Future-oriented Dual Vocational Qualification in Armenia, Azerbaijan and GeorgiaThe Potential for Dual Vocational Education and Training in Georgia

Implemented by:

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Future-oriented Dual Vocational Qualification in Armenia, Azerbaijan and GeorgiaThe Potential for Dual Vocational Education and Training in Georgia

Elaborated by:Saba Sarishvili and George Chanturia, national expertsSonja Andjelkovic, Stefan Wolf, international expertsJochem Theis, GIZ Country Component Manager Private Sector Development Georgia

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Contents

Executive summary .................................................................................................................................................................................... 6

Abbreviations ................................................................................................................................................................................................ 8

1. Background and methodology.......................................................................................................................................................... 9

2. Dual vocational education and training ................................................................................................................................... 9

3. Analysis of VET legal and institutional framework and setup ..............................................................................12

3.1. Systemic-institutional order of VET provision ............................................................................... 12

3.1.1 Legal framework .......................................................................................................................... 12The VET law ................................................................................................................................ 12The VET development strategy of Georgia ....................................................................................13The national VET council .............................................................................................................14

3.1.2 Institutional framework and reforms ............................................................................................14Authorisation .................................................................................................................................16Accreditation .................................................................................................................................17Mobility of students from VET to universities ..............................................................................17Policies at stakeholder level ............................................................................................................17

3.2. Impact of social security systems and labour law on the VET system .............................................18

3.3. Key challenges for introducing dual education in the VET system .................................................19

3.4. Ongoing reform initiatives for introducing dual education in the VET system ..............................19

4. Opportunities for implementing dual vocational training programmes .......................................................... 20

4.1. Institutional and policy level .......................................................................................................... 20

4.2. Company level ............................................................................................................................... 20

4.3. Wider community level ..................................................................................................................21

5. Potential for dual VET programmes in the wine sector .............................................................................................21

5.1. Activities implemented to strengthen VET in Georgia’s wine sector .............................................. 22

6. Potential for dual VET programmes in the tourism sector ......................................................................................24

7. Potential for dual VET programmes in the construction sector .......................................................................... 26

8. Conclusions and the way forward ............................................................................................................................................. 28

9. References ................................................................................................................................................................................................. 29

Annex. Partner mapping TVET sector in Georgia ............................................................................................................... 31

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Executive summary

This paper carries out an assessment of the current state of affairs in Georgia’s VET system, the legal and institutional framework, and the ongoing reform and technical support efforts. It zooms in on three sectors – wine, tourism, and construction – identifying in-demand skills, current VET arrangements and emerging dual VET approaches, strengths and bottlenecks as well as highlighting good practices that can be scaled up. The aim is to provide an overview of the challenges and oppor-tunities for developing policies, partnerships, and collabora-tions that can help anchor dual VET approaches in the cur-rent system. It specifically emphasises the potential and mech-anisms for mobilizing private sector participation in VET.

BackgroundThe traditional VET system has repeatedly been evaluated as overly school-based and theoretical. Education institutions are constrained by poor infrastructure, weak financing, low quality of teacher instruction, and by weak capacity to engage with the private sector. There is a clear mindset disconnect between companies and VET schools: education institutions find that companies are obliged to cooperate with them, while some companies are overly focused on the short-term bottom line and overlook the multiplied added value of cooperat-ing with VET institutions. Vocational education has a poor image, seen as providing a low-grade, insecure career, and many Georgians are not aware of the ongoing reform efforts. Looking at the institutional framework, effective social part-nerships, opportunities for student mobility from VET into university education, and gaps in key legislation (VAT Law, Labour Code, relevant by-laws) need to be addressed.After signing the EU Association Agreement in 2014, the Georgian Government initiated unprecedented reforms in the education sector. The reforms focus on improving the legal and institutional systems as well as coordinating dialogue mechanisms among all stakeholders – government, private sector and other non-governmental institutions. The goal is to improve employability and economic development by mobi-lizing the private sector to take on a leading role in vocational education. Specifically, recent reform plans stress the German VET model as a guiding example. While Georgia’s VET sys-tem was not designed for dual VET programmes, the sector examples reveal the growing potential for the introduction of dual elements in VET.

Focus sectorsDual practices can enhance Georgia’s vocational education and training, and certain sectors, particularly wine, con-struction, and tourism, are already implementing VET pro-grammes with dual elements. The good practices from these sectors provide examples how to foster a culture of collabora-tion and trust between VET institutions, private companies, and government.

The priority in-demand skills in the wine sector include technical staff capacity for grape growing and wine-making, operation and maintenance of modern equipment, viticulture support, high-quality grape and organic farming practices, and the manufacturing of inputs and material supplies (glass bot-tles, corks stoppers, Qvevri vessels etc.). Private companies are acutely aware that better qualified staff can improve the sus-tainability and profitability of their operations. In response, bigger companies are utilizing in-house training facilities to equip their staff with the necessary skills. These enterprises can be motivated to participate in dual VET, provided they have an active role in VET programme design and implemen-tation. In November 2016 the first fully dual VET programme launched in Georgia, supported by GIZ. This fifth level mod-ular VET programme in viticulture and wine-making brings together seven companies and two colleges. The methodology and products (such as contracts, definition of learning out-comes) and practices can serve as orientation for scaling up efforts in other sectors.

In the tourism sector VET programmes prepare students for careers in several professions, including hotel administra-tors, guides, cooks, restaurant administrators, management personnel, service personnel and tour operators. While large international hotel chains hold in-house trainings, medium and small-size companies need more support to become involved in VET programmes. The combined effort would make a sig-nificant contribution to creating a pool of capable, trained staff for the entire sector. Especially small operators (including guest houses, hotels, and restaurants) need to work on improving ser-vice delivery and on realising the untapped potential in alter-native products (like agro-tourism, traditional arts and crafts). Pilot initiatives with VET schools show promising results in addressing these needs. A large potential for dual VET pro-grammes exists for professions that are not exclusively tourism-related (e.g. facility maintenance and basic business skills, like

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budgeting and marketing). Additional partnerships between schools and companies can boost innovation in the sector by fostering mutual learning arrangements, especially through locally embedded networks.

In the construction sector many professional trainings can be adapted to a dual approach: carpenter; bricklayer; pipe, can-alisation, rail and road builders; welders and numerous others. The sector is booming and competition is intensifying on the Georgian market, as large international corporations develop local projects. The internationalised business environment and the drive toward large, more technically complex projects, have underscored the challenges companies face in finding skilled personnel. Georgian education institutions provide a wide range of VET programmes, some including dual elements. The construction sector embraces dual elements in VET faster than other sectors, but no fully dual VET programme exists to date. A number of German companies that manufacture and trade construction materials are engaging in nascent coop-eration with VET colleges, including training programmes for drywall makers, painters, electricians, electric welders, and other specialisations. These practices are good examples of multi-stakeholder collaboration that can be scaled up to other sectors.

Common needs and challenges The assessment of the potential for dual education pro-grammes in Georgia revealed several common priority needs in all three sectors. Irrespective of sector or professional spe-cialisation, the overarching legal and institutional frame-work leaves considerable room for improvement, in order to accommodate dual education programmes (e.g. the develop-ment of quality assurance for dual VET programmes). Other key issues include the documentation and communication of results; support mechanisms for colleges, companies, and other training providers in adapting VET programmes; the underdeveloped role of business membership organisations in providing VET-related services; match-making between companies and colleges as well as institutionalising the dia-logue between the private sector and VET institutions, nec-essary for developing demand-oriented vocational education programmes.

RecommendationsThe analysis identified several areas for recommended prior-ity actions to accelerate the introduction of fully dual VET programmes in Georgia: documenting and scaling up exist-ing practices; documenting and communicating the costs and benefits of dual VET programmes for enterprises, stu-dents, and colleges; supporting SME participation in VET programmes; continuing the reform of the institutional and legal environment (organizational competence and responsi-bilities, private sector participation, quality assurance, social protection mechanism for students, institutionalised partner-ships); strengthening the role of business membership organi-sations as a coordinating and mobilising actor.

Making progress on the identified issues and opportunities hinges on parallel actions by all the involved actors. A strong private sector needs to be enabled to effectively voice its needs and priorities. Companies also need to commit their own resources. Since 2010, and especially from 2014 onwards, the Georgian state has significantly intensified its efforts to facil-itate innovative VET programmes, as reflected by ongoing legal and policy reforms. These processes need to be further strengthened and streamlined. VET institutions are begin-ning to engage in structured communication and collabora-tion with companies, a practice that should be fostered and expanded to additional institutions and other sectors. Public awareness for the importance of skilled labour and the bene-fits of vocational education as a career track is improving, but a much more consolidated effort, especially by the relevant government institutions and business associations, is needed to popularize dual VET with both students and companies.In order to maintain this level of commitment and to elevate existing dual VET programmes to a scalable level, private sec-tor participation in VET programme design and implementa-tion needs to be significantly strengthened through expanded coordination mechanisms, financial and non-financial incen-tives, and additional dual VET programmes across multiple sectors.

It should be emphasized that there is no blueprint for adopt-ing a dual vocational training system in Georgia. Each coun-try has unique cultural, economic and social conditions that need to be taken into consideration. Also, dual education is not suitable for all professions. Many countries rely on “mixed systems”, combining different kinds of work-based learning, including both school-based vocational training courses and dual education programmes. While international good prac-tices and experience can provide valuable inputs, it is up to all key stakeholders in Georgia (private sector companies and associations, VET institutions, government, student and com-munity organizations) to engage in an open dialogue, clarify-ing the specific needs of each stakeholder and developing VET programmes that meet these needs.

