Raising skills is critical to Portugal’s economic success and social well-being. As globalisation and digitalisation are transforming how people work, how societies function and how individuals interact, Portugal needs to equip its entire population with strong skills so that they can benefit from new opportunities.Portugal has put education and skills at the forefront of the political agenda for many years, but more than half of adults have not completed upper secondary education. With the population ageing rapidly and a growing skills divide between generations, Portugal needs to further strengthen its adult-learning system. To make change happen, Portugal will need a clear vision for the adult-learning system and a strong partnership between all stakeholders – all levels of government, education and training providers, employers, trade unions, the non-profit sector and learners.This report outlines areas where the accessibility, flexibility and quality of the adult-learning system can be improved, where governance and financing mechanisms can be strengthened, and provides examples of international and national good practice to help achieve these objectives. The report provides a series of concrete actions to help Portugal improve the adult-learning system and in turn enhance economic growth and social cohesion.

1. OECD SKILLS STRATEGY
ACTION PHASE PORTUGAL
Andreas Schleicher
Director for Education and Skills, OECD
OECD Centre for Skills
Education and Skills Directorate
4 May 2018

2. 2
OECD Skills Strategy
Contributes to
economic prosperity
Contributes to social
cohesion

3. 3
From Diagnostic (2015) to Action (2018)

4. 4
A collaborative project
Directorate for Education
and Skills
Economics Department
Directorate for
Employment, Labour and
Social Affairs
Directorate for Science,
Technology and
Innovation
Centre for Tax Policy and
Administration
Directorate for Public
Governance and
Territorial Development
OECD PORTUGAL
Ministry of Science, Technology and
Higher Education
Ministry of Education
Ministry of Economy
Ministry of Finance
Ministry of Planning and
Infrastructure
Ministry of Labour, Solidarity and
Social Security
Ministry of the Presidency and
Administration Modernization
Office of the Prime Minister
This report was co-funded by the European Commission.

5. 5
Timeline Action phase
Which should
be the focus of
the Action
Phase?
Q1 2017 Q2 2017 Q3 2017 Q4 2017 Q2 2018
9-10
Feb.
High-
level
seminar
22-24 March
Fact-finding
and inter-
ministerial
meeting to
map the
system
OECD data and
best practices
KEY INPUTS
30 June
Fact-finding
and
inter-
ministerial
meeting on
recommendat
ions
9-10
November
Stakeholder
Workshop #2
Towards
implementatio
n planning
4 May
Action
Report
Launch
What are key
components, strengths
and weaknesses of the
current system?
What types of
approaches
would work for
Portugal?
What actions need
to be taken, by
whom, when and
how?
Portugal information
and perspectives
9-10 October
Inter-
ministerial
meeting on
recommenda
tions
3-5 May
Stakeholder
Workshop #1
Understanding
the system

6. 6
Drawing upon the insights of stakeholders (1)
Survey on
implementation of
recommendations
Action phase Portugal
findings and
recommendations
Two Skills Action
Stakeholder
Workshops
Best practices
provided by
Qualifica centres
Bilateral interviews
with stakeholders
Three inter-
ministerial working
meetings

7. …
Drawing upon the insights of stakeholders (2)
7

8. WHY THE FOCUS ON ADULT
LEARNING?
8

9. Trends shaping education and skills
GLOBALISATION
DEMOGRAPHIC
CHANGE
TECHNOLOGICAL
CHANGE
9

10. Skills empower countries
and people to…
….thrive in our increasingly
interconnected and rapidly
changing world
Skills are becoming increasingly important
10

11. Tasks
without
use of ICT
Tasks with
use of ICT
Non routine tasks
Routine tasks
Non routine tasks
Routine tasks
Tasks
without
use of ICT
Tasks with
use of ICT
Two effects of digitalisation
11

12. Non routine tasks,
Low use of ICT
Non routine tasks,
High use of ICT
Routine tasks,
Low use of ICT
Routine tasks,
High use of ICT
Non routine tasks,
Low use of ICT
Non routine tasks,
High use of ICT
Routine tasks,
Low use of ICT
Routine tasks,
High use of ICT
(
Two effects of digitalisation
12

