Transcript Les acteurs

Policy-making in French VET systems:
trends, performance management, challenges
Governance and effective Vocational Education and Training policies: the role
of evidence, Torino, 23-24 Nov 2011
Robert Fouchet, Dean of the Institute of Public Management at the
Paul Cézanne University in Aix-en-Provence (Aix-Marseilles III)
The LOLF* and its local applications
[*Loi organique relative aux lois de finances – Constitutional Bylaw on Budget Acts]
•
•
•
•
Origins of the LOLF
The new budget architecture
Performance management tools
Enhancing transparency
Environment: Users and context
Needs
Objectives
Socio-economic
problems
Resources
Activities
Long-range
effects
(Impacts)
Intermediate
effects
(Results)
Outputs
Organisation: Mission, Programme, Action
Relevance
Efficiency
Effectiveness
3
Usefulness and sustainability
Adapted from Pollitt & Bouckaert, 2004
The Bouckaert & Halligan framework for analysis
Two strands

Inputs
Macro
Depth
Meso
Coverage
Processes
Using
Deliverables
Incorporating
Impacts
Measuring
The stakes of the analysis of depth:
Is monitoring global?
How are hierarchical aspects taken into account?
What is the management dialogue strategy?
The stakes of the analysis of coverage:
Micro
4
What elements are measured?
What dimensions are scrutinised?
What is the time horizon of the analysis?
Which beneficiaries are taken into account?
When is monitoring carried out?
Origins of the LOLF
Quest for more efficient expenditure:




Greater knowledge of content of expenditure
Identification of room for manoeuvre
Transition to a performance management approach
1959 Order => new budget constitution

• Existing commitments
• Justification from the first euro
• Discussion focusing on resources
• Priority given to consumption
• Partitioning and compartmentalisation of
budget according to nature of charges, etc.
• Matrix classification
• Indicators and accountability
• Transparency and parliamentary scrutiny
• Strengthen strategic thinking on public
finances
5
Principles of the LOLF
Performance (quest for more efficient public expenditure) is the
key feature of the LOLF
Article 1
The budget acts take into account a defined economic equilibrium as well as the objectives and
results of the programmes that they determine.
Article 7
A programme covers appropriations for implementing an action or a consistent set of actions
coming under the same ministry and involving both specific objectives, defined in the public
interest, and expected results subject to review.
Article 48
Spring budget policy debate: list of objectives and indicators planned for the following year’s
budget bill.
Article 51
Annual performance plans annexed to the budget bill detailing for each programme:
 the presentation of its actions, associated costs and goals, and results obtained and
expected for coming years measured by a justified choice of accurate indicators.
Article 54
Annual performance reports annexed to the budget review bill:
 explanation of discrepancies between forecasts and actual sums reported in relation to
objectives, expected and actual results, indicators and associated costs.
6
A matrix classification
7
Performance
management tools: accountability
4 Formal presentation to Parliament




Commitments made: annual performance plans (APP),
attached to the budget bill. The APP describes the action
forming the programme, measures the respective costs,
defines the objectives and provides the indicators for
measuring results
Results achieved: annual performance reports (APR),
attached to the budget bill
APP and APR have the same presentation and the same
structure so that forecasts can be compared with actual
results
Vote at first reading on bill n-1 before examining the
budget bill n+1
4 A written formulation of objectives:
– in programme operating budgets (POB) and, where applicable,
operating units (OU)
– in the documents binding operators to ministries
8
Performance management tools:
objectives and indicators
Objectives for citizens, users and taxpayers