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Abbreviations

BMZ Bundesministerium für wirtschaftliche Zusammenarbeit und Entwicklung (German Federal Ministry for Economic Cooperation and Development)

CIT Corporate Income TaxEU European UnionEQF European Qualification FrameworkETF European Training FoundationGEA Georgian Employers AssociationGIZ Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbHLEPL Legal Entity of Public LawLMIS Labour Market Information SystemLWG Bavarian State Institute for Viticulture and HorticultureMLHSA Ministry of Labour, Health and Social Affairs of GeorgiaMoES Ministry of Education and Science of GeorgiaMoU Memorandum of UnderstandingNCEQE National Centre for Educational Quality EnhancementNTPDC National Teachers Professional Development CenterNQF National Qualifications FrameworkNVETC National Vocational Education and Training CouncilOSH Occupational Safety and Health OS Occupational StandardsQAF Quality Assurance FrameworkSC Sector CouncilSMEs Small and Medium EnterprisesTWG Thematic Working GroupVAT Value-added TaxVET Vocational Education and TrainingWBL Work-based Learning

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1. Background and methodology

After signing the EU association agreement in 2014, the Geor-gian Government initiated unprecedented reforms in the educa-tion sector. In response to the assessment of its Vocational Educa-tion Training (VET) system as overly school-based and theoreti-cal, the new strategies and policies aim to introduce additional practical learning opportunities into vocational training. The reforms focus on improving the legal and institutional system as well as coordinating dialogue mechanisms among all stakehold-ers (government, private sector and non-governmental institu-tions) with the purpose of mobilising the private sector to take on a leading role in vocational education (Erkomaishvili, 2014). Specifically, the new four-pillar government reform stresses the importance of the German VET model:1

The Prime Minister of Georgia drew attention to the gov-ernment's four-point reform plan of the education system, which provides for the introduction of the German model in professional education. According to him, the German dual model is an approach for sustainable economic devel-opment and enhanced employment opportunities for gradu-ates, which are important objectives for Georgia. The expec-tation was expressed, that an education system based on partnership among the state and private sector will provide better qualified and more competitive professionals as well as additional employment opportunities.2

In order to introduce dual education programmes in Georgia, the most feasible approach would follow a step-by-step process of improving the current VET system by introducing elements

of dual education. This paper, commissioned by the German Federal Ministry for Economic Cooperation and Development (BMZ), examines the potential for involving the private sector in the current VET system in the wine, tourism, and construc-tion sectors, by analysing the current system and by identifying options for scaling up good practices. It also seeks to highlight relevant policymaking priority areas for innovative approaches to VET programmes.

Often the mainstream perspective on VET looks only at legal and infrastructural frameworks and VET’s role in human capital development. This analysis will expand this scope by also taking into account the socio-cultural environment in which the VET system is embedded, with the underlying assump-tion that a VET system is closely interrelated with cultural and social dynamics. By carefully considering these dimensions, promising action areas for workable innovation and reform in Georgia can be identified and assessed.

The research methodology utilised both qualitative and quantitative tools, specifically (1) meetings with relevant stakeholders, such as government and private sector repre-sentatives, experts, VET practitioners; and (2) desk research, including a range of studies conducted by national and inter-national organisations and development partners. Key con-tributing authors include Sonja Andjelkovic, Saba Sarishvili, Giorgi Chanturia, and others.

1 Government of Georgia, Prime Minister discussed four-pillar reform plan with representatives of business association (2016).2 Government of Georgia, Minister of Education and Science, Meeting with the Federal Minister of Education and Research (2016).3 ETF, Work-Based Learning: Benefits and Obstacles (2013).

2. Dual vocational education and training

In order to understand the concept behind the dual system, it is important to outline the different terms and concepts related to the practical part of vocational education. Often work-based learning (WBL) and dual vocational education and training (VET) are used interchangeably. WBL is the general term for practical vocational training, with the specifics of the systems

varying from country to country. The idea of WBL is derived from a perceived need to provide students with practical expe-rience and exposure to real-life work processes, as the first step into the labour market. Countries that implement WBL pro-grammes report higher productivity and employment figures than those that do not.3

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4 European Commission, Work-Based Learning in Europe, Practices and Policy Pointers (2013).5 Dehnbostel, Peter; Lindemann, Hans Jurgen, Core principles and corner points of dual vocational training system in international vocational training (2014).6 Federal Ministry of Education and Research, Dual Training at a Glance (no year).

Figure 1: Dual training programmes in Germany6

A prominent WBL approach is the ‘dual education’ or ‘dual system’, as applied in Germany. This dual system (also called apprenticeship) is based on integration of companies, as train-ing providers, with VET schools or other training institutes. Learners in the dual system typically spend a significant part of their education in the company and less time in the training institute. The training school provides them with general and occupation-related knowledge as well as complementary prac-tical skills. The apprentice is linked to the company through a contract and receives a wage or allowance for his work. Regula-tory mechanisms, managed through social partnership institu-tions, ensure the quality of the company-based training.

In contrast to the dual system, on-the-job training periods are the second most common WBL approach, typically cover-ing internships, work placements or traineeships, which aim to bridge the transition from school to full employment.

A third type of WBL covers school-based programmes that aim to simulate entrepreneurial and industry projects. In this WBL model VET schools take full responsibility for admin-istering and ensuring the quality of practical learning com-ponents.4

Dual education systems are distinguished by the following principles and key elements5:

Core principles � Cooperation between state and social partners – shared

responsibility is a key aspect. � Learning while working – developing professional, social

and personal skills through combined learning in real-life work situations and in education institutions.

� Permeability and equivalence – the opportunity to transi-tion between different education levels.

� Socially accepted national standards – standards create transparency in the education and labour markets, enable further development of qualifications, and provide trans-parency and equal opportunities in the education and voca-tional education system.

� Qualified vocational training staff. � Labour market analysis.

Essential elements � National and sectorial qualification frameworks, � Education management and assessment (training

evaluation), � In-company vocational education, � Vocational decision-making competence and identification

of competences,

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� Places, forms and concepts of learning, � Validation of informal and non-formal learning, � Resource efficiency and sustainability, � Quality assurance and quality development, � Joint financing of vocational education.

While the paragraphs above provide an overview of key aspects, they do not outline a blueprint for the application of dual edu-cation in every context. Approaches to dual education vary greatly across countries and different professions. For exam-ple, Germany uses different mechanisms for company involve-ment or for coordinating the trainings. It should also be noted that in Germany not all professionals are trained using dual approaches. Some VET programmes are fully school-based, while others involve different forms of work-based learning (such as laboratories at the school).

Looking at the Georgian example, one can argue that the above-mentioned principles and key elements are not yet fully represented. The currently ongoing major reforms are steps to improve the regulatory environment. Moreover, some VET pro-grammes are already applying dual elements in their curricu-lum. While the majority of VET programmes are still fully school-based, some programmes already include dual elements.

Figure 2: Youth employment rates in Europe (red columns indicate countries with dual WBL)7

7 Federal Ministry of Science, Research Science and Economy, Dual Vocational Education and Training, A Building Block to Foster Economic Growth, Working Paper, Round Table Ministers of Economy (2015).

They show potential for scaling up in other professions or other sectors. In the wine sector Georgia’s first fully dual education programme has recently been authorised and may serve as ori-entation for other professions.

70,0

60,0

50,0

40,0

30,0

20,0

10,0

0,0

Switz

erland

Netherland

s

Austria

Unite

d King

dom

Germ

anyMa

lta

Swed

en

Finlan

d

Turkey

Estonia

Europe

an Unio

n (28)

Latvia

Euro Area (19

)

Ireland

Fran

ce

Lithua

nia

Czech Re

public

Sloven

ia

Cyprus

Poland

Hung

ary

Belgium

Roman

ia

Portu

gal

Slovak

ia

Bulgaria

Luxembo

urg

Croa

tiaSp

ain Italy

Greece

Denm

ark

Employment rate of 15 - 24 year old 2014Source: Eurostat 2015

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Enterprises � Have a say in whom they employ and train. � Apprenticeships can serve as a way to recruit skilled workers in the future. � Participate in programmes in a cost-neutral way or even gain financial benefits under wage

and financing arrangements (these advantages are supported by ex-post studies in Germany and Switzerland as well as by a recent ex-ante simulation study in Spain, which suggests that dual VET can also be profitable for companies in countries without a long tradition in the dual system).8

� Apprentices can provide productive work inputs for the company during the training period.

Social Partners � Have a greater say in the content, quality and ongoing management of VET. � Have a say in the design of the training, both in the workplace and in the classroom.

Education Institutions � Vocational education programmes are more finely tuned to the demands of the workplace. � Programmes can strike a good balance between theory and practice, thus improving student

motivation and engagement. � Teachers have closer contacts with workers and enterprises. � The cost of training equipment is lower.

Governments � Better school-to-work outcomes are achieved and youth unemployment is lowered. � Improved balance between supply and demand for specific skills, which reduces the risk of skill

mismatches on the labour market. � Costs are shared in a more effective way between governments, enterprises and individuals.

Individuals � Gain skills and qualifications for in-demand occupations. � A much smoother transition into fulltime work. � Can develop high-level vocational competence.

8 The Institute for Public Policy Research, European Case Study, Cooperation in Action: the Dual Vocational Training System in Germany (2016).9 ETF, Work-based Learning, A Handbook for Policy Makers and Social Partners in ETF Partner Countries (2014).10 See chapter two for the definition of dual education and work-based learning.11 The law was approved in 2007 and amended in 2010.

Box 1: Advantages of dual education according to the European Training Foundation (ETF)9

3. Analysis of VET legal and institutional framework and setup

The following section outlines the overall framework of Geor-gia’s VET system, focusing on the most relevant aspects for dual VET programmes. WBL is used as a term for introducing the concept at the legal and systemic level, highlighting the poten-tial for dual VET programmes as a specific type of WBL.10

3.1. Systemic-institutional order of VET provision

3.1.1 Legal framework

The VET lawThe reform of Georgia’s VET system, ongoing since 2005, has focused on a series of legal and strategic documents. The overall aim is a convergence of the Georgia’s education regulatory envi-

ronment with European standards, and European approaches are directly reflected in the reformed laws and regulations of the Georgian vocational education system.

The VET Law11 (Ministry of Education and Science – MoES, 2007/2010) identifies a number of initiatives as priorities for development of the VET system in Georgia: � Increasing its relevance to the labour market; � Providing skilled personnel to meet local and international

labour market needs; � Ensuring access to lifelong education for all citizens; � Increasing the autonomy of education institutions; � Providing a framework to ensure the quality of vocational

education, both in terms of skills and employability12 poten-tial as well as the integration of Georgian VET into Euro-pean approaches.

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The Law sets a policy context for work-based learning (WBL) in VET in Georgia. According to the Law, a vocational edu-cational programme is a programme consisting of a theoreti-cal part, school-based practice and/or company-based practice. While the term WBL does not distinguish between the two types of practice, it is included in the legislative framework. Although the Law lays down the principal framework, it does not address several key aspects: the role of the state, VET insti-tutions and other stakeholders in WBL, the process of authori-sation and accreditation of companies for WBL, the status of in-company trainers and students, and the financing of WBL. In 2014 the Ministry of Education and Science (MoES) initi-ated the development of the new VET Law, which will place a greater emphasis on WBL and provide MoES with a clear mandate to regulate all above-mentioned key aspects through by-laws.13 Despite this important change, several gaps will need to be tackled through amendments to the Law14 in order to support the introduction of specific WBL models, in particu-lar dual education.

There is a need to enhance the flexibility of vocational edu-cation, in terms of different approaches and forms of training and teaching, in order to prepare the ground for a more cus-tomised VET system. For example, dual education programmes require flexibility in the share of practical training or the pro-gramme’s duration. The proposed amendments to the VET Law leave space for such flexibility. They also recognise the importance of the transition from school to working life. The MoES also promotes the set-up of a career guidance system as a supporting mechanism for the students.

