90107 Jordan SABER Country Report WORKFORCE DEVELOPMENT 2013 Dimensions Status 1. Strategic Framework The government has prioritized workforce development (WfD) as a key element of Jordan's economic progress, but there is little evidence indicating that WfD is aligned with the country’s economic development plans. The roles and responsibilities of key stakeholders in WfD remain fragmented, with a lack of consistent and visible leadership. In addition, there is no unified and agreed vision and strategy, with employers having limited influence in shaping and implementing WfD priorities. 2. System Oversight The quality assurance systems (including standardization, certification, accreditation, and assessments) lack coherence, structure, transparency and consistency. This situation will not improve until a well-designed and integrated national system is put in place. Furthermore, funding of the WfD system has limited provisions to ensure high performance and optimum resource utilization. 3. Service Delivery Industry stakeholders provide only occasional input into training curricula, and their role in the governance of training institutions is limited. Few incentives are offered to both state and non-state providers to meet quality standards and expand. A culture of monitoring and evaluation, aided by available and reliable data, is currently underdeveloped. THE WORLD BANK JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Table of Contents Executive Summary.................................................................................................................................... 3 1. Introduction ........................................................................................................................................... 5 2. Country Context ..................................................................................................................................... 7 3. Key Findings and Policy Implications ................................................................................................... 11 4. Aligning Workforce Development to Key Economic and Social Priorities ........................................... 16 Socioeconomic Aspirations, Priorities and Reforms ....................................................................... 16 SABER-WfD Ratings of the Strategic Framework............................................................................ 19 Implications of the Findings ............................................................................................................ 23 5. Governing the System for Workforce Development ........................................................................... 26 Overall Institutional Landscape ...................................................................................................... 26 SABER WfD Ratings on System Oversight ....................................................................................... 29 Implications of the Findings ............................................................................................................ 35 6. Managing Service Delivery ................................................................................................................... 37 Overview of the Delivery of Training Services ................................................................................ 37 SABER-WfD Ratings on Service Delivery ......................................................................................... 39 Implications of the Findings ............................................................................................................ 42 Annex 1: List of Acronyms........................................................................................................................ 44 Annex 2: The SABER-WfD Analytical Framework .................................................................................... 45 Annex 3: Rubrics for Scoring the SABER-WfD Data ................................................................................. 46 Annex 4: Sources...................................................................................................................................... 53 Annex 5: Detailed Scores ......................................................................................................................... 56 Annex 6: Authorship and Acknowledgements ........................................................................................ 57 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 2 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Executive Summary pool of potential employees and a market for consumer goods and services; and (b) the associated Human Development in Jordan has witnessed demand for skilled workers to produce and sell these significant progress over the past two decades, in products. In a context with low labor market line with Jordan’s vision to become a regional leader participation, this potential is yet to translate into through leveraging its strong human capital base into the tangible form of jobs and sustained income a skills, knowledge and innovation driven economy. growth. Evidence of progress on this front is provided by the advancement of the country’s human development Against this background, the SABER-WfD diagnosis in and education indicators. Between 1980 and 2011, Jordan reveals the weaknesses and gaps in specific the Human Development Index (HDI) value increased aspects of policies, whereby strategies, institutions by 29 percent, the adult literacy rate reached 92.6 and service delivery fall short of what might be percent, the primary school completion rate hit 100 characterized as global good practice. The various percent and combined gross enrolment reached 79 underlying problems are well understood, yet there percent. In the decade prior to the global financial is a lack of consistency in addressing them through slowdown of 2008 and the subsequent political an integrated approach that: (a) examines the unrest in the region, Jordan experienced rapid