13. (
Two effects of digitalisation
13
0%
5%
10%
15%
20%
25%
30%
35%
40%
Level 1 and Below Level 2 Level 3 Level 4-5
Literacy Proficiency in OECD Countries (PIAAC)
Near-term
computer
capabilities

14. 14
An increasing share of jobs requires higher levels
of skills
Job polarisation in the past two decades,
%-point change share of total employment, 1995-2015
Note: See description of method in source below.).
Source: OECD Employment Outlook (2017), Figure 3.A1.1., Job-polarisation by country, http://dx.doi.org/10.1787/888933477940.
-20
-15
-10
-5
0
5
10
15
20
Low skill Middle skill High skill

15. 15
Productivity growth is needed to offset demographic
changes
Source: OECD (2017), Working age population (indicator). doi: 10.1787/d339918b-en (Accessed on 26 July 2017); United Nations
Database, 2017 Revision of World Population Prospects, https://esa.un.org/unpd/wpp/. OECD (2017), Labour force forecast
(indicator). doi: 10.1787/c6d4db79-en
A. Demographic trends in Portugal,
historical and projected
0
10
20
30
40
50
60
70
80
90
100
2000
2005
2010
2015
2020
2025
2030
2035
2040
2045
2050
2055
2060
2065
2070
2075
2080
2085
2090
2095
2100
0
2000
4000
6000
8000
10000
12000
x 1000
15-65 65+ Total population (right)
%
Projected
B. Labour productivity development
(2010=1), 2005-2019
0.9
0.95
1
1.05
1.1
Portugal OECD – average
Projected

16. 16
In Portugal, skills of younger generations are
catching up rapidly
Source: OECD (2017), Reading, mathematics and science performance (PISA) (indicator). doi: 10.1787/79913c69-en
Development PISA-scores 2000-2015, Portugal
450
460
470
480
490
500
510
2003 2006 2009 2012 2015 2000 2003 2006 2009 2012 2015 2006 2009 2012 2015
Math Reading Science
Mean PISA score
Portugal Average

17. 17
But… many Portuguese adults still have low qualifications
Educational attainment of adults (25- to 64-year-olds) in Portugal, 2016
Source: OECD (2018), Adult education level (indicator), http://dx.doi.org/10.1787/36bce3fe-en.
0
10
20
30
40
50
60
70
80
90
100
%
Below upper secondary Upper secondary Tertiary

18. 18
And, many adults already have difficulties to find work
Long-term unemployed (share of unemployed), 2016
Source: OECD (2017), Long-term unemployed (indicator). doi: 10.1787/c3634df7-en (accessed on 27 July 2017).
0
10
20
30
40
50
60
70
80
Korea
Mexico
Canada
Norway
UnitedStates
NewZealand
Sweden
Turkey
Denmark
Australia
Finland
UnitedKingdom
OECD–average
Estonia
Austria
Poland
Switzerland
Japan
Luxembourg
Germany
Latvia
Netherlands
CzechRepublic
France
Hungary
Spain
Belgium
Slovenia
Ireland
Portugal
SlovakRepublic
Italy
Greece
%

19. 4
6
8
10
12
14
16
2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017
%
Portugal EU (28)
19
Adult learning could strengthen the position of
Portuguese adults in the economy and society
Participation rate in adult learning, last 4 weeks,
Portugal and EU average, 2007-2017
Source: Eurostat, EU Labour Force Survey data (2017), Participation rate in education and training (last 4 weeks), trng_lfs_01
High quality adult learning, could
help adults, to:
• Improve current skill levels
• Develop relevant skills for the
future
• Improve their position in the
labour market
• Enhance social and civic
participation
But… participation in adult
learning is lagging behind >>>
15% EU 2020 target

20. 0
5
10
15
20
25
male
female
25to34
35to44
45to54
55to64
Primary
Uppersec
Tertiary
Employed
Unemployed
Inactive
Gender Age Education level Labour status
%
Portugal EU (28)
20
Groups most in need are not participating
Source: Eurostat, EU Labour Force Survey data (2017), Participation rate in education and training (last 4 weeks), trng_lfs_01,
trng_lfs_02, trng_lfs_03, trng_lfs_14, trng_lfs_04, trng_lfs_05, trng_lfs_06, trng_lfs_08b.
Participation rate in adult learning, last 4 weeks, by characteristics in Portugal, 2017

21. HOW CAN PORTUGAL IMPROVE ITS
ADULT LEARNING SYSTEM?
21

22. Overarching recommendation
Develop a coherent adult learning strategy that encompasses
existing and new measures, and is aligned with other key economic
policies.
Key elements:
- identify key skills needed
- Align adult learning with other key
policies
- ensure sustainable financing and
governance arrangements.
A consultative, collaborative process:
- Discuss adult learning policy with key
national consultative bodies
- Engage all political parties to encourage
broad-based support
- Engage national and local public service
administration staff to facilitate
implementation 22

23. 1. Increase awareness about the importance of skills for success
in work and life, especially among the low-skilled population
employers, and increase the motivation to undertake or deliver
adult learning.
3 main priorities identified in action phase
2. Improve access, quality and relevance of adult learning,
including pathways across programs, and monitoring and
evaluation of results.
3. Ensure the effective governance and financing of
the adult learning system
23

24. 1 – INCREASING AWARENESS
24

25. 91.1 86.0
61.0
8.9 14.1
39.0
0
10
20
30
40
50
60
70
80
90
100
2007 2011 2016
%
B. Reasons for not participating
% of 25-64 year-olds who didn't participate
Did not want
Wanted but encountered difficulties
25
Willingness to participate in adult learning in Portugal
18.7
30.6
19.6
7.8
13.7
26.5
67.0
47.5
32.9
6.5 8.1
21.1
0
10
20
30
40
50
60
70
80
90
100
2007 2011 2016
%
A. Will to participate, or participate more,
% of all 25-64 year-olds
already participated and did not want to participate more
already participated but wanted to participate more
did not participate and did not want to participate
did not participate but wanted to participate
Source: Eurostat, Adult Education Survey, 2016, trng_aes_100, trng_aes_195, trng_aes_175.
Willingness to participate in adult learning is improving,
but it remains a challenge
Already
participated
Not yet
participatedNot willing >
Not willing >
Not willing>
Encountered
difficulties>

26. 26
Barriers to participate are often high
Obstacles to participation for individuals willing to participate, 2016
0 10 20 30 40 50 60
Not confident with the idea of going back to something that is like school
No access to a computer or internet (for distance learning)
Lack of prerequisites
Other personal reasons
Health problems or age not adequate for the training
No suitable education or training activity (offer)
Training takes place at a too distant place
Lack of employer's support or public services support
Family responsibilities
Cost too high
Conflict with work schedule or training organised at inconvenient time
%
Portugal EU (available countries)
Source: Eurostat, Adult Education Survey, 2016, trng_aes_176.

27. 27
A large share of the population has limited access to
information on adult learning
Access to information on learning possibilities, 2016
Source: Eurostat, Adult Education Survey, trng_aes_182, trng_aes_183, trng_aes_184, trng_aes_187.
0
5
10
15
20
25
30
35
40
45
50
Greece
Hungary
Poland
Italy
CzechRepublic
Germany
Slovakia
Latvia
Portugal
UnitedKingdom
Spain
Switzerland
Norway
Slovenia
Austria
Luxembourg
Sweden
Netherlands
Finland
%
A. Share of 25-64 year-olds with access to information
on formal and non-formal learning possibilities, 2016
0
10
20
30
40
50
60
70
25to34years
35to44years
45to54years
55to64years
(Pre-)primary,lowersec.
Uppersec.(non-tertiary)
Tertiary
Internet
Family/neighbour,etc
Employer
Careerguidance
Eduinstitution
Massmedia
Books
Age Educational
attainment
Source (2011)
%
B. Share of 25-64 year-olds with access to information by age, education
and source, 2016
Portugal EU (available countries)

28. 28
Increasing awareness – Recommendations
Recommendation 1:
Improve the collection, use and dissemination of information on skill levels
and the returns to skills investments, building on existing tools.
Recommendation 2:
Launch a comprehensive communication and awareness-raising
campaign on value of skills and skills investments, with tailored
approaches for specific groups.
Recommendation 3:
Enhance measures targeted to the public administration and providers
of social services to raise awareness of the value of upskilling for
themselves and their clients.

29. 2 – IMPROVE THE ACCESS, QUALITY
AND RELEVANCE OF ADULT
LEARNING
29

30. 30
Enrolment in adult non-tertiary programmes has
decreased between 2011 and 2016
Total enrolments in non-tertiary programmes targeted at adults
Source: DGEEC, 2012, 2017.
0
20000
40000
60000
80000
100000
120000
2010-2011 2015-2016 2010-2011 2015-2016 2010-2011 2015-2016
EQF 1 or below EQF 2 EQF 3 or 4
EFA Courses Recorrente Track
Recognition, Validation and Certification of Competencies Modular training

31. 31
Initial enrolments in the Qualifica programme are
promising
2011 2012 2013 2014 2015 2016 2017
Number of adult
learning centres (CNO,
CQEP, Centros
Qualifica)
452 424 4 241 241 241 303
Adults participating in
some form of activities
257 971 87 147 776 40 483 58 747 88 321 125 893
Participation in
education and training
65 751 39 279 1 563 15 911 36 318 61 532 68 281
Participation in
recognition of prior
learning (RVCC)
146 372 52 327 515 4 389 12 980 17 548 28 804
Adults receiving a
certification
102 932 75 250 3 400 37 2 658 8 150 10 157
Qualifica Centres began operating in 2017.

32. 32
Adult learning in Portugal is highly complex

33. 33
A systemic view of the adult learning system is
needed
Inputs
Financing model
Governance
Participants
Process
Content & delivery
Quality framework
Outputs
Participation
Completion
Characteristics
Enabling conditions
Political will
Capacity to implement
Awareness of population
General context
Demography
Levels of education
State of economy
System effectiveness
Intermediate outcomes
Skills
Personal qualities
Final outcomes
Economic and social
Individual and society
Need for a balanced system to
- optimise efficiency, and
- maximise effectiveness
System efficiency

34. 34
Monitoring and evaluating the adult learning system
is crucial to optimise performance
Evaluation of adult learning policies in comparative perspective
Share of UNESCO members systematically collecting info and performing substantial analyses on
adult learning and education, with position of Portugal
Source: UNESCO (2016), Third Global Report on Adult Learning and Education: The Impact of Adult Learning and
Education on Health and Well-Being; Employment and the Labour Market; and Social, Civic and Community Life.
0 10 20 30 40 50 60 70 80
new technologies
equity issues
diversity providers
barriers to particip.
quality criteria
learning outcomes
none of above
social outcomes
employment effect
completion rates
qualifications
Since2009,substantial
analysesaboutALE;
Systematicaly
collectinginfoabout
ALE;
Share of countries
Including Portugal Excluding Portugal
< Portugal
< Portugal
< Portugal
< Portugal

35. 35
Improve the access, quality and relevance –
Recommendations
Recommendation 4:
Improve the supply of high quality, relevant and flexible learning
programmes.
Recommendation 5:
Improve pathways and the coherence of the adult learning delivery
network.
Recommendation 6:
Strengthen quality assurance, including by developing a performance
monitoring and evaluation system including a set of key performance
indicators.

36. 3 – ENSURE EFFECTIVE
GOVERNANCE AND FINANCING
36

37. 37
Public governance: closing the gaps
Pillars of executive capacity, 2017
Source: Sustainable Governance indicators (SGI), 2017.
0
1
2
3
4
5
6
7
8
Strategic Capacity
Interministerial Coordination
Evidence-based Instruments
Societal Consultation
Policy Communication
Implementation
Adaptability
Organizational Reform
Portugal OECD – average

38. 38
But funding need to be more effective and
sustainable
Financing adult learning: cost-sharing schemes
Share of EU-countries with certain policies, and indication of which are used in Portugal, 2010-2013
Source: CEDEFOP Financing Adult Learning, http://www.cedefop.europa.eu/FinancingAdultLearning/
0 20 40 60 80 100
saving scheme
grant for individuals/voucher/individual
learning account
tax incentive for individuals
payback clause
training fund
tax incentive for companies
grant for companies
loan
training leave
%
< Portugal
< Portugal
< Portugal
< Portugal

39. 39
Funding needs to support accessibility and quality
Government funding:
• Largely EU-funded
• Peaked in 2010 but decreased
after the crisis
• Spread across many ministries
• Funds programmes, but involves
few incentives and/or
accountability mechanisms to
drive access and quality
Funding from other sources:
• Employers fund 35 hours of training
per employee: 229M in 2015
• Adults pay fees for tertiary
programmes
• Contribution of unions not known
… the funding approach needs to be clearer and redesigned to
encourage accessibility, quality and drive outcomes.

40. 40
Effective governance and financing – Recommendations
Recommendation 7:
Set up dedicated governance bodies for adult skills: a permanent inter-ministerial
team and a permanent group within an existing multi-stakeholder institution.
Recommendation 8:
Develop new or strengthen existing local networks at the municipal level to
address current and future skills needs in line with the economic development
context

41. 41
Effective governance and financing – Recommendations
Recommendation 9:
Establish a stable and quality-oriented funding model through a “skills financing
pact”
Recommendation 10:
Introduce targeted financial incentives for employers (specifically SMEs) and
individuals (specifically disadvantaged groups) to encourage provision and
participation in training.

42. HOW DID STAKEHOLDER INPUT
CONTRIBUTE TO
RECOMMENDATIONS?
42

43. 43
Using stakeholders’ ideas as a key input to develop
recommendations
• GPS of training (occupational
dashboard )
• User-driven digital platform
• Local network for education and
training
• Inter-municipal training plan
Initiatives proposed (4 May workshop)
• Strengthen identification of skills
needs
• Create work-based learning
programme
• Create a lifelong professional
training fund
• System of public-private
financing for lifelong learning
Awareness
and
information
Access and
quality
+
Labour
market
relevance
Financing
Literature
analysis
Data
analysis
Expert
opinion
Taking a
system
approach
Priority
setting
=
11 Recommendations for
adult learning system
Portugal

44. 44
Stakeholders’ views on recommendations; importance,
funding and time to implement
0 20 40 60 80 100
7: Set up dedicated governance bodies for adult
skills
8: Develop or strengthen local networks to address
skills needs
10: Introduce financial incentives to encourage
training
3: Raise awareness of value of upskilling in public
admin. and social services
2: Launch a communication and awareness-raising
campaign
5: Improve pathways and the coherence of the adult
learning delivery network
1: Improve the collection, use and dissemination of
information
9: Establish a funding model through a “skills
financing pact”
4: Improve supply of high quality, relevant, flexible
learning programmes
6: Strengthen quality assurance via performance
monitoring and evaluation
%
Very important or essential Moderately or slightly important Not important
-80 -60 -40 -20 0 20 40 60 80
7: Set up dedicated governance bodies for…
5: Improve pathways and the coherence…
6: Strengthen quality assurance via…
1: Improve the collection, use and…
8: Develop or strengthen local networks to…
2: Launch a communication and…
3: Raise awareness of value of upskilling…
9: Establish a funding model through a…
4: Improve supply of high quality, relevant,…
10: Introduce financial incentives to…
%
% > EUR 100.000 per year % > 2 years
A. Importance of recommendations
Share of respondents in survey
B. Funding and time to implement

45. 45
Stakeholders’ views on conditions for success
Key conditions for success, by percentage of times ranked as top condition
0 5 10 15 20 25 30 35 40
Legislative provisions providing more autonomy to the parties involved in AL
Legislative provisions requiring actions from parties involved in AL
Right skills of national and local staff for implementation
Sufficient funding
Motivation of national and local staff to make it a priority
Clarity about impact and benefits of implementation for all stakeholders
Sufficient political consensus
%

46. 46
For more information
• To access the full report in English, and executive summary in Portuguese, visit:
http://www.oecd.org/skills/nationalskillsstrategies/buildingeffectiveskillsstrategiesatnationalandl
ocallevels.htm.
Full report also accessible on OECD iLibrary: http://www.oecd.org/publications/skills-strategy-
implementation-guidance-for-portugal-9789264298705-en.htm
• Director for Education and Skills:
andreas.schleicher@oecd.org
• To discuss OECD’s work on National Skills Strategy projects:
montserrat.gomendio@oecd.org;
• To learn more about the OECD’s work on skills visit: www.oecd.org/skills/
OBRIGADO!