Articles 35 and 12 target companies and their roles and responsibilities in VET, offering incentives, such as tax exemp-tions for salaries paid to students, as well as the possibility of co-financing through distribution of vouchers. Companies would have the opportunity to become engaged in assessment of students, which will certainly enhance the quality of VET as a whole and give important feedback to the authorised15 col-leges on the quality of the programmes. Joint quality assurance is a key element of dual VET programmes. The processes for examination, composition and format of the commission, and the evaluation criteria (for both students and companies) need to be further elaborated in the amendments. The in-company mentor is explicitly mentioned in Article 12, a key aspect of a well-functioning dual system.

To successfully anchor in-company trainers into the VET system requires more than a revamping of the VET Law. Also, a new set of qualification opportunities should be designed and implemented. These will need to be further reflected in laws and regulations on the state and education institution level, on

12 Employability can be defined as ‘an indicator of the chance of work’. Work can have three distinct meanings depending on the perspective: (1) by society and government as full employment; (2) by employer as a match between supply and demand; and (3) by individuals as an indicator of a job or career opportunity. However, all three are interconnected and work only in combination. (Forrier, Anneleen, The concept of employability: a complex mosaic, in: International Jour-nal of Human Resources Development and Management, Vol. 3, No. 2, 2003). Therefore, dual approaches provide a promising path for enhancing employability and economic development.

13 The draft law is prepared but is yet to be discussed by Parliament.14 GIZ, Recommendations for adapting the regulatory framework for introducing dual wine education in Georgia (2016).15 According to the amendments, institutions receive authorisation based on the existence of suitable equipment, infrastructure and the number of students.16 http://eeas.europa.eu/georgia/pdf/eu-ge_aa-dcfta_en.pdf.

the one hand, and embedded in the companies' work culture, on the other. The latter is the more challenging step, as it will require substantial changes in work regimes and social attitude towards VET as well as clear value-added incentives for private sector partners to support in-company training.

The VET development strategy of GeorgiaThe Strategy is the most recent and relevant policy document that regulates the formalisation and functioning of VET. It presents ‘the government’s vision for the future development of vocational education in Georgia’ (MoES, 2013) and is strongly related to the European approach to qualification, as noted in the European Commission Recommendations under the Asso-ciation Agreement between Georgia and the EU (European Commission, 2014).16

The policy was formulated in close consultation with many stakeholders from the private sector, civil society and govern-ment as well as VET providers, i.e. VET colleges (public and professional) and other education institutions. It emphasises the priority of initiating a joint effort to reach the country’s socio-economic objectives for poverty reduction, through sustainable economic growth and development as well as the establishment

Figure 3. National VET Strategy

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of a more inclusive society, and recognises the importance of skilled human resources in this process. The promotion of voca-tional skills is a key intervention area, and particular empha-sis is placed on the inclusion of vulnerable social groups in all activities mentioned in the policy.

The national VET councilThe expected outcomes are related to the establishment of social partnerships with all VET stakeholders. For this purpose, the National VET Council (NVETC), comprised of 9 working groups and sectoral committees, is responsible for the coordi-nation of information exchanges among all stakeholders. Estab-lished in 2009, its stated objective is the ‘coordination of the activities of the social partners – the state, employers, trade unions and civil society’.17 In August 2011 the composition of the NVETC was revised to improve the representation of social partners. In 2014, the MoES introduced a new format of the NVETC by including civil society representation as the fourth party, alongside private sector, social partners and government.Two thematic working groups (TWGs) deal with the WBL-related issues: ‘Mechanisms for private sector engagement in VET’ and ‘Work-based learning’. The main aim of the TWGs is to develop policy documents and proposals, which are pre-

17 Government of Georgia, “Statute of the National Vocational Council of Vocational Education”, Decree No. 203 of the Government of Georgia (2009).

sented to the NVETC for review. Other working groups focus on areas such as relevance, efficiency and effectiveness of VET provision. As a result, employability is expected to improve, thus strengthening the image of VET education as well as offer-ing a rewarding and attractive career pathway. Priorities include enhancing the regulatory environment of the VET system; establishing effective funding mechanism that enable public and the private sector participation; training and re-training of VET teachers and management personnel; strengthening stu-dent support; promoting entrepreneurship; and quality assur-ance. All these components are strongly linked to the Euro-pean approach.

3.1.2 Institutional framework and reforms

The institutional framework was analysed at two levels. First, we examined how laws and regulations are developed and applied within state institutions, specifically looking at the wine, tour-ism and construction sectors. Second, we investigated how the private sector and other actors outside of government institu-tions and colleges are influenced by the VET system.

The governance of Georgia’s vocational education is cur-rently enacted through the following government structures:

Figure 4. Georgian governance structures for VET

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The following figure illustrates the structure of Georgia’s edu-cation system, including VET18:

Figure 5. Education System in Georgia

18 Ministry of Education and Science of Georgia.

EDUCATION SYSTEM IN GEORGIA

ACADEMIC EDUCATION

Doctoral Degree

Secondary Education

Basic Education

I - VI

Compulsory Education

VII - IX

Primary Education

Pre-school Education

V Level of VET

IV Level of VET

III Level of VET

II Level of VET

I Level of VET

Master's Degree

Bachelor's Degree

Intermediate Qualification

Med

ical

Edu

cation

Med

ical

Edu

cation

VOCATIONAL EDUCATION AND TRAINING

X - XII

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VET is an integral part of Georgia’s education system. Stu-dents can access VET after completing basic education. Since 2013, students who want to enrol in an initial level VET pro-gramme at a public VET institution must pass the unified VET admission tests.Professional education is divided into 5 levels. A VET institu-tion certified as a professional college can provide education at levels I, II, and III. Depending on its authorisation, a pub-lic VET college can also provide trainings at levels IV and V.

The abovementioned authorisation procedures require VET institutions to provide proof of adequate learning environment for the respective VET programme. The learning environment can be located at the school or at partner companies. These partnerships are based on a signed contract or memorandum of understanding. To regulate company-based training, col-leges use special ‘company-based training charters’, approved by the school administration (Ministry of Education and Sci-ence, 2014). The charters define the rules and procedures for work-based learning.

Occupational standards and the relevant educational pro-grammes may also set additional entry requirements. Voca-tional education programs are organised at 127 authorised pub-lic and private institutions (86 VET institutions, 29 higher educational institutions and 12 schools), with 62 education institutions in Tbilisi and 65 spread out across 10 regions in Georgia. In 2015, additional 10 locations were selected for implementing VET programmes.19

Only about 2.6% of all enrolled students and pupils in Georgia are VET students (Torino 2014). Despite the persis-tent negative image of VET, student numbers are rising: 5,035 (2012), 8,396 (2013), 9,910 (2014), 10,273 (2015). According to the Education Management Information System (EMIS 2014), of the 19,910 students registered at 1,440 vocational programs,20 48.4% are female and 51.6% male; 56% registered for pro-grammes in the regions and 44% for offers in Tbilisi.21

In total, 3,167 teachers are employed at VET institutions, with up to 800 at public colleges. A large number of teachers in private institutions work under short-term contracts for the particular modules. The teacher–student ratio is high, with on average one teacher per five students. In subject programmes (not modular) the minimum required number of students is 5, according to the decree of the Minister of Education. The maxi-mum number is not defined, but according to existing practices the average number is 20 students per class.

Along with other institutions and organisations, VET col-leges are responsible for delivering vocational educational pro-grammes as well as non-formal, short-term courses that do not necessarily lead to VET qualifications (provided based on demand). In many cases these non-formal courses are sponsored by donor programmes, and the students receive certificates of attendance instead of diplomas.

19 UNDP, Situational Analysis Report: Work-Based Learning (WBL) in VET in Georgia (December 2015)20 All public VET institutions are required to provide information to EMIS, and only a few private VET institutions are included in EMIS.

Thus the information provided by the private institutions might not be complete.21 UNDP, Situational Analysis Report: Work-Based Learning (WBL) in VET in Georgia (December 2015).22 Ministry of Education and Science of Georgia.

During the last decade, the Government of Georgia has adopted a number of legal and institutional reforms to bring VET system in line with European standards and to improve the quality of VET instruction. The following policy reforms provide the basis for the development of various forms of WBL in Georgia. The National Qualifications Framework (NQF) and the Law on Quality Enhancement were both approved in 2010. The NQF systematises qualifications of all educa-tional levels and cycles. In 2014, National Centre for Edu-cational Quality Enhancement (NCEQE) and MoES initi-ated a revision of the NQF in line with the European Quali-fication Framework (EQF), a currently ongoing process. The NQF promotes the convergence of Georgian qualifications with European standards and facilitates learner mobility. The Law on Quality Assurance defines internal and external quality assurance mechanisms and the Quality Assurance Framework (QAF) for VET providers. A Quality Assurance Framework for VET in Georgia was developed in line with EU systems and practices in 2010, by applying and adapting the EQF to the context of Georgia’s VET system, which serves as an impor-tant part of the modernisation of Georgia’s VET system. To date, multiple components of the EQF have been developed and are either fully or partially implemented.

The VET quality management system consists of authori-sation and accreditation.22

AuthorisationThis external evaluation instrument assesses the educa-tion institution’s compliance with standards set by the state. Authorisation is obligatory for all types of education institu-tions, in order to be allowed to carry out educational activities and to issue state-approved educational documents.

Based on the mission of the education institutions, the authorisation procedure establishes compliance of the educa-tion institution with the following standards: � Education programmes, � Material resources, � Human resources.

Decisions concerning the authorisation of general, vocational and higher education institutions are made by the Authorisa-tion Councils for General, Vocational and Higher Education institutions. Its members are appointed and dismissed by the Prime Minister of Georgia based on a proposal by the MoES. Each Council consists of 9 members who serve one-year terms and cannot be public officials. The responsibilities of the coun-cils are outlined in the authorisation charter, which guaran-tees the councils’ operational independence from education and state institutions.

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AccreditationAccreditation is a type of external evaluation mechanism, which determines the compatibility of an educational programme with standards. Only accredited programmes are eligible for state funding.

The accreditation aims to establish regular self-evaluation by education institutions, to stimulate quality improvements and to promote the development of quality assurance mechanisms according to the following accreditation standards: � The goals of the educational programme, learning out-

comes and the compatibility of the programme with the stated goals;

� Methodology and organisation of teaching; � Student performance; � Resources available for teaching.

Potential to further enhance the educational quality: Members of the Accreditation Council for Educational Pro-grammes serve one-year terms, cannot be public officials, and are appointed and dismissed by the Prime Minister of Geor-gia on the proposal of the MoES. The responsibilities of the Accreditation Council are outlined in the accreditation char-ter, which guarantees the council’s operational independence from education and state institutions.

