Ulrike Benzer, Ralph Conrads, Laura Roser, Maryam Shariat-Razavi … Social Self... · 2019-03-24 · 2/3 of immigrants have obtained their qualifications abroad immigrants with foreign

Ulrike Benzer, Ralph Conrads, Laura Roser, Maryam Shariat-Razavi

Assessment and Recognition of Foreign

Qualifications –

a cross-country comparison

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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

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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…

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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)

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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

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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

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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.

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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).

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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

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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

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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

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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 .


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)


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


Possibility to have prior learning recognised? – Yes (Validation des acquis de l’expérience, about 10% of participants)


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



Systematic information about bridging offers? – / Type and components of bridging programmes? –


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)



Regulated occupations? – No employer involvement




Bilateral agreements with Quebec/Canada, Germany, Italy and Poland



Agreements with universities or schools


Fee Recognition? – Yes. 70 Euro.


Fee RPL?: EUR 300 - EUR 2 000 (typically EUR 1 000 for an ISCED-5 level diploma (“licence”))

France

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Legal right? – Yes (but not signed Lisbon Convention on the Recognition of Qualifications). Limitation: No, covers all migrants with a legal status


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


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


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)



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



Systematic information about bridging offers? – Type and components of bridging programmes? –


Alternative assessment methods for applicants without (full) documentation? – No

Languages in which applications are accepted for recognition? – Greek



Regulated occupations? – Yes, active involvement via trial periods / supervision of practice




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)


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


Fee RPL?: EUR 50 per certification examination (total costs for RPL may be higher depending on professional area and organisations involved).

Greece

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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


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)


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


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


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


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


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


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

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Bilateral agreements with Austria, France and Switzerland



Convention on the recognition of studies, diplomas and degrees of Higher Education in the Arab and European states in the Mediterranean


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

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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.

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Paris,

http://dx.doi.org/10.1787/9789264251236-en.

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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.

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Migrants, International Organisation for Migration (IOM), Brussels.

http://libserver.cedefop.europa.eu/vetelib/2014/87250.pdf

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Prof. Dr. Ralph ConradsProfessor for labour market [email protected] | 0621 4209-236

University of Applied Labour Studies (HdBA)

Thank you!