institutional landscape and policies that influence economic growth, outperforming the MENA average. skills supply and demand such as the government’s economic policies (including wage, tax, trade and Nevertheless, contrary to conventional wisdom, the spending policies), education policies and labor economic growth and human development policies, as well as the external factors and global improvement was not accompanied by improvement trends such as demographic changes, globalization in other socioeconomic indicators such as and technological advances, urbanization, and employment rates or productivity/value chain climate change; (b) coordinates the implementation progression in specific sectors/industries. In of appropriate policy responses through a unified particular, the labor market continues to face vision; and (c) monitors progress on reform.The daunting challenges. Unemployment rates have results reveal how the lack of an integrated approach hardly moved in the past decade, remaining within and clear leadership result in disconnect between the 12 to 14 percent range (based on officially economic development priorities and WfD agenda. reported figures, ‘real’ unemployment hovers at higher levels), and participation rates ‒ especially for The results summarized below rates Jordan at the females ‒ are among the lowest in the world. There Emerging level for all three functional dimensions of are clear mismatches in skills supply and demand, policies and institutions in the SABER-WfD analytical driven by skills inadequately addressed by the framework: (a) Strategic Framework; (b) System current Workforce Development (WfD) system. Oversight; and (c) Service Delivery. Closer Supply in the WfD sector is primarily constrained by examination of the nuances underlying these scores the increased focus on investment in shows that Jordan has a sound and emerging professional/high skilled labor and R&D/scientific infrastructure of policies and institutions for WfD fields and less on technical and vocational education and an extensive track record of good practice as and training (TVET). This should not overshadow the part of longstanding WfD reforms. However, the challenges facing the Jordanian economy on the capacity to translate policies into results remains demand side, including: job creation, up-skilling the weak. Addressing such gaps to achieve an all- existing workforce, and progressing up the value encompassing reform will require sustained effort chain to improve wages and working conditions for and collaboration across stakeholders inside and Jordanians. The share of working age population is outside government, especially employers and on the rise, with many of them in the midst of service providers starting their families. They represent both: (a) a SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 3 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Transforming WfD in Jordan can follow the trajectory framework. Hence, an urgent priority in Jordan lies in of other successful reforms by focusing first on empowering an apex-level body to guide this effort, incremental, but tangible progress on the ground to in line with the recommendation emanating from provide inspiration and momentum. Comparing both the National Agenda (NA) and the National Jordan’s results with Ireland’s, for instance (rated as Employment Strategy (NES). Such apex-level ‘emerging’ for the strategic framework and system leadership can drive this agenda by implementing an oversight dimensions in 1980 and progressing to action plan designed to deliver early and credible ‘advanced’ level for all three dimensions in 2000) results, which in turn will facilitate learning across shows that significant progress can be made across the system and serve as a basis for scaling up proven the three dimensions, starting with a strong strategic ideas. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 4 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 offered through multiple channels, and focuses 1. Introduction largely on programs at the secondary and post- secondary levels. Jordan’s limited natural resources and weak industrial base have rendered human capital a prime Analytical Framework driver for economic development in the country. Jordan enjoyed almost a decade of rapid economic The tool is based on an analytical framework 3 that 2F growth ‒ higher than the MENA region’s average ‒ identifies three functional dimensions of WfD prior to the global financial slowdown of 2008 and policies and institutions: the subsequent political unrest in the region, known as the ‘Arab Spring’. Both the political and economic (1) Strategic framework, which refers to the praxis crises have sapped short-term growth prospects in of advocacy, partnership, and coordination in the country, tightened budgets even further, and led relation to the objective of aligning WfD in to an increase in the already-high unemployment critical areas to priorities for national rates. It also increased the urgency of boosting development; Jordan’s economic competitiveness and renewed concerns about the implications of its rapidly (2) System oversight, which refers to the growing population – one of the highest growth arrangements governing funding, quality rates in the world – with a young demographic assurance and learning pathways that shape the profile in which 70 percent are below the age of 30, incentives and information signals affecting the a demographic ‘gift’ that could turn into a ‘curse’ if choices of individuals, employers, training not utilized and invested in wisely. Workforce providers and other stakeholders; and development (WfD) 1 is therefore viewed by the 0F Government as an important means to tackle the (3) Service delivery, which refers to the diversity, demographic challenges as well as improve the organization and management of training country’s socio-economic prospects and create a skill provision, both state and non-state, that deliver intensive, knowledge based economy 2. 