In addition to the authorisation and accreditation practice, the monitoring of VET institutions in terms of compliance to the established standards is an integral part of the quality man-agement system.

A 2014 amendment to the Formation of Qualifications (the 5th appendix to National Qualifications Framework), stipu-lates the requirements for more comprehensive labour mar-ket studies for the introduction of new qualifications to the NQF. The qualitative information about the currently needed and anticipated skills is being collected from DACUM panels since 2012, when the NCEQE, under technical support from its international partners (ETF, EU), started to pilot and use the DACUM methodology for drafting occupational standards. The rules for developing occupational standards, framework curricula and modules is regulated by Decree #492 issued by the NCEQE director (13/07/2015).

Mobility of students from VET to universitiesThere are no established procedures for student mobility from VET to universities. The credits gained in VET institution are not recognised on the academic level, and VET graduates must pass through the full entry procedure for universities. The draft new VET Law seeks to remove these barriers to further enhance the attractiveness of VET as a career path.

Policies at stakeholder levelIn 2015, the National Teacher Professional Development Cen-tre (NTPDC) developed the concept paper ‘VET teacher entry into the profession and continuous professional development’. This policy regulates VET teacher professional development but does not cover in-company trainers.

The concept paper for the ‘Development of lifelong voca-tional counselling and career planning services in Georgia’ was adopted in 2014. The paper emphasises the need for taking the appropriate steps to develop lifelong vocational counselling and career planning services in Georgia. The benefits of a compre-hensive career education and guidance policy are recognised and accepted, and much has been done to start the process of introducing effective career education programmes for grades 9 through to 11 in secondary schools and VET colleges. All public VET colleges have career managers. Information is one of the cornerstones of a successful career education programme, as pupils and students need to be made aware of current oppor-tunities in the job market (locally, regionally and nationally), in order to be able to make an informed career choice.

A Draft Strategy Document (2015–2017) of the Georgian Employers Association (GEA) emphasises the importance of WBL. GEA has a positive vision on the importance of WBL and plans to support WBL at the policy level as well as to improve the WBL capacity of member company staff. However, it remains to be seen whether GEA has the internal capacity to implement the plans or whether it will need to adapt meas-ures to enhance it.

In this regard, the Georgian Chamber of Commerce and Industry could be an alternative partner because of its long tradition (operating since 1960) as well as its presence on the ground in most regions in Georgia. The organisation is cur-rently defining its VET policy.

Trade Unions have been lobbying for a state-subsidised paid internship programme for youth since 2013, in order to improve youth employability by providing support during the transition from education to work.

Ministry of Labour, Health and Social Affairs of Georgia (MLHSA) developed a National Labour Market Strategy and Action Plan (2014–2018) (MLHSA 2013)23 to tackle unemploy-ment in Georgia. The Ministry is responsible for designing and implementing active labour market programmes for jobseekers and developing a labour market information system.

The policy guidelines ‘on training and retraining of the unemployed in the context of Georgian labour market needs’24 also emphasise the importance of WBL. According to these guidelines, social partners (private sector, trade unions, civil society) should be involved in the establishment of a monitoring system for qualification levels. According to the programme,

23 MLHSA, National Labor Market Strategy and Action Plan 2014–2018.24 Prepared for the ETF by Professor Richard Sweet (2014).

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a new training voucher system will be implemented for the training of approximately 7,000 registered jobseekers, focus-ing on in-demand occupations on the Georgian labour market. The programme has a budget of 8 million GEL for the provi-sion of vocational training or work placements for jobseekers in the period 2015–2018. The MLHSA Social Service Agency (SSA) started implementing the programme in 2015. The work placement component of the programme provides for a refer-ral system and a stipend of up to 120 GEL per month for up to 3-month internships at registered employer companies for the following target groups: � Jobseekers registered at www.worknet.ge; � Graduates of authorised VET institutions and accredited

VET programs in vocational specialty fields in-demand with employers;

� Persons with no formal VET competence in need of special vocational training;

� Persons with special educational retraining needs.

MLHSA developed a database of jobseekers, employers, vacan-cies, educational programmes and suppliers, managed by the Employment Service/LEPL Social Service Agency. Jobseekers can register on the worknet.gov.ge site. The LEPL Social Ser-vice Agency delivers services through 10 regional offices and 69 regional centres, where specialists advise jobseekers on the follow-ing topics: techniques of job searching, self-assessment, writing a resume or motivation letter, and preparation for an interview.

In 2015 the Ministry of Labour, Health and Social Affairs of Georgia started to work on the establishment of the Labour Market Information System (LMIS) under Government Reso-lutions #73225 and #73326. LMIS is a mechanism for collection, processing, analysis and dissemination of labour market informa-tion to jobseekers, students, employers, policymakers and other stakeholders. By visualising labour market indicators, it will illus-trate trends in employment and wages; track the supply of skills and skills shortages, highlighting skill scarcities; and serve as a mechanism for forecasting labour market trends.

In 2015 the Ministry established an Interagency Coordina-tion Council on LMIS, in order to ensure the system’s coherent functioning and timely information flows. It brings together rep-resentatives of state institutions, social partners and civil society organisations.

In 2015 the Ministry, in cooperation with EU experts, pre-pared the project implementation plan covering the following issues: system design, software development and testing, deploy-ment, system documentation, and system training. In 2016 the Ministry prepared the terms of reference, to be followed by state procurement and project implementation actions.

It can be concluded that the laws and regulation, as well as the various efforts to translate them into institutional reform, strategies, and activities, demonstrate the determination of the

Government of Georgia to transform the VET system to better serve the country’s current and future socio-economic develop-ment needs. The mechanism that is to serve the stated goal of involving the private sector as an active partner in the provision of vocational training is still under review and establishment. The regulatory environment leaves considerable room for improved accommodation of dual education programmes.An overview of the sectorial strategies in place in the tourism, wine and construction sectors, as related to the potential for dual VET programmes, is provided in chapters 5 to 7.

3.2. Impact of social security systems and labour law on the VET system

While private sector engagement is at the core of any VET sys-tem that involves practical in-company training, the impact of social security systems and labour law needs to be taken into consideration – especially on vulnerable groups, such as persons with disabilities, recipients of social support, and students. The social security system in Georgia is regulated by the Law on Social Support, which aims to provide fair, targeted and effec-tive assistance through the establishment of a well-organised social support system, covering fiscal and non-fiscal support (including medical insurance). Social support packages vary based on a vulnerability scoring system and specific needs.

In case of an improved income situation, the social sup-port for vulnerable families may be reduced or even termi-nated, posing a potential disadvantage if a member of a vul-nerable family would enter a dual VET programme and starts receiving salary. In such situations, his or her family may lose the social support package, which in turn may discourage vul-nerable families from participating in dual VET. Regulatory changes should be adopted in order to facilitate participation of vulnerable groups in dual VET, especially considering that these groups have the biggest needs for qualification improve-ment and employment opportunities.

The Labour Code governs labour and accompanying rela-tions in Georgia, unless otherwise governed by special laws or international agreements ratified by Georgia. Labour agree-ments signed by any company with its employee must not con-tain provisions that conflict with the Labour Code and poten-tially disadvantage the employee’s position, i.e. an employment contract or agreement must comply with all requirements and standards set by the Labour Code. However, current legislation and the Labour Code do not define the status of a student dur-ing a work-based training or internship, concerning issues such as insurance and salary/incentives received during the in-com-pany training period. Existing regulation does not adequately guarantee the protection of students against exploitation, and student rights need to be clearly delineated.

25 Resolution of the Government of Georgia N 732: Resolution of Government of Georgia N199 dated 2 August 2013 on ‘Approval of state strategy on the formation of the labor market in Georgia and Implementation of 2013–2014 action plan for labor market formation in Georgia’.

26 Resolution of the Government of Georgia N 733: On the concept of implementation and development of the labor market information system and approval of the action plan on its implementation.

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The following sections summarise the challenges and opportu-nities regarding Georgia’s VET system.

3.3. Key challenges for introducing dual education in the VET system

The protracted lack of relevance of VET education for the cur-rent and future job market (mismatch between the VET educa-tion and the actual needs on the labour market) as well as vola-tile employability are at the core of the current socio-economic challenges in Georgia. While multiple factors influence the labour market, VET can serve as an entry point for addressing several pressing problems at the crossroads between education and economic development.

Against this background the key challenges for introduc-ing dual education in the VET system in Georgia can be sum-marised as follows: � Lack of effective social partnership, a prerequisite for suc-

cessful VET (principle 1). � Companies often have a short-term, profit-generating focus

and lack awareness about the potential for return on invest-ments in apprentices and interns.

� Companies typically expect state institutions to provide education exclusively (as a service for taxes paid by the com-pany).

� Lack of private sector structures for collaboration with com-panies in the provision of VET, which is important for shar-ing costs and efforts (element 9).

� Lack of functional example in dual education in Georgia, with the notable exception of the following three sectors: wine, tourism and construction.

� Lack of qualified in-company trainers (principle 5). � Limited capacity of VET providers: poor infrastructure, low

quality of teaching instructions, lack of funding opportu-nities, unsuitable standards, lack of professional develop-ment for school staff.

� The negative image of VET (MoES, 2013), which is cur-rently being addressed by the government through aware-ness-raising media campaigns targeted at the wider com-munity.

� Lack of opportunities for students to move from VET edu-cation into university education (permeability of the edu-cation system – principle 3), which are to be addressed by the draft VET Law.

� The vocational colleges’ weak capacity to organise VET activities together with the private sector (principle 1). The institutions lack the motivation (or ability) and communi-cation channels with companies to establish sustainable and mutually beneficial partnerships. They also lack the neces-sary skills to conduct business negotiations with companies and sometimes think that companies are obliged to coop-

erate with them – a lingering attitude from Soviet times – which stands in contradiction to market economy practices.

� Low student motivation, as students often do not know what they want or would like to achieve and often have mis-leading expectations. The weak career counselling system is one of the causes of this problem (principle 6).

3.4. Ongoing reform initiatives for intro- ducing dual education in the VET system

Since 2010 there has been an ongoing process of modernisa-tion of VET programmes, aimed at ensuring that VET pro-grammes correspond to industry demands. The European Union– funded Quality Enhancement and Capacity-Building Support Programme in VET Sector of Georgia, which sup-ported VET reforms in 2012 and 2013, contributed to cur-riculum reform by helping adapt international practices to the Georgian context. Building on an ETF effort launched in 2010, the project initiated and supported discussions on occupational standards and modular educational programmes. A vision and methodology for VET curricula as well as a model for central-ised competency-based curricula were developed. The revised approach emphasises the introduction of 3 types of manda-tory practical modules: ‘work experience’, ‘work-based/com-pany training’ and ‘external projects’. Based on this nascent approach to WBL, dual education programs have the potential to evolve and grow across various sectors.