Point of view
Objective
Example
Citizen
socio-economic
effectiveness
to reduce smoking
User
quality of service
provided
to reduce the statutory
period for responding
Taxpayer
management
effectiveness
to reduce tax
management costs
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Examples of quality of service
objectives-indicators
Objectives setting out the expected quality of the service provided to users (in the strict sense),
i.e. capacity of the service to satisfy beneficiaries.
Programme
Objectives
Indicators
Legal justice
To deliver decisions in reasonable
time in civil matters
– Average time for processing proceedings by
type of jurisdiction
– Average age of stock by type of jurisdiction
Development, town
planning and public
works
To provide users and local authorities Degree of satisfaction of elected
with a high-quality service in granting representatives in the framework of an
planning permits
evaluation scale identifying specific criteria
for preparing bills for applying rights in land.
Land and maritime
transport
To improve transport infrastructure
upkeep and performance
Rate of availability of rail network (time
required for restoration after incident).
Access and return to
employment
To improve the effectiveness of the
match between supply and demand
for employment, taking the different
needs into account
Proportion of businesses that have been
satisfied overall with the applicants referred
to them by the ANPE [Agence Nationale pour
l’Emploi – National Employment Agency].
Objectives influencing the monitoring of services
Performance objectives stated as operational objectives that
can be monitored by the services
National performance objectives
Performance objectives
limited
to regions
(POB)
to particular fields of application:
networks, mechanisms, etc.
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Intermediate
objectives
activity or output objectives
process objectives or
implementation methods:
measures to improve
organisation, management, etc.
The different types of objectives and indicators
Performance objectives in the production chain
resources
activities
outputs
results
long-range
impacts
Benefit for USERS:
quality of service
Benefit for
TAXPAYERS:
resource management
effectiveness
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Benefit for
CITIZENS:
socio-economic
effectiveness
Other objectives (excluding performance)
in the production chain
Intermediate objectives
Objectives for implementing
courses or forms of action
e.g.: No. of action plans, management
improvement plans, etc.
resources
activities
Volume, consumption,
allocation of resources
objectives
Volume or allocation of
output objectives
e.g.: No. of certificates
issued
Volume or allocation of
activity objectives
e.g.: No. of hours
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outputs
results
long-range
impacts
General objectives:
Socio-economic impacts
depending on many
factors:
e.g.: rate of unemployment
Objectives and indicators in budget
documents
resources
activities
Intermediate objectives
outputs
Performance
objectives
results
long-range
impacts
General
objectives
To justify the
choice of
performance
objectives
POB
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APP
The different types of objectives and indicators
Performance, management monitoring and assessment
Public policy assessment
Management monitoring
resources
activities
outputs
results
quality of service
socio-economic
effectiveness
management
effectiveness
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Performance
measurement
long-range
impacts
Transition from a resource-driven
approach to a result-driven approach
4An iterative approach
– Infra-annual (management
monitoring; management
dialogue)
– Annual (APR)
– CIAP [Comité Interministériel d'Audit
des Programmes] audits, Court of
Auditors audits, inspections,
public policy assessment
Initial diagnosis
Analysis of results
Implementation
Results
Performance-driven
monitoring
Define/redefine
objectives,
indicators, targets,
policy instruments
Formalising of objectives in APP at
national level and POB at operational
level
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Implementation of the LOLF
2003
T3
2004
T4
T1
First milestone:
Construction of platform
• Structuring of missions, programmes,
actions
• 2004 experiments identified
• Accounting framework
• Structuring of budget-accounting
classification
• Guidelines of new implementation
processes
• Communication plans
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2006
2005
T2
T3
T4
T1
Second milestone:
Prefiguring
• Presentation of appropriations in
LOLF format
• Performance objectives and indicators
• Ministerial formulation of budgetaccounts classification
• Appraisal and development of
experiments
• Accounting procedures
• Training plans
T2
T3
T4
T1
Third milestone:
Implementation
• 2006 budget in LOLF format
• Breakdown and job monitoring
arrangements
• New management and organisation
methods
• Opening balance
• Stakeholders trained for the new budget
implementation process and new accounting
Summary: changes brought about by the LOLF
The LOLF removes obstacles
Limits of Order 59
Budgetisation by type of expenditure
·
Answers provided by th e LOLF
Budgetisation by purpose of expenditure
Lack of visibility of resources
·
Missions, programmes, actions
allocated to a policy
·
Cost analysis
Renewal of stock (existing
Abolition of existing commitments
commitments)
·
·
·
Lack of genuine consideration of
Introduction of APP and APR
the effectiveness and relevance of
·
Strategic beneficiary-centred approach
expenditure
·
Measuring and recording of results
Little consideration of purposes and ·
strategy
·
Justification from the first euro
Explanation of discrepancies between actual
results and forecasts
Lack of feedback
Debate focusing on variation in
Debate focusing on objectives and results as much
resources (new measures)
as on resources
·
Inflationary approach of ever-
·
increasing resources
Consideration given to expenditure
effectiveness
Compartmentalisation of budget
Globalisation of budget authorisation by policy
authorisation
(programmes)
·
Little room for manoeuvre for
·
Asymmetric fungibility
manager
·
The nature of expenditure strand becomes
indicative
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Lifelong vocational training and guidance
policies
A decentralised view
Lisbon Strategy
Bologna Process
 Law 29/11/11 on lifelong vocational
training and guidance
 LOLF
 Contrat de plan régional de
développement des formations
professionnelles (CPRDFP) [Regional
Vocational Development Plan Contract]
 Annual agreements for applying the
CPRDFP
State
 Parliament
 Prime Minister
 Information and guidance
representative
 Ministries
 Conseil National de la
Formation Professionnelle tout
au long de la vie (CNFPTLV)
[National Council for Lifelong
Vocational Training]
 Fonds paritaire de sécurisation
des parcours professionnels
[Joint Fund for Rendering
Career Paths Secure]
 Association nationale pour la
formation professionnelle des
adultes (AFPA) [National
Association for Adult
Vocational Training]
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Regional level
Regional Council
Regional Director
Decentralised Administrations
Education Offices
Comité de Coordination Régional de l’Emploi
et de la Formation Professionnelle (CCREFP)
[Regional Coordinating Committee for
Employment and Vocational Training]
 CESR [Conseil économique et social de la
région – Regional Economic and Social
Committee]
 Employee and employer representatives





