White paper issued on vocational training

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In March 1999, the French government issued a white paper on vocational training, seeking to draw up an analysis of the system as a "first step in a process" of reform. Most trade unions and employers' organisations were quick to express their interest in the report. The "reform process" will be phased in gradually, with much emphasis on dialogue and negotiation with the social partners.

On 17 March 1999, the Secretary of State for Women's Rights and Vocational Training, Nicole Péry, presented to the cabinet a white paper entitled Vocational training: analysis, challenges and imperatives (La formation professionnelle. Diagnostics, défis et enjeux) The paper's aim is to analyse the French vocational training system in advance of a "reform process".

Analysis of the system

The French system of vocational training was set up during a period of full employment and of strong economic growth in the early 1970s. In an attempt to address new developments in the economic and social environment, the original system has since evolved into an increasingly elaborate and multi-tier mechanism. The white paper now proposes the re-engineering of the entire system, taking account of the changes that have occurred in the labour force over the past 30 years - such as the rise in the numbers of women and improvements in initial training - and of the major changes in the labour market - most significantly, labour mobility and more frequent career changes, and the shift in employment towards small and medium-sized enterprises (SME s).

A review of 30 years of the vocational training system shows great disparities in access to training at company level. On the whole, French workers remain underqualified: 40% of workers and job seekers have training below the level of the vocational training certificate (Certificat d'aptitude professionnelle, CAP). Three categories of workers are particularly disadvantaged: the relatively unskilled, women and employees of SMEs. If these attributes are combined, we find that less than 3% of female blue-collar workers in SMEs with fewer than 20 employees have access to vocational training, as opposed to around 70% of male managerial staff in large companies with workforces of over 2,000.

These disparities are exacerbated by the multiplication of provisions targeting certain categories. The performance of programmes aimed at the integration of young people into the labour market, which in the past have proven to be more a remedial measure than a constructive solution, are a case in point.

Proposals for change

The central themes of the White Paper's proposed reforms are:

• the creation of an individual entitlement to training, which would be "portable" and safeguarded by collective agreement; and

• the certification and validation of vocational experience and knowledge.

The first of these provisions would give each worker or job seeker the possibility of acquiring an entitlement to training that would be portable from one job to another and managed collectively (details are yet to be worked out.) This is an attempt to make vocational training a consolidating factor in an individual's working life so that any spells of unemployment are not viewed as periods of inactivity or even exclusion.

The proposed certification and validation of workers' vocational experience and knowledge is designed to allow these factors to be better recognised, enabling a better linkage between companies and sectors and qualifications and diplomas - particularly those of the national education system - which play a major role in social and economic integration in France. Combined work/training schemes take account of and integrate this desire for greater "professionalisation", while at the same time promoting the integration of young people into the workforce. These schemes will have to be developed and upgraded. The creation of an individual entitlement to training is of particular relevance to young people with low levels of initial qualification, who are forced to begin their working lives in various precarious jobs but who will in future be able to build a career and training path.

Reaction from unions and employers

The appraisal set out in the white paper was applauded by most employers' and workers' organisations. Overall, the CFDT and CFTC trade union confederations approve the changes proposed by the Secretary of State. The MEDEF employers' association also considers that "vocational training schemes must develop", but maintains that this must be achieved through social dialogue and collective bargaining. Furthermore, "in the light of the imminent reduction of working time", it would like to see continuing vocational training taking place "either wholly or partly, outside working time". The CGT and CGT-FO union confederations are unequivocally opposed to this proposal by MEDEF. CGT regrets that the white paper does not pinpoint the "causes and responsibilities" of the disparities in the current system more clearly. In its view, the solutions proposed by the administration to address the situation will not deliver the goods. Trade union organisations, which for the past 10 years have endorsed the rationale of combined work/training schemes, would however like to see these organised in a more structured way than at present, whereas MEDEF has reaffirmed its support for the schemes' development so as "to avoid any irrational pursuit of studies".

Unions are studying with interest the idea of and "individual portable training entitlement, guaranteed collectively". Employers' and workers' organisations are unanimous in their support for certification and validation of vocational knowledge and experience. However, there are likely to be differences of opinion as to the way this is to be implemented. MEDEF would prefer a system of validation and certification overseen by the social partners while CGT-FO is advocating a national, independent and free government-run system. The various trade union and employers' organisations have affirmed their intention to play a full role in the discussions and negotiations that will follow the publication of the white paper.

Reform process ahead

The publication of the white paper ushers in a phase of consultation with all the parties involved in vocational training. Parallel experiments will take place at grassroots level to assess geographic and cross-sector support. In addition, a member of parliament, Gérard Lindeperg, has been given the task of appraising the efficiency of the institutional partnership between the various protagonists in vocational training (with a report due in September 1999). During this same period, the General Social Affairs Review Board, (Inspection générale des affaires sociales, IGAS) will evaluate the training provisions available to job seekers. A European conference will be held in Paris in autumn 1999, bringing together representatives from the various European Union countries for an exchange of good practice in the area of vocational training. All these assessments and initiatives are intended to encourage the development of the vocational training debate in France. However, they do not set out the precise timescale for the "reform process".

Commentary

All the parties involved in vocational training agree that after 30 years, reform of the regulations and institutional framework which govern this area in France is needed. The government is resolved, through its white paper, to tear down certain preconceptions by focusing debate on specific points which it deems crucial. However, given the major differences that already exist in the approaches adopted by several parties, the government will have to express its political will strongly to bring about meaningful reform. National government faces a more complex task today than was the case in the early 1970s, firstly due to the increased power of regional authorities who enjoy ever-increasing jurisdiction and means in the area of vocational training, and secondly due to the significant role played by European structural funds in the funding of certain vocational training schemes. (Maurice Braud, Ires).