In 2013 NCEQE started the VET Qualifications Develop-ment Support Programme, supported by the EU, to improve VET quality and labour market relevance. Between 2013 and 2015, approximately 270 occupational standards were prepared (54 have already been approved by the Sector Councils – SC); assessment standards were prepared for 170 occupational stand-ards; 163 modular VET programmes were developed; and 54 modular curricula received SC approval. The process is on-going and development partners such as GIZ (on behalf of BMZ) have contributed to modernising VET programmes.27 Standards for the educational environment and minimal tech-nical equipment were also developed for all modules within the aforementioned 163 framework programmes. The stand-ards cover four elements: environment (classrooms, workshops, etc.), equipment at the VET institutions, VET college access to equipment, and materials. VET college access to equipment is related to company-based practice; however, colleges usually have only one-year contracts with companies, and it is diffi-cult to update information about access to equipment. In addi-tion, there are no standards that cover company-based practice. In 2015, norms were developed for 170 modular programmes: under the coordination of the programme, 50 guidelines for students and 15 guidelines for teachers were developed (2014–2015).

27 Between 2013 and 2016, GIZ has supported the development or adaptation of 24 VET programmes in selected sectors (construction, tourism, wine). See chap-ter 7 on dual education in construction.

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MoES has established Sector Councils under NCEQE as a mechanism for identifying skills, needs and forecasts. As explained in the previous section on challenges, to fill the gap between labour market needs and skill development, a success-ful VET system needs to be demand-driven and industry-led. It remains to be seen which role the SCs can fulfil best and how they can enhance their capacity to represent the private sector.

It is also noteworthy that a broad range of VET institu-tions (including 11 private and public colleges, the NCEQE, and the NCTPD Centre) have introduced quality management systems according to international standards, for example, the European Foundation for Quality Management (EFQM) or

ISO 29990. Modern quality management can contribute to more effective cooperation between VET institutions and pri-vate companies. It could also provide quick support to the scal-ing-up of existing good practice examples in dual education.

With regard to private sector initiative and involvement, some major steps have been taken. As the following chapter on the potential for dual VET will elaborate, an increasing number of private companies are experimenting with dual approaches – with impressive results – whether in the short-term, by offering opportunities for internships and supporting colleges through equipment donations, or in the long-term, by engaging in insti-tutional collaboration.

28 Simonia Z., Private Sector Engagement in Georgia’s Vocational Education System (2013).

4. Opportunities for implementing dual vocational training programmes

When examining the potential for dual VET programmes it is beneficial to consider multiple levels: the institutional and policy level, the private sector level, and the wider community level. All three are interconnected and impact the design of strategies and implementing steps in dual VET programmes.

4.1. Institutional and policy level

First and foremost, the development of a social partnership model between private sector, the VET institutions and the government needs to focus on creating a sound institutional and policy framework. The government has to provide incen-tives (e.g. data) for the private sector to participate in a dialogue (social bargaining) on VET, if the need for qualified staff is not seen as a sufficiently enticing motivation. Such successful ini-tiatives by colleges and companies can serve as guiding exam-ples for company participation in VET programmes, and gov-ernment and development partners can facilitate this dialogue. Second, the policy level could provide other incentives, such as tax breaks, to encourage and promote VET in the private sector. They can also influence the prevalence of specific mechanisms for training and education. Based on European experience, the value-added tax (VAT), the personal income tax (PIT) as well as the corporate income tax (CIT) can be considered for this approach. These tax breaks could provide tangible monetary benefits for companies engaged in dual VET programmes.

Third, it needs to be examined whether certain industries can be targeted under specific regulation (e.g. exemptions, lev-ies, licensing requirements, etc.). The report ‘Private sector

engagement strategy’, prepared for MoES with support from Millennium Challenge Account-Georgia in 2013,28 includes four main policy recommendations for energising private sec-tor engagement: � Development of a social partnership model based on a

strong institutional infrastructure and a co-financing fund-ing vehicle to motivate enterprises to participate in VET partnership and invest in VET;

� Provision of tax incentives as a supplementary tool to encourage private sector entities to invest in VET;

� Registration of enterprises as training organisations, in order to be allowed to deliver training and assessment ser-vices in line with private sector needs;

� Development of new regulations in cooperation with rep-resentatives of the respective sectors to ensure that training is carried out to improve standards, for example in occupa-tional safety and health.

While the strategy has not yet been formally endorsed by the Georgian Government, it does provide an orientation for coor-dinating efforts towards realising public-private partnerships in VET.

To spur the engagement of private sector actors, pull factors (i.e. financial incentives) should be preferred over push factors.

4.2. Company level

For private companies, the decision to contribute to voca-tional training programmes boils down to the net resources

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they have to invest (salaries, time, experienced staff, equip-ment and materials). Hence, companies would be prepared to pool efforts and costs with vocational colleges, provided that these efforts are well-coordinated and shared. Crucially, the expected benefit from the newly trained staff must outweigh the expected costs.

The monetary aspects are not the only consideration for companies. Also the difference in mindset between the public and private sectors is an important element. Dual VET pro-grammes require coordination, policy dialogue, ownership, and commitment by the private sector beyond their immedi-ate short-term revenue streams. Yet, as subsequent chapters will illustrate, many companies are open to cooperate with voca-tional colleges to offer practical in-company training.

So far, companies have not been the driving force behind dual VET programmes in Georgia. In order for the private sector to take the lead, stability at the policy level, clear divi-sion of labour between colleges and companies as well as suit-able solutions for quality assurance have to be provided (e.g. through regulatory measures).

4.3. Wider community level

Education decisions are usually not an exclusively independ-ent, individual choice – and vocational education is no dif-ferent. In addition to individual ambitions, goals, preference, and perceived benefits, the social context in which the young person grew up, the attitudes towards vocational education, role models and values (e.g. parents, friends, and teachers) all play defining roles. All these factors need to be carefully weighed when planning vocational trainings programmes.

According to research carried out by UNDP, vocational edu-cation still has a rather poor image, despite improved popular perception. Many people believe that higher education provides better employment opportunities; that vocational education is for people of low social status; and that it is better-suited to men than women. Moreover, even though most Georgians know of VET, the majority are not aware of the on-going reform of the system. The awareness raising campaigns about the on-going reforms in the vocational education field are yet to reach the majority of the population.29

In response, the government has taken a range of steps to communicate different aspects of existing VET offers to potential students, their families, parents and friends.

NCEQE coordinates World Skills activities in Georgia. Young skilled workers participated in the international World Skills competitions in 2013 and 2015. Also, national World Skills competitions were organised in Georgia. Students were prepared for these competitions in collaboration with private companies, which provided practical expertise for the training of students.

In 2015, during Skills Week, a series of events at 18 col-leges in different regions of Georgia took place. ‘Skills ambas-sadors’ (World Skills participants), representatives of the MoES and the NCEQE, and company representatives took this roadshow VET campaign across the country and organ-ised student discussion rounds and an open exchange about successful career pathways after vocational training.

These examples illustrate how awareness raising can con-tribute to mobilising different stakeholders for VET and to facilitating informed decision-making on education choices. Private companies in particular play a crucial role in mobilis-ing potential VET students, in generating expertise, and in securing other resources for up-to-date VET trainings.

29 UNDP, Situational Analysis Report: Work-Based Learning (WBL) in VET in Georgia (December 2015).

5. Potential for dual VET programmes in the wine sector

Promoting and strengthening Georgia’s wine sector is a com-plex endeavour. In terms of the implementation of modern VET programs in viticulture and wine-making, professional skills at different levels of the wine value chain need to be tackled (e.g. input suppliers, wine production, sales and ser-vice providers).

In 2014, the Georgian Wine Association together with GIZ Private Sector Development Programme South Cauca-sus conducted a needs assessment of private companies in the wine sector. The main aim was to identify, in a qualita-tive and representative form, all gaps and opportunities, from vineyard to final packaging, as well as the developments and

opportunities in the domestic and international markets. In total, 35 winery representatives and 24 grape growers were interviewed face-to-face.

The analysis of the barriers to wine sector development specified several preliminary needs and potentials for dual VET in the sector: Grape price and quality; insufficient viticulture support and expertise; lack of organic farming skills. Consistent quality of grapes is one of the wine producers’ main concerns, creating the space to explore how dual VET programmes can provide the needed skills for producing modern as well as environmentally friendly grape varieties.

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Insufficient professionalism of technical staff. Vocational education can enhance the skills of technical staff, enabling them to operate and maintain modern equipment, thereby reducing the related costs of frequent repairs due to improper use of equipment and the reliance on foreign technicians. The growing tendency to deploy modern machinery in vineyards also underscores this need.

High production costs due to low quality or absence of locally produced supplies. Material supplies like glass bot-tles, labels, corks stoppers, boxes are mostly imported. Geor-gia needs qualified human resources that can employ mod-ern technologies more intensively and effectively, and pro-vide these necessary inputs locally and at a competitive price.

5.1. Activities implemented to strengthen VET in Georgia’s wine sector

The fifth level modular VET programme in the viticulture and wine making sector starts in November 2016. In the frame-work of the project “Support for the Georgian Wine Sector” under the Private Sector Development Programme South Caucasus implemented by GIZ on behalf of BMZ, experts examined existing VET standards and programmes. The needs assessment of the private companies in the wine sector mentioned above demonstrated a clear need for implementation of a dual VET model in the Georgian wine sector, especially in viticulture and the wine-making trade. This model proposes 40% theoretical education (35% in VET institution and 5% in the form of special technical seminars) and 60% on-the-job training in the wine factory under permanent supervision. A cooperation agreement was signed between the Private Sector Development Programme and the Bavarian State Institute for Viticulture and Horticulture (LWG) on the introduction of a dual wine education system in Georgia, with LWG set to support the conceptualisation and implementation of the project.

Two colleges, “Aisi” and “Tsinamzgvriantkari” in cooperation with 7 wine companies, were authorised to offer the pro-gramme for up to 30 students in total. The first students will start in November 2016.

The new model was designed together with key stakeholders, such as the Ministry of Education and Science and National Centre for Educational Quality Enhancement. In 2015 several companies expressed their interest to participate in dual wine education under the following requirements: � One to three students would be admitted for a 3-year training; � Students would receive a monthly salary of minimum GEL 240 gross and a health insurance package; � Dedicate staff for mentoring students; � Mentors would pass a two-week (1+1) training course in teaching methods.

The preliminary studies conducted in the companies showed that they had the capacity to assign experienced personnel as in-company trainers/instructors to supervise students. Short-term trainings in pedagogy were conducted with these instructors in August 2016.The employment opportunities for students who successfully complete the dual VET course include but are not limited to: � Wine company management (mid-level), � Establishing their own company, � Regional consultation centre officers (advising farmers on their daily activities).

