learning policies
– encourage emphasis on learning outcomes and
competencies across all education settings
– integrate with labour market policy settings
17

18. Key elements for success
• Clarify main purpose(s) and priorities of RNFIL system
– improving access to further formal education
– better matching of people and jobs in the labour market
– assisting specific groups
• Identify which instruments are appropriate for which
purpose, e.g.
– general competency assessment
– specific competencies that can be recognised
– alternative route to obtaining national qualifications
18

19. Key elements for success
• Supporting national qualifications framework (NQF)
– National qualifications frameworks are designed to:
• facilitate progression through education and training
• provide horizontal equivalence
• provide information to labour market participants
(employers and employees)
– Ideally would specify competencies for qualifications but
often input based (e.g. number of class hours)
– Importance depends on labour market arrangements
– NQFs can improve transparency about qualifications, but
it depends on good design and implementation
19

20. Key elements for success
• Improve information about RNFIL so that:
– Individuals know that the option is available
– Employers and society understand the competency
principles that underpin RNFIL
– information about qualifications that can be obtained by
RNFIL is easy to find
• Provide information through services dealing with those
most likely to benefit (job seekers, career guidance,
counselling services, etc.)
20

21. Key elements for success
• Develop high quality, robust assessment systems that are:
– valid
– transparent
– consistent
• Use appropriate techniques for assessing competencies
• Develop rigorous quality assurance of assessment centres
• Use competent evaluators, well-trained in:
– assessment design and development
– carrying out assessments
21

22. Outline
1. Key principles
2. Benefits of recognising learning
3. Key elements for successful RNFIL systems
4. Current challenges in Japan
5. Policy options
22

23. Current challenges in Japan
• Demographics - shrinking, ageing population
• Women’s labour market participation relatively low
• Slow growth, intensified global competition and
downsizing of some industries
• Segmented labour markets and rising share of non-regular
workers. Non-regular workers:
– receive less firm-based training
– significant wage gap
– precarious employment
– less social safety net coverage
23

24. Current challenges in Japan
Profile of workers 2007
% Regular Non-
regular
Age Under 30 15.0 16.8
30 to 59 82.1 66.7
Over 60 2.9 16.4
Gender Male 76.3 23.7
Female 42.2 57.8
Education Middle school 3.5 7.8
High school 39.7 57.3
University 36.7 11.8
Source: MHLW General Survey of Diversified Types of Employment 2007
24

25. Current challenges in Japan
Profile of workers 2007
% Regular Non-
regular
By size of company 5 to 29 62.3 37.7
(number employees) 30 to 999 61.8 38.2
More than 1 000 74.2 25.8
Tenure Less than 1 year 3.9 21.5
1 to 10 years 45.8 65.5
More than 10 years 49.4 13.0
Source: MHLW General Survey of Diversified Types of Employment 2007
25

26. Current challenges in Japan
Reasons firms hire non-regular workers 2007
% of respondents Part-
Dispatch Temp
(multiple responses possible) time
Reduce wage costs 41.1 18.8 28.3
Cut non-wage costs 21.3 16.6 8.1
Cope with daily or weekly fluctuations in demand 37.2 13.1 4.5
Hire work-ready and experienced workers 11.6 35.2 38.3
Work on skilled tasks 12.7 20.2 43.6
Difficulty in finding regular workers 17.6 26.0 18.2
Facilitate adjustment to business fluctuations 18.0 25.7 15.6
Cope with long business hours 21.7 3.4 6.4
Re-employ older workers 7.9 2.6 11.0
Specialise regular workers in key tasks 15.3 20.4 10.6
Source: MHLW General Survey of Diversified Types of Employment 2007
26

27. Current challenges in Japan
Reasons workers choose non-regular employment 2007
% of respondents Part-
Dispatch Temp
(multiple responses possible) time
Work at convenient times 55.9 17.7 13.5
Support family budget 42.4 16.1 18.5
Balance family and other activities 32.0 15.9 11.3
Reduce commuting time 19.2 8.8 9.3
Obtain discretionary money 22.7 17.4 13.5
Cannot find regular employment 12.2 37.3 31.5
Reduce working time 19.2 8.8 9.3
Make use of professional qualifications and skills 9.0 18.5 37.0
Work on easy and less responsible tasks 8.6 12.4 6.2
Avoid being tied down by the company 5.8 12.3 7.0
Easy to adjust hours and earnings 7.1 1.6 2.1
Source: MHLW General Survey of Diversified Types of Employment 2007
27

28. Current challenges in Japan
• Around 10% make transition from non-regular to regular work
More likely Less likely
• Temp, dispatched workers • Part-time workers
• Younger workers • Older workers (over 40)
• Short spell as non-regular • Long spell as non-regular
• University education • Middle school education
• Health, education sectors • Manufacturing
• Public sector • Private sector
Source: Genda Y. (2010), No dignity for Humans – The 2000s Labour Market, Minerva Publishing Kyoto.
28

29. Current challenges in Japan
Labour force participation and share of non-regular workers
by age and gender
Source: Ministry of Internal Affairs and Communications, Labour Force Survey, and Labour
Force Survey (Detailed Tabulation) in OECD (2011) Economic Survey Japan, forthcoming
29

30. Outline
1. Key principles
2. Benefits of recognising learning
3. Key elements for successful RNFIL systems
4. Current challenges in Japan
5. Policy options
30

31. Policy options
Qualifications
• Develop a national qualifications system – especially for
vocational education and other job-relevant competencies
• Design national qualifications system with full involvement of
employers and employee representatives to strengthen
relevance, credibility and acceptance
• Anchor RNFIL within the national qualifications system
• Develop assessment procedures for awarding national
qualifications through recognition
31

32. Policy options
Job Card system
• Expand the Job Card tool to include independent
assessment of competencies
• Expand access to Job Card system to cover a wider range of
individuals and not only as a tool for job-seekers
32

33. Assessment, evaluation and quality assurance
• Strengthen capacities to assess and evaluate competencies,
– develop well-designed, valid, transparent and reliable
instruments
– train sufficient evaluators to match demand
• Provide quality assurance mechanisms to underpin
assessment and evaluation processes and strengthen
credibility
33

34. Thank you!
www.oecd.org/edu/recognition
deborah.roseveare@oecd.org
34