1F results on the ground by enabling individuals to acquire market- and job-relevant skills. To inform policy dialogue on these important issues, this report presents a comprehensive diagnostic of Taken together, these three dimensions allow for the country’s WfD policies and institutions. The systematic analysis of the functioning of a WfD results are based on a new World Bank tool designed system as a whole. The focus in the SABER-WfD for this purpose. Known as SABER-WfD, the tool is framework is on the institutional structures and part of the World Bank’s initiative on Systems practices of public policymaking and what they Approach for Better Education Results (SABER) that reveal about capacity in the system to conceptualize, aims to provide systematic documentation and design, coordinate and implement policies in order assessment of the policy and institutional factors to achieve results on the ground. Each dimension that influence the performance of education and is composed of three Policy Goals that correspond training systems. The SABER-WfD tool encompasses to important functional aspects of WfD systems (see initial, continuing and targeted technical and vocational education and training (TVET) that are 1 See Annex 1 for a list of acronyms used in this Report. 2 WfD in this context refers to preparation of the nation’s workforce via basic through to post-secondary technical and vocational education/training as well as employment and job-training efforts designed to help employers get a 3 skilled workforce, and help individuals better utilize their For an explanation of the SABER-WfD framework see Tan skills and succeed in the workplace. et al 2013. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 5 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Figure 1: Functional Dimensions and Policy Goals in the available knowledge on global good practice (see SABER-WfD Framework Figure 2). 5 Topic scores are averaged to produce 4F Policy Goal scores, which are then aggregated into Dimension scores. 6 The results are finalized following 5F validation by the relevant national counterparts, including the informants themselves. The rest of this report summarizes the key findings of the SABER-WfD assessment and also presents the detailed results for each of the three functional dimensions. To put the results into context, the report begins below with a brief profile of the country’s socioeconomic makeup. It follows with a summary of SABER-WfD key findings and overall policy implications. A discussion of each of the three Source: Tan et al. 2013 dimensions and respective policy goals is then presented in the last three chapters of the report. Figure 2: SABER-WfD Scoring Rubrics Figure 1). Policy Goals are further broken down into discrete Policy Actions and Topics that reveal more detail about the system. 43F Implementing the Analysis Information for the analysis is gathered using a Source: Tan et al. 2013. structured SABER-WfD Data Collection Instrument (DCI). The instrument is designed to collect, to the extent possible, facts rather than opinions about WfD policies and institutions. For each Topic, the DCI poses a set of multiple choice questions which are answered based on documentary evidence and interviews with knowledgeable informants. The answers allow each Topic to be scored on a four- point scale against standardized rubrics based on 5 See Annex 3 for the rubrics used to score the data. As in other countries, the data are gathered by a national principal investigator and his or her team, based on the sources indicated in Annex 4; and they are scored by the World Bank’s SABER-WfD team. See Annex 5 for the detailed scores and Annex 4 for a list of those involved in data gathering, scoring and validation and in report writing. 6 Since the composite scores are averages of the underlying scores, they are rarely whole numbers. For a given composite score, X, the conversion to the categorical rating shown on the cover is based on the following rule: 1.00 ≤ X ≤ 1.75 converts to “Latent”; 1.75 4 See Annex 2 for an overview of the structure of the < X ≤ 2.50, to “Emerging;” 2.50 < X ≤ 3.25, to framework. “Established;” and 3.25 < X ≤ 4.00, to “Advanced.” SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 6 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 2. Country Context increase in the Human Development Index value since 1980 (see Figure 3); moving Jordan’s rank up to The Hashemite Kingdom of Jordan is a small and 100 out of 187 in 2011. Among the key education young Arab country that is strategically located in reforms is the sector level intervention “Education the Middle East. It is an upper middle income Reform for Knowledge Economy Project” (ERfKE). country that is classified as a country of medium Supported by the World Bank and multiple donors, human development and is considered an emerging ERfKE aims to transform the education system at the market with an open economy ‒ the third freest in early childhood, basic, and secondary levels to West Asia and North Africa. Unlike many oil-rich produce graduates with the skills needed for the countries in the Arab region, Jordan has limited knowledge economy. The Jordan Education Initiative natural resources with high energy import (JEI) is another important reform that introduced dependency, and has been increasingly relying on information and communication technology (ICT) foreign aid and remittances from Gulf economies. and e-learning resources into Jordanian classrooms to support innovative teaching practices. Over the past 10 years, Jordan has established a good track record of structural reforms across a Economic reform and growth: In the early 1990s, number of areas. Reforms have progressed the government began reforms to restructure particularly well in the areas of education and training, health, privatization of services and trade Figure 3: Jordan’s Human Development Scores, liberalization. The government is also working 1980-2010 towards social protection system reforms, greater public private partnership, and tax reform. While Jordan has not experienced its own ‘Arab Spring’, the