After completing the programme students will be able to independently deal with vineyard and winery management issues with high professionalism. Throughout their studies, they will also learn relevant aspects of management and marketing.In addition to the theoretical and practical aspects of the proposed dual VET model, a coordinating entity will be estab-lished to coordinate and monitor the process. It has the mandate to authorise colleges and companies by assessing and evaluating their capacities to implement dual VET programmes. Furthermore, it oversees the effective implementation of the programme on student level, their contractual obligations and rights, and their pairing with the companies. To increase effectiveness, the coordinating entity communicates with sector associations to identify the needs of companies that par-ticipate in the programme. NCEQE could take on this role, as its primary competence is associated with quality assurance in the education system; however, the coordinating entity is yet to be formally established.

Box 2. Piloting dual education in the wine sector

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In line with supporting the VET system in the wine sector, the project facilitates the development of the sector’s business framework by supporting the National Wine Agency with legal and cadastre related issues, and by promoting private actors of the sector by building sector-related consulting capacities and a Qvevri Wine Cluster.

A road map for the introduction of dual VET in the wine sector was also developed by Georgian key stakeholders, with GIZ assis-tance. The road map elaborates the steps to be taken by key actors, including international partners, civil society, the private sector, and the state. The following graphic outlines the key steps for the introduction of the dual VET programs in the wine sector: 30

30 Road Map for introduction of the Dual Education in the wine sector.

Key steps for introduction of the dual programmes

Figure 6. Key steps for introducing dual education in the wine sector

The model is easily scalable in other sectors and can be adjusted according to sector-specific needs and requirements.Private sector commitments towards dual VET in the wine sector � Private companies are aware of the need for qualified staff

to improve the sustainability and profitability of their oper-ations.

� The majority of companies do not trust the current VET system and institutions because of the low quality of the learning process and very low level qualifications of grad-uates.

� Bigger companies have started developing their own, in-house training facilities in order to provide the required qualifications to their staff. The development of advanced in-house training facilities is costly and difficult for SMEs, but there is room for SMEs to conduct in-house training or to get involved in dual VET.

� Companies would be interested in sharing the costs and efforts for in-house training with VET institutions, pro-vided that joint activities are well coordinated, result-ori-

ented and consider the interests of the private sector. Pri-vate companies would be more motivated to get involved in dual VET if they can take a more active part in programme design and the student selection process.

It is worth mentioning that while business’ and VET institu-tions’ perception towards dual VET is improving, additional efforts should be taken to help them understand the process of dual VET implementation and define their respective roles and responsibilities in this process. The capacity of VET institution to build durable partnerships with the private sector is a pri-ority action point, for example, skills for conducting business negotiations and dialogue with private companies. The current gap between the mindsets of VET institution and private sector hampers successful partnerships in dual VET. The private sec-tor would benefit from increased involvement in learning pro-gramme design, career counselling, and the process of student selection. This would build a sense of ownership and confidence regarding the outcomes, and at the same time allow companies to have a say in education provision.

Mobilization of sector experts

Mobilization of private companies

Communication with MoES and NCEQE

Create task force

Identify gaps in legal framework and elabo-rate proposals

Accreditation process

Authorization of the Programme at the selected colleges and companies

Verify feasibility of private companies and select companies

Capacity building measures for teachers and in-company instructor

Define educational in-stitution (college) and Capacity needed

Prepare training materials

Start the programme

Prepare coordi-nation body

Needs Assess-ment / Kick-of workshop

Monitor the implantation-time as needed

Cost-benefit analysisDetailed analysis of costs / budgeting

Identification of co-ordination body/com-munication with MoESD & NC EDE

Promote the pro-gramme among young people

Identification Inter-national partner and sign MoC

2 month 3 month 3 month 3 month 1 month

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State support to wine companies in promotion would also be a motivation for companies to get involved in dual VET. As mentioned above, Georgian companies are at the initial stage of introducing dual VET elements. Positive results need to be shared among the business community and grow into a new tradition. The incentives listed above would increase company motivation. To some extent, vouchers could be divided between the VET institution and private companies. However, from a sustainability and growth point of view, companies should be encouraged to focus more on the mid- to long-term benefits of participating in dual VET instead of the short-term bot-tom line.31

The following benefits outline the main entry points for dialogue with the private sector: � Production: The apprentices’ productive contribution to the

production process; � Investment: The possibility to keep the apprentice after the

training and build the company’s human resource capacity; � Screening: The option to retain only the best apprentices,

according to their performance during the training period; � Social responsibility: Giving young people the possibility

to enter the labour market; � Reputation: Good reputation and brand visibility with cli-

ents, potential employees and suppliers.

31 Jansen, Anika, Example of a cost benefit analysis of dual VET in Germany (no date).

The involvement of sector associations, which bring valuable capacities and reputation, is useful for encouraging private com-panies to get involved in VET, to increase and sustain com-pany commitment as well as to raise awareness. Associations such as the Georgian Wine Association, the Wine Club, the Georgian Chamber of Commerce and Industry, the Georgian Handmade Wine Association, the Sommeliers’ Association, and the Wine Tourism Association are potential partner asso-ciations. The National Wine Agency, as a state entity, should also be involved in facilitating the participation of companies in dual VET.

As mentioned before, the National VET Council coordi-nates social partnerships in VET. By strengthening the Coun-cil’s capacity in the wine sector, it could better support effective social partnership. The following two capacity building options were identified: creating wine sub-thematic group under the existing agriculture thematic group or creating a new wine sec-tor thematic group under the Council. In addition, the crea-tion of a local social partnership group in a wine making region would also help spur broader participation and provide input from local and smaller wine cellars and vineyards. This com-ponent could be implemented with support by local govern-ments, business associations, trade unions as well as NGOs, under the overall coordination of the National VET Council and its secretariat.

� Kindzmarauli Corporation’ Kvareli � ‘Schuchmann Wines Georgia’, Kisiskhevi � ‘Chateau Mukhrani’, Mukhrani � Kakhetien Traditional Wine Making, Mtskheta

� Wine Company ‘Shumi’, Tsinamdali � ‘Maranuli, Mukuzani � AB Shadrevani, Kardenakhi

Box 3. Companies participating in dual VET education in the wine sector

6. Potential for dual VET programmes in the tourism sector

The tourism sector is one of the most prosperous in the coun-try. With high growth potential, dual VET programmes can enhance the level of provided services, implementation of modern service techniques in the sector, and also respond to private sector interests in terms of business growth, higher turnover and profitability.

While large hotel chains have their own training facili-ties and approaches for different kinds of work-based learning programmes (ranging from internships, re-training, further training, etc.), medium-sized organisations or businesses need specific incentives to become involved in a structured dual and

innovative VET programme. Small guesthouses, for instance, have a high potential, especially for agro-tourism and adventure tourism, and are in need of substantial service improvement. Involvement of such small-scale business actors in dual VET requires close ties to colleges to promote stable partnerships, while their input into the VET school will equally enhance the education quality and awareness of market needs.

The recently implemented laws and regulations in Geor-gia support such partnership; however, on the implementa-tion level the question remains to be answered which mecha-nisms are best suited for the development of a collaborative

25

culture among these stakeholders. As already demonstrated in small pilot initiatives in Georgia, school projects that involve the private sector (e.g. joint events, with benefit for both sides; innovative ideas developed in VET schools, such as improve-ment of a hotels website, traditional recipe books, designed and laid out by VET school students; design and tailoring of traditional Georgian clothes and holding a fashion show at the hotel) can help increase hotel operator interest to partners with VET schools. In turn, positive collaboration experiences alter the mindset of hotel owners towards offering workplace learn-ing opportunities for students. Trust is an important precon-dition for a dual approach to VET and trust needs to be built and marketed.

It is worth mentioning that international brand hotels, such as Radisson, Kempinski and Holiday Inn, are expanding con-struction of accommodation, which adds to the optimistic out-look on the Georgian tourism sector as an industry with strong growth potential. Moreover, they have already expressed their readiness and interest in dual VET education. This is a clear motivation for rolling out dual VET systems in this sector.

Box 4. The following companies, among others, have

expressed interest in dual education in tourism:

� Kvareli Lake Resort � Radisson Blue � Georgian Palace Hotel � Sheraton Batumi Hotel � Dreamland Oasis � Lopota Lake Resort and SPA � Hotel Ambasadori � Hilton Batumi Hotel � Rixos Hotel Borjomi

According to a recent survey conducted by ISSA32 on behalf of GIZ, the professions currently in demand on the labour market are predominantly hotel administrators, guides, cooks, restaurant administrators, management personal, service per-sonal and tour operators. More focus needs to be put on other tourism domains, such as commercial training (e.g. in travel agencies, event organisers, occupations in the transport sec-tor, landscape gardeners, tailors, IT professionals and oth-ers. At the intersection of the different professions, there is a large potential for innovative programmes related to voca-tional education. In order to implement successful dual VET programmes, cross-profession collaboration needs to be devel-oped. It will not only serve the establishment of the partner-ships necessary for sustaining dual VET programmes but also boost innovation in the sector as well as foster mutual learning arrangements – not just from business to VET school but also from business-to-business and among VET schools.

According to the ISSA survey, the qualification entry requirements for employment in the tourism sector reveal that

the higher the qualification the higher the likelihood of find-ing employment in the sector. This is not true for cafes, res-taurants and clubs, where university degree holders are consid-ered overqualified. While it is justified to critique the quality and relevance of the educational programmes currently offered at VET schools, it needs to be mentioned that many relevant and innovative programmes related to tourism are currently offered by universities. The relevance and popularity of these offers (such as recreation tourism, agro-tourism, resorts, nature tourism, eco-tourism and culture tourism) makes them attrac-tive for young people. However, VET schools need to focus on their strengths, especially their potential relationships with the community and the private sector. They should be involved in designing and implementing specialisations in the tourism sector, especially in the region in which the school operates. Approaching hotels and other tourism-related businesses (or private providers of tourism-related facilities) is easier, quicker and more effective if they are located within the same area or region. There are several examples of regional potentials and locations that can be developed further through capacity build-ing measures and skills development, while at the same time supporting the creation of self-employment and the launch of small and medium enterprises.

Also areas that are not directly related to tourism – such as facility maintenance, construction, but also basic business skills, like budgeting and marketing – show promise for dual VET programmes. Given the absence of a structured pri-vate sector, it also has to be emphasised that without further improvement of the business climate, dual VET programmes will lack sufficient opportunities in this important pillar for practical training, i.e. company partners. The ISSA survey men-tions areas in which training can be and should be conducted to improve the business infrastructure, create an entrepreneurial culture and improve the investment climate. However, not all of the suggested trainings are suitable to be piloted as dual pro-grammes at this point, and some are not related to a profession but rather to a specific skill. They can be considered as training modules to enhance a skill or to re-train or further train people who have a certain level of skills that they acquired informally.