Citizens, operators, administrations,
businesses, universities
Context and aims of the new vocational
training and guidance system
Context
Gradual enlargement of target audiences of
vocational training policies
Young
people from 16-25 years of age (Law of 20
December 1993)
Anyone who wishes to acquire and update knowledge to
further their vocational development
Recognition in law of a lifelong public
guidance service
Further decentralisation of powers at regional
level
2002:
all target audiences, transfer to the region of matters
connected to the validation of prior learning
2004: transmission of health and social training,
vocationally-oriented training in artistic and cultural fields
Signature of CPRDFP in 2011
New
means of involvement connected to the BTS [Brevet
de Technicien Supérieur – Advanced Vocational Training
Certificate], secondary school technology pathways,
vocationally-oriented training in SE
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New aims of national and local
policies
Law of 29 Nov 2009

A new ‘public lifelong guidance service to
guarantee all persons access to free, full and
objective information on occupations,
training, certification, job opportunities and
remuneration levels, as well as access to highquality, networked and personalised guidance
services’
Creation of the Conseil National de la
Formation professionnelle tout au long de
la vie (CNFPTLV) [National Council for
Lifelong Vocational Training]:
Mission:
‘to promote nationwide dialogue
between the State, the regions, the social
partners and other stakeholders to define the
multiannual guidelines and annual priorities for
initial and continuing vocational training
policies, and to design and monitor the
implementation of such policies’
Context and aims of the new vocational
training and guidance system
Principal guidelines of the 2011 CNFPTLV:
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
1. To take account of regional needs, the economic context, the labour market, economic and
social change, and the development of occupations and qualifications