revolutions that swept certain Arab countries and political unrest in neighboring countries have had implications for Jordan. The country is now under pressure and scrutiny to deliver more tangible results on the political, economic and social fronts. People are demanding greater political and governance reforms for improved living conditions, stronger citizen voice and further accountability. In response to these demands, the government introduced major political reforms, most importantly amending the Constitution to strengthen political and human rights. It issued the new Constitutional Court Law, advanced a new election law, and established an independent Election Commission. On the social and economic fronts, employment and Source: Human Development Report, 2011 WfD are at the top of the government’s agenda, and efforts are being directed towards providing better Note: When computing the HDI indices for the dimensions of opportunities for citizens that can ultimately health, education and living standards, HDI determines improve their economic and social prospects. minimum and maximum values for each index and sets them equal to 0 and 1, respectively. The normalized scores presented above thus indicate where Jordan stands with respect to these Human Development has been a priority for the minimum and maximum values. The overall HDI score is the government over the last two decades, with a geometric mean of the three component dimension scores. particular focus on education/WfD where a number Details on what each index takes into account and procedures of reforms and initiatives to improve the system for computing the scores may be found at http://hdr.undp.org/en/statistics/hdi/. across all levels were implemented. The country has achieved good results reflected in a 29 percent SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 7 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 economic activities, focusing on trade liberalization Figure 4: Annual GDP Growth: Jordan, MENA and privatization of services to reduce government average (%) ownership across major economic sectors including electricity, transport and telecommunications. After joining the World Trade Organization, Jordan has 10 made significant efforts to open new markets 8 through property rights reforms, tariff reductions and a series of bilateral and regional trade 6 agreements with the US, Turkey and the EU 4 (including reaching an advanced status agreement 2 with the EU in 2010). As a result of these economic and market-oriented reforms and a favorable 0 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 external environment, Jordan’s economy grew at an average of 6.7 percent per year 7 between 2001 and 6F 2011, outperforming the Middle East and North Jordan Africa (MENA) region’s average (see Figure 4) of 4.5 Middle East & North Africa (all income levels) percent, despite high oil prices that increased growth in the resource-rich countries. The growth was underpinned by Foreign Direct Investments (FDI) to Source: WDI the real estate and construction sectors as well as productivity growth. FDI grew substantially, the drop in growth, Jordan was successful in averaging 10.1 percent of GDP over the decade, boosting its competitiveness by seven notches to compared with an average of 2.4 percent of GDP for rank 64th out of 144 countries in the 2012 Global MENA countries, 3.1 percent for Europe and Central Competitiveness Index. 9 However, Jordan’s small, 8F Asia (ECA) countries and 3.2 percent for East Asia open and energy dependent economy will remain countries. 8 However, these accelerated growth spells 7F vulnerable to external shocks, particularly with the were seriously impacted by the global financial crisis surrounding political turmoil, and will likely face a in 2009-2010, raising questions over the worsening fiscal situation. sustainability of Jordan’s economic performance due to its strong ties to the Gulf economies and reliance Productivity: While productivity growth was on foreign aid. FDI, tourism and remittances fell negative for two decades when primary production dramatically in 2011; weak economic activity and factors (labor and capital) were the main growth increased fiscal challenges have brought about a drivers in Jordan, there has been a significant rise in drop in revenues and widened the budget deficit to productivity growth since the 2000s (see Figure 5). 6.8 percent of GDP. Coupled with interruptions in Total factor productivity has emerged as a key driver the gas supply from Egypt and increased fuel for economic growth in Jordan, reflecting a real burdens, growth slowed to 2.3 percent in 2011 and improvement in the efficiency of production in the has not returned to pre-crisis levels since. Despite private sector. This steady rise in productivity is linked to trade and investment liberalization, greater market openness and privatization of key services. The highest annual productivity growth between 2000 and 2008 was seen in the financial, mining, health, ICT, manufacturing, wholesale trade and 7 World Development Indicators, The World Bank 8 9 Jordan Development Policy Review 2012, Social and The Global Competitiveness Report 2012-2013, World Economic Development Group, MENA, The World Bank Economic Forum SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 8 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Figure 5: Labor Productivity Growth within Sectors (Annual Growth Rates) (2012) Source: Jordan Development Policy Review, the World Bank transportation sectors (above 5%). 