Again, this process will be driven by the logic that a con-structive engagement of a strong private sector that can provide employment opportunities needs to be in place, before dual VET programmes have the chance to dramatically improve the capacity of the workforce. The labour market needs graduates with practical expertise, but at the same time, employers usually prefer employees with formal education – a clear opportunity to include VET schools and other institutions in the process.

32 Institute of Social Studies and Analysis, The survey and analysis of qualification offers relevant for hotels and accommodation services in Georgia (no year).

26

7. Potential for dual VET programmes in the construction sector

While a range of construction-related VET programmes are cur-rently offered in Georgian VET schools – some including dual elements, such as workshops and teachers trained by companies – no fully dual VET programme exists in the construction sec-tor, and many professions could be taught using dual elements.

Construction is one of the most dynamic and fastest grow-ing sectors in Georgia. It represents one of the largest pillars of the country’s economy and employs more workers than in any other sector.33 However, it is very difficult for employers to find skilled personnel trained in construction professions. A sur-vey commissioned by the Georgian Ministry of Health Labour and Social Affairs identified high demand for craftspeople and specialists in technical professions: ‘despite educational reforms being implemented, the knowledge and skills of modern person-nel [are] inconsistent with market demand, [negatively affecting] productivity and competitiveness’.34

The need for better qualified staff arises from an increasingly internationalised construction sector with changing demand and supply. The shifting demand is reflected in the new types of pro-jects, such as technically more complex projects (e.g. large hotels and office buildings, railroads, pipelines) or more innovative con-cepts (e.g. cooling and heating technology, thermal insulation, smart technologies, efficient lighting). Both domestic and for-eign investors drive this change, in response to a wide range of client requirements. In line with this adaptation of construction projects, also the supply side is changing. Competition among domestic and foreign companies operating in Georgia is rising, as businesses seek to strengthen their market share and niche spe-cialisations. These trends all point to growing demand for highly skilled professional staff.

The construction sector is both a major consumer of resources (including energy, water and consumables) and sets the param-eters for household energy consumption. Energy prices consti-tute a considerable share of a building’s operational costs. This correlation is also reflected in the EU Association Agreement with Georgia, which strives to promote energy efficiency and ‘the exchange of information for the development and improvement of technologies in energy […] end use with particular attention to energy efficient and environmentally friendly technologies’.35 The construction sector can make a notable contribution to this endeavour (e.g. by utilising energy efficient and renewable energy technologies in buildings); however, the necessary special skills are currently lacking in Georgia.

Some of the construction-related VET programmes (also

including dual elements) in Georgia have already been adapted in order to meet the requirements mentioned above. Indeed, the construction sector is embracing dual VET programmes at an increasingly faster pace than other sectors. A number of German companies that operate in producing and trading construction materials are engaging in nascent cooperation with VET colleges. The emerging best practices could be replicated and scaled up to other sectors countrywide.

For example, HeidelbergCement, Caparol and Knauf joined forces in supporting a dual vocational training programme. This covered financial support as well as personnel and techni-cal resources to develop the preconditions for a highly trained work force. Under a parallel initiative by MoES and GIZ, a com-prehensive curriculum for welders was developed, including an integrated approach to learning, with development of the self-efficiency, responsibility, accountability and social skills neces-sary for boosting employability. Practical training is one of the major aspects of the curriculum, and it follows the request of the Georgian partners for a modularisation of the training offer

In cooperation with EQE and MoES, the GIZ Private Sec-tor Development Programme South Caucasus has supported the development or adaptation of 24 VET programmes in construc-tion, tourism, and wine. The programmes in the construction sector include electric welders, drywall installers, painters, plas-terers, electricians and other professions.

VET school teachers often cannot meet the trainer profile requirements for programmes with dual elements. Nevertheless, suitable candidates can be found both in colleges and in compa-nies. The lessons from the curriculum for welders suggest that experienced welders should be included in further training to support the development of trainers in line with modern VET programmes.36

MoES, the college Spectri, GIZ, and HeidelbergCement sup-ported the development of five curricula for construction profes-sions: drywall makers, electricians, electric welders, painters and plasterers. In addition, teaching staff from different colleges in Georgia (8 teachers) and welding experts from HeidelbergCe-ment in Georgia (from Kaspi and Rustavi) were trained in new welding technologies (MIG/MAG and electronic welding) and provided with certificates of participation in electric welding. Most of the training time (two-thirds) was dedicated to practical work. This part of the training was enriched by the experiences of the welders from HeidelbergCement, who supported the learning process with their advice. The certificates elaborate the specific

33 According to the survey, there are 4,253 enterprises in the construction sector with a total of 71,445 employees. MLHSA, The Survey Report of Labor Market Demand Component (2015).

34 MLHSA, The Survey Report of Labor Market Demand Component (2015).35 Association Agreement between the European Union and the European Atomic Energy Community and their Member States, of the one part, and Georgia, of the

other part (2014).36 Bildungswerk Bau Hessen-Thüringen e.V., Schweißer, Curriculum zur Facharbeiterausbildung in Georgien (2013).

27

contents covered and were derived from the German curriculum for welding. While the content focused on key welding topics, in order to enhance the skills and support employability of the par-ticipating welder trainees, the curriculum for the teachers would be expanded with teaching methods and professional didactics. Participants evaluated the training experience as excellent, which is in part due to the opportunity to engage in direct exchanges and share experiences with welding specialists from the company.

Another example of a dual VET programme is the coop-eration between the German construction company Knauf and the community college New Wave. Both organisations signed a MoU for the company to actively participate in the creation of educational programmes and teacher trainings as well as to provide teaching materials and the necessary equipment to the college. Furthermore, the company committed to participating in relevant activities to promote the college through public rela-tions measures.

A Turkish holding company, Turan Borfit, together with Spectri carried out teacher trainings in electricity, welding and plumbing, while at the same time providing up-to-date technol-ogy and welding equipment to the college. Similarly, Caparol Georgia has provided training materials for painters.

Spectri has also successfully initiated and consolidated its relationship in VET provision with Georgian companies, such as Prizma Ltd., EnergoPro Georgia Ltd., Tektohouse and Hydros-ervice Ltd., Orbeli Ltd. and Shno Ltd., ElitaBurji Ltd./Heidel-bergCement Ltd., Asia Energy Ltd. and Euro Master as well as Caucasus Road Project Ltd. and Hydroservici Ltd. The best stu-dents who participated in the VET programme were employed by the hosting companies after completing the course.

All in all, the results of these endeavours are quite impressive: the portion of Spectri graduates who secured employment after successfully finishing the training increased by 15% within one year, with some professions even reaching 90%.

Despite the fact that demand for qualified staff remains high in the construction sector, the number of VET programmes that include dual elements remains low. Yet, based on the examples above, this is a very promising sector for implementing dual edu-cation programmes. Existing best practices could be scaled up in other sectors.

Further options for developing full or partial dual VET pro-grammes in construction include the following professions: � Carpenters: Georgian colleges already provide training for

this profession, however, with little or no involvement of pri-vate companies. This need can be addressed along the lines of the Spectri examples discussed above. Moreover, the cur-rent programme does not provide sufficient depth for spe-cialisations. Companies require specialists with a focus on

roof constructions, wood construction/wooden houses, and interior work. Other specialisations, as present in Germany, cover window and door frames as well as furniture.

� Bricklayers: This specialisation shows similarities to the car-penters’ case. More involvement of private companies could enhance the quality of the VET programmes. Additional spe-cialisations (e.g. a concrete and reinforced concrete special-ists) would also provide valuable human resources for many companies in Georgia.

� Other professions were also identified as relevant for dual approaches: canalisation, railroad track construction, water/gas/oil/heat pipe, and road building. This expertise is in high demand in medium-sized and large enterprises, including state-owned enterprises and private utility providers.

In order to further develop dual VET programmes in the con-struction sector, the following topics should be considered: � Match-making between companies and colleges. The cur-

rent best practice examples, mechanisms, and results need to be better communicated, and the quality norms for con-struction and building materials need to be further clarified.

� Supporting colleges and other training providers in adapt-ing and advocating construction-related qualification pro-grammes (including curriculum development and adapta-tion, standards for sector-specific competences, and authori-sation/accreditation of new or adapted qualification modules).

� Realisation of practical trainings in cooperation with prac-titioners from companies. The elaboration and implemen-tation of training of trainers for dual programmes, would need to cover both school teachers and in-company trainers. Good practice examples should be analysed and replicated in other professions.

� Promoting programmes in energy efficiency and renewable energy. Existing VET programmes do not provide training in these areas, including the relevant technologies for Georgia, their application, installation, or maintenance. The demand for such skills is increasing. Existing dual VET programmes in other countries should be examined for applicability in Georgia (e.g. sanitary/heating/climate control technician, solar technician). In some cases, existing programmes may benefit from additional specialisations (e.g. electricians).

� New or adapted qualification offers should consider occu-pational safety and health (OSH) as a cross-cutting topic, which many VET schools and private companies in the construction sector do not consider as a priority. This topic requires special expertise, which should be an inherent ele-ment of technical VET programmes in the construction sec-tor. Selected companies that showcase advanced OSH prac-tices, could support the modernisation of VET programmes.

Box 5. Private sector involvement in VET*

Caparol Energo-Pro Georgia Heidelberg Cement Caucasus Road Project

Knauf Orbi Group ElitaBurji Anagi Ltd

*This is only an indicative list; many more companies are either involved or have expressed interest in VET and dual education in Georgia.

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8. Conclusions and the way forward

There is no quick and easy way for Georgia to adopt a dual vocational training system. Each country has unique cultural, economic and social conditions that need to be taken into consideration, and many countries rely on ‘mixed systems’, depending on the sector. For example, in Germany school-based vocational training courses are offered in addition to dual education programmes.36 Transcribing existing systems from other countries like Germany or Austria would not be the most adequate strategy for Georgia, due to substantial diver-sity among education systems, institutional framework condi-tions, traditions and economic and social settings.37 It is also evident that dual education is not suitable for all professions in Georgia or elsewhere.

However, dual practices can make a valuable contribution to improving Georgia’s VET system. In certain sectors, such as wine, construction, and tourism, dual elements already exist and can be replicated. The examples mentioned in this study showcase the remarkable developments in fostering a collaboration culture between government, VET institution and the private sector, which can serve as a basis and template for applying elements of dual education VET programmes.

Governmental efforts are intensifying, as reflected in laws and policies, especially concerning social partnerships in voca-tional education. VET institutions are engaging in structured and targeted communication and collaboration with compa-nies; general awareness of the importance of vocational edu-cation as a career track is improving, boosting the image of vocational training.

In order to maintain this level of commitment and to elevate the existing dual VET approaches to a scalable level, private sector participation needs to be further strengthened, and coordination mechanisms need to be set up. The private sector is very diverse: while larger companies have the means to carry out dual VET programmes at their own premises, smaller and medium-sized companies might face difficulties due to shortages of financial, infrastructural, and staff capac-ity. Therefore, it is very important to identify possible entry points for small and medium-sized companies to participate in dual VET programmes, in order to improve their access to highly skilled workers. Private companies carry considerable responsibilities in dual VET programmes. The in-company training process, the finan-cial and technical contributions to in-company trainer develop-ment, and the responsibility vis-à-vis the VET student could be perceived as a burden that not every company would like to bear. Therefore, in the policy dialogue on dual elements in VET programmes, striking a positive balance between the costs and benefits for companies in dual VET programmes should be a priority. Good practice examples should be communicated and promoted to enterprises.

A crucial role will have to be fulfilled by business membership organisations, which could extend the services they provide to members to include dual VET programme support. They could also play a coordinating role of the dual process. Therefore, a more intense discussion with relevant business membership organisations should be pursued.

Despite the fact that VET is improving its image, it still needs to be linked to social security and labour law provisions to be more attractive and to comply with decent work stand-ards, to safeguard student rights, and to provide a perspective for a lifelong career in the VET track. Existing practices of dual VET programmes must be monitored accordingly too ensure delivery of high quality education and skills that correspond to both student and company needs.

The Georgian VET system is not designed for dual VET programmes. The existing practice examples reveal several areas for improvement in the institutional and policy frameworks. Additionally, targeted policy papers should be developed to dem-onstrate the required legal and institutional changes at the dif-ferent levels by the relevant stakeholders.

The following action areas outline the way forward: � Document and scale up existing good practice examples, for

example, by introducing similar approaches in other profes-sions and sectors.

� Document and communicate the costs and benefits of dual VET programmes for enterprises, students, and colleges. Clarify the responsibilities and capacities of relevant organ-isations, and suggest options for institutionalising partner-ships.

� Provide targeted support to small and medium-sized com-panies, to help them participate in dual VET programmes.

� Facilitate a reform of the institutional and legal environ-ment. In particular, quality assurance should be expanded to cover the in-company training process (including the in-company trainer). More generally, the opportunities for pri-vate sector participation in the selection of students, exami-nations, and in other processes in dual VET programmes need to be further defined.

� Identify options for business membership organisations to play a stronger role in dual VET programmes.

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9. References

Bluashvili, A., and Sukhanskaya, N., ‘The Fund Georgian Center for Agribusiness Development’, Country Report: Georgia, 2015.Busemeyer, M. R., and Trampusch, C., ‘The Comparative Political Economy of Collective Skill Formation’, in Busemeyer, M. R., and Trampusch, C. (Eds.), The Political Economy of Collective Skill Formation, 2011, pp. 3–38.

Dehnbostel, P., and Lindeman, H.-J., ‘Core principles and corner points of dual vocational training system in international voca-tional training’, 2014. (http://www.dblernen.de/kompetenz/Referenzpapier_Kernprinzipien%20und%20Eckpunkte_14-02-13_ver-en.pdf)Dierkes and Knie, 1989; Hard and Knie, 2000; Lutz and Hirsch-Kreinsen, 1987; Ruth, 1995.

Erkomaishvili, G., ‘The Strategy for Increasing the Competitiveness of Georgia’, in: International Journal of Social, Manage-ment, Economics and Business Engineering, Vol. 8, No 10, 2014.ETF, ’Work-Based Learning: Benefits and Obstacles - A literature review for policy makers and social partners in ETF partner countries’, European Training Foundation, 2014. (http://www.etf.europa.eu/web.nsf/pages/Work_based_learning)Euler, D., ‘Germany’s Dual Vocational Training System: A Model for Other Countries?’, Bertelsmann Stiftung, 2013. (http://www.bertelsmann-stiftung.de/fileadmin/files/BSt/Publikationen/GrauePublikationen/GP_Germanys_dual_vocational_train-ing_system.pdf)European Commission, ‘Association Agreement between the European Union and the European Atomic Energy Community and their Member states, of the one part, and Georgia, of the other part’, Official Journal of the European Union, 2014. (http://eur-lex.europa.eu/legal-content/EN/TXT/PDF/?uri=OJ:L:2014:261:FULL&from=EN)European Commission, ‘Work-Based Learning in Europe: Practices and Policy Pointers’, 2013. (http://ec.europa.eu/dgs/educa-tion_culture/repository/education/policy/vocational-policy/doc/alliance/work-based-learning-in-europe_en.pdf)

Federal Ministry of Education and Research. Dual Training at a Glance.Federal Ministry of Science, Research and Economy of Austria (bmwfw). Dual Vocational Education and Training - A Build-ing Brick to Foster Economic Growth: Working Paper – Round Table Minister of Economy – 27 August 2015. (2015). Forrier, A., ‘The Concept of Employability: a Complex Mosaic’, International Journal of Human Resources Development and Man-agement, Vol. 3, No 2, 2003.

Georgian National Tourism Administration, ‘Georgian Tourism in Figures’, 2013.Georgian National Tourism Administration, ‘Tourism Strategy 2025’, 2016.Georgian Wine Association, ‘Needs Assessment of the Private Companies in the Wine Sector’, 2014.GIZ, ‘Dual Vocational Education and Training in Serbia: Feasibility Study – Executive Summary’, 2015.GIZ, ‘Private Sector Support in the Georgian Wine Sector under the Private Sector Development Programme South Caucasus – Implementation of Dual VET System in the Georgian Wine Sector’, 2014.Government of Georgia, ‘Prime Minister discussed four pillar Government reform plan with representatives of business asso-ciation’, press release, 2016. (http://gov.ge/index.php?lang_id=ENG&sec_id=440&info_id=54076)Government of Georgia, ‘Meeting with the Federal Minister of Education and Research’, press release, 2016. (http://gov.ge/index.php?lang_id=ENG&sec_id=440&info_id=56223)

Institute of Social Studies and Analysis, ‘Survey and Analysis of Qualification Offers relevant for Hotels and Accommodation Services in Georgia’, no year.

Jaiani, T., ‘The Needs Assessment of the Private Companies in the Wine Sector’, 2014.Jansen, A., ‘Example of a Cost-Benefit Analysis of dual VET in Germany’, presentation, no year.

Kharaishvili, E., Erkomaishvili, G., and Chavleishvili, M., ‘Problems Faced by the Agricultural Sector and Agribusiness Devel-opment Strategy in Georgia’, World Academy of Science, Engineering and Technology, International Journal of Social, Behav-ioral, Educational, Economic, Business and Industrial Engineering, Vol. 9, No 11, 2015.

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Mayen, G., ‘Social Partners in Vocational Education and Training in the Southern Mediterranean’, European Training Foun-dation, 2011. (http://www.etf.europa.eu/webatt.nsf/0/AE767507CE50E643C12578AF00336909/$file/social%20partners%20in%20VET_EN.pdf)Ministry of Agriculture of Georgia, ‘Strategy for Agricultural Development in Georgia 2015–2020’, 2014. (www.moa.gov.ge/Download/Files/92).Ministry of Education and Science of Georgia, ‘Cooperation with the Private Sector’, press release, 2016. (http://mes.gov.ge/content.php?id=6441&lang=eng).Ministry of Education and Science, ‘Vocational Education and Training Development Strategy for 2013–2020’, 2013. (http://mes.gov.ge/uploads/12.%20VET%20Strategy%202013-20_EN.pdf)Ministry of Labour, Health and Social Affairs of Georgia, ‘The Survey Report of Labour–Market Demand Component’, 2015. Mückenberger, U., ‘Nationale Arbeitsrechte und soziales Europa‘. In: B. Cattero (Ed.), Modell Deutschland - Modell Europa. Probleme, Perspektiven, Opladen: Leske + Budrich, 1998, pp. 33–54.

No author, ‘Paper on results of meetings of the Thematic Working Group that is working on issues related to the involvement of private sector in VET’, no year.

Reif, H., ‘Soziale Lage und Erfahrungen des alternden Fabrikarbeiters in der Schwerindustrie des westlichen Ruhrgebiets während der Hochindustrialisierung‘. Archiv für Sozialgeschichte, Vol. 22, 1982, pp. 1–94.

Schönberger, K., and Springer, S. (Eds.), SubjektivierteArbeit: Mensch, Organisation und Technik in einer entgrenzten Arbe-itswelt. Frankfurt/Main [u.a.]: Campus-Verl, 2003.Sweet, R., ‘Work-Based Learning: A Handbook for Policy Makers and Social Partners in ETF Partner Countries’, European Training Foundation, 2014. (http://ec.europa.eu/dgs/education_culture/repository/education/library/publications/etf-wbl-hand-book_en.pdf)

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Annex. Partner mapping TVET sector in Georgia

Ministry of Education and Science of Georgia(MoES)

TVET Department

Council for Technical and Vocational Education and Training• Ministry of Economy and Sustainable

Development of Georgia (MoESD)• Ministry of Finance of Georgia• Ministry of Health, Labour and Social

Affairs of Georgia• Ministry of Agriculture of Georgia• Repr. of Employers and Unions

Teachers‘ Professional Development-Centre (TPDC)

Thematic Working Groups (Private Sector Engage-

ment in TVET, Work Based Learning, etc.)

Business Membership Organisations

Private Colleges (74)

Public Colleges(21)

Dual-like TVET Programmes

Companies

National Center for Educational Qual-ity Enhancement

(NCEQE)

32

Published by:

Deutsche Gesellschaft für Internationale

Zusammenarbeit (GIZ) GmbH

Registered offices Bonn and Eschborn, Germany

Private Sector Development Programme

South Caucasus, Country Component Georgia

42, Rustaveli Ave. / 31a, Griboedov Street

0108 Tbilisi, Georgia

Phone: +995 32 2201833

Fax: +995 32 220 18 31

Email: info@giz.de

Internet: www.giz.de

On behalf of the German Federal Ministry of

Economic Cooperation and Development (BMZ)

Photo credits: GIZ Georgia

Design & Layout: Nicole Fritsch | visuelle Kommunikation

Responsible:

Sonia Fontaine, GIZ Country Director Azerbaijan and leader

of the study “Future-oriented Dual Vocational Qualification

in Armenia, Azerbaijan and Georgia”

Berlin, Tbilisi, 2016

Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) GmbH

Private Sector Development Programme South Caucasus, Country Component Georgia42, Rustaveli Ave. / 31a, Griboedov Street0108 Tbilisi, Georgia

Phone: +995 32 2201833Fax: +995 32 220 18 31

Email: info@giz.deInternet: www.giz.de