2. To propose the provision of a coherent and coordinated lifelong information and
guidance service

3. To provide universal access to a first level of qualification

4. To develop 0n-the-job training and apprenticeships

5. To safeguard career paths

6. To ensure greater clarity in training provision, which must be adapted to requirements

7. To ensure better coordination of vocational training policies

8. To develop expertise and observation tools for use by decision-makers
Drafting of CPRDFP at regional level:
Provence-Alpes-Côte d’Azur
Functioning
– Quarterly meetings
– Discuss and act upon
committee proposals
– Monitor CPRDFP
implementation
– Ensure links with Job
Centres and the AFPA
[Association nationale pour la
formation professionnelle des
adultes – National Adult
Vocational Training
Association]
Mandate
CCREFP
The opportunity to innovate: ‘We
believe that the objectives of the
Law on Lifelong Vocational Training
and Guidance of 24 November
2009 fall well below the
expectations of vocational training
stakeholders. This is why we are
going to adopt a more ambitious
approach that brings the social
partners together.’ (CR Chairman)
Organisation:
Cabinet
Semaphores
Other
invited
bodies
Implementation:
‘This will be […] a compartmentalised
CPRDFP, with different contracts
according to the partners, [it] will be
a living document, a true programming
document, with specific financial
commitments for each signatory.
Those who can commit will sign
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it’
Operators:
– administrations,
agencies, universities,
training and support
bodies, etc.
5 Committees
– Experts –
– Prefect, Directors of
Education, Regional
Directors
– Regional Council
Chairman, Vice-Chairman
responsible for VT
– Employer
organisations and
chambers of commerce
– Representatives
of employee
organisations
– Chairman of the
CESR [Conseil
économique et social
de la région –
Regional Economic
and Social
Committee]
Matters addressed
Vocational paths and continuity,
employment and regional economic
development: training, social and economic
investment
Reception service, information, guidance, support and advice:
help people to obtain vocational qualifications for sustainable
employment
…
…
…
General observations on the formulation and
implementation of lifelong vocational training and
guidance policies
Sources: CNFPTLV, CCREFP
Diagnosis
Rhône-Alpes, CCREFP PACA
– Often unquantified elements that can
Formulation
easily be transposed
to other French
–
Continuous
development of national
regions
priorities and lawDecision-making
– A process carried out as a matter of
– Data sometimes old (chosen because
urgency and increase
Implementation
Further decentralisation
they are available),– in-depth
analysis
in number
of forums in an already Poor feedback at this point at this time
often being relegated
to target-based
– Authorities’ role sometimes
crowded
landscape
agreements after the
CPRDFP
has been
insufficiently defined
– Stakeholders’ involvement
in the
Monitoring
signed
CPRDFP is not examined
as a legallyof the stakes and
+ Better integration of local context and
– The complexity
–
Inconsistent
political
and
institutional
certain contractualfunding
commitment
uptake
of innovations
mechanisms raise real challenges
– Diagnostic processes
without
using
a in policy
support,
making
it
difficult
to
match
implementation
in defining, calculating and monitoring
methodical forward-looking
approach
vocational training +
paths
and
levels
with
Diversity of operators
makes
it difficult
indicators.
This
dimension of the
employment
and
skills
needs
to apply objectivesCPRDFP
and to formalise
+ Dialogue
highlighting
must be professionalised.
– Involvement of reliable
institutions
in needs and
agreements in the framework of the
knowledge
at
grassroots
level
the diagnostic stage (Observatoire + Mainstreaming: coordination between
CPRDFP
– Difficult financial commitments in
Régional des Métiers [Regional Labour
sectoral
approaches
and
vocational
– Lack
of work
by Pôle Emploi [public
multiannual projects in the context of
Market Observatory],
CARIF
Espace
sectors,
regional
approaches
and
analysis
– Unequal attention
paid to‘rules’.
output
employment
service] and university vicechanging
Compétences [public
interest group])
in
terms
of
target
audiences
and
training
development, monitoring and evaluation
chancellors
and work integration paths
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– Diversity of parties and complexity of
stakes involved, making it difficult to
define objectives that can be put into
operation
Professionalisation in the French higher education
system after the Bologna reforms:
expectations and reality
•
•
European professionalisation and commitments
Contracting training provision in France: the four-year contract (principles,
processes)
•
Expectations and reality of the process in terms of professionalisation
•
Expectations and reality of indicators of professionalisation
Professionalisation in higher education since
Bologna
Bologna, 1999

A system of easily readable
and comparable
degrees which includes the
introduction of a joint diploma
supplement to enhance
transparency;

A system essentially based
on two cycles: a first cycle of at
least three years, which is
advantageous to the labour
market, and a second cycle
(Master’s) requiring completion
of the first cycle;
26
Leuven, 2009 (Bologna in 2020)

Employability – the parties involved must
cooperate to raise initial qualifications and renew
a skilled workforce, and to improve the provision,
accessibility and quality of careers and
employment-related guidance services. In
addition, work placements embedded in study
programmes and on-the-job learning must be
encouraged;

Improve data collection: create multidimensional transparency tools. These tools
should be based on comparable data and
adequate indicators and should incorporate the
principles of the Bologna Process relating to
quality assurance and recognition;
Ministry/universities contracting process:
four-year training

Accreditation of national degrees by the Ministry on the
proposal of universities:




General degrees
Vocational degrees
Master’s degrees
Role of the AERES [Agence d’évaluation de la recherche et de
l’enseignement supérieur – Research and Higher Education
Quality Assurance Agency] as a quality assurance agency

Authorisation in waves on four-year contracts, then fiveor even six-year contracts
27
Ministry/universities contracting process:
four-year training

Process:
 Negotiation of training provision (preliminary descriptors, set-up descriptors,
self-test: SWOT, intra-university independent assessment, RNCP [Répertoire
national de certifications professionnelles – National Register of Vocational
Qualifications] descriptors, annexes describing degree)
 Vote in component boards
 Vote in CEVU [Conseil d’Etudes et de la Vie Universitaire – Advisory Board for
University Life and Studies] then in CA [Conseil académique – Academic Council]
 Referral to AERES
 Return of assessments to training providers (A+, A, B, C)
 Responses to AERES with or without changes to accreditation files
 Forwarding to DGES-IP
 DGES-IP opinion and notes (favourable/unfavourable, reservations,
recommendations)
 Responses of training providers with or without changes
 Universities/Ministry negotiation
 Authorised training provision.
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Four-year training and professionalisation
Hopes

Length of contract:


Realities


Bringing into line with
labour market realities
Quality assurance thanks
to accreditation
procedures
Too short/too long:

A very long process (2 years):






29
four years (assessment after less than
two years) or six years (time to
respond).
January 2010: launch
15 October 2010: forwarding to Ministry
April 2011: AERES opinion
October 2011: DGESIP opinion
December 2011: accreditation
Indicators of professionalisation not
highly valued in the accreditation file:
multiplicity of other indicators: staff,
attractiveness, costs of tutorial equivalent
hours, part of subject/crosscutting
education (degree)
Four-year training: indicators of professionalisation
The reality of
professionalisation
Indicators used

Occupation codes:



RNCP: ROME [Répertoire opérationnel des
métiers et des emplois – Register of
Occupations and Trades] codes
Nomenclature spécialités de formation: NSF
[training classification]
Subjects sector codes: SISE-DGESIP




Employment integration figures:


National survey 30 months after obtaining a
Master’s.
Upskilling advice with professionals
30


Realities of the working world
becoming more complex and changing
Sectoral and subject approaches illsuited to the realities of the working
world
Unrepresentative method (number of
respondents by specialism, lack of
information on the match between training
and occupations)
Internal surveys not well developed or
difficult to compare (different methods)
Not well developed (except for IUT
[University Institutes of Technology], Licences
pro [vocational degrees], apprenticeship and
some components/training)