10 In contrast, the 9F Demographics: Jordan is a relatively small country tourism, real estate and retail trade sectors with a population of 6.4 million, growing at an experienced a decline in productivity, while average annual rate of 2.2 percent 12. The population 1F government services productivity almost stagnated. is around 80% urban and is one of the youngest This indicates considerable potential for further among upper-middle income countries (see Figure productivity increases from the movement of labor 6), with 38 percent under the age of 14, and 19 from low to high productivity sectors. percent between the age of 15-24 years. Fertility rate stands at 3.8 percent in 2011 (4.2% in rural Poverty and inequality: Though Jordan has made areas), higher than MENA average. significant progress when it comes to poverty reduction, cutting poverty incidence from 21 percent Figure 6: Population Pyramid (2012) in the late 1990’s to 13 percent in 2006 11, the impact 10F has been uneven, widening geographical inequalities. Higher poverty incidence occurs in rural areas, particularly in the south. Moreover, the situation has changed considerably since 2006. The sharp increase of food and oil prices as a result of the global economic crisis and regional turmoil, added to the removal of government fuel subsidies due to fiscal challenges, has put tremendous pressure on the living standards of those at the bottom of the income distribution. By 2010 the country had identified 32 poverty pockets, an increase from 2006 when 22 areas were declared as such. Source: The World Factbook 10 Jordan Development Policy Review 2012, Social and Economic Development Group, MENA, The World Bank 11 Country Partnership Strategy for Jordan 2012, IBRD and 12 IFC, The World Bank The World Bank (Data Bank) SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 9 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 The working age population stands at 57 percent, percent of which were in the public sector. Most jobs and it is on the rise due to the demographic created in the private sector were occupied by non- structure of the population. For historic reasons, a Jordanian workers. While Jordan’s working-age large percentage of the population is of Palestinian population is almost 3.5 million, more than two descent. In addition, around two million registered million are inactive. The working-age population is Palestinian refugees live in Jordan ‒ 31.5% of projected to increase from 3.4 million in 2009 to 4.4 Jordan's population. 13 The political unrest in 12F million in 2020 and to 6 million in 2030 15, which will 14F neighboring countries and events over the past pose tremendous challenges in terms of absorbing decade have resulted in a high influx of refugees new entrants to labor market. The labor force from other Arab countries such as Iraq, 14 Syria and 13F participation rate of those above the age of 15 is Libya, fundamentally changing the economy and among the lowest in the world (40 percent overall), demography of Jordan. with an important gender gap (rates are 65% among males and 15% among females). Employment: Contrary to conventional wisdom that sustained growth rates generate jobs and therefore reduce unemployment, Jordan has experienced little Figure 7: Real unemployment and Growth correlation between high growth and unemployment (2001 – 2011) rates (see Figure 7). Growth has not been sufficient to generate enough quality jobs, resulting in a persistent structural unemployment of around 13 percent that remains high and is likely to increase. This is in part due to the country’s rapidly growing labor force, but also due to skewed incentives to hire and work. Highly skilled labor in particular has sought employment abroad, mostly in oil producing countries of the Gulf Cooperation Council (GCC). An estimated 457,000 net jobs were created during the period of economic growth (2000-2008); almost 42 Source: WDI 13 UNRWA, 2013 14 According to Jordan’s Department of Statistics (DoS), over half a million Iraqis are currently residing in the 15 country. Jordan National Employment Strategy, 2012 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 10 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Figure 8: Jordan’s Dimension-Level Scores 3. Overview of Key Findings and Policy Implications This chapter highlights findings from the assessment of Jordan’s WfD system based on the SABER-WfD analytical framework and tool. The focus is on policies, institutions and practices in three important functional dimensions of policymaking and implementation—strategic framework, system oversight and service delivery. Because these aspects collectively create the operational environment in which individuals, firms and training providers, both state and non-state, make decisions with regard to training, they exert an important influence on observed outcomes in skills development. Strong systems of WfD have institutionalized processes and practices for reaching agreement on priorities, for collaboration and coordination, and for generating routine feedback Note: see Figure 2 for an explanation of the scale on the that sustain continuous innovation and horizontal axis. improvement. By contrast, weak systems are Source: based on analysis of the data collected using the SABER- characterized by fragmentation, duplication of effort WfD questionnaire. and limited learning from experience. The SABER-WfD assessment results summarized To improve system performance, there is a need for below provides a baseline for understanding the greater coherence between the demand for skills current status of the WfD system in the country as and the supply through consistent interventions well as a basis for discussing ideas on how best to from policy design through to implementation. strengthen it in the coming years. Policy Implications of the Findings Overview of the SABER-WfD Assessment Results Reforming WfD system is a lengthy process requiring The scores for Strategic Framework, System strong leadership at all levels, a willingness to Oversight and Service Delivery are all rated at the experiment, and most importantly Emerging level. Figure 8 shows the overall results for consistency/coherence in setting and implementing the three Functional Dimensions in the SABER-WfD long-term national goals. Achieving coherence in framework. The score for each functional dimension WfD policies requires a simultaneous consideration is an aggregation of the scores for the underlying of the demand for skills as well as the supply. Policy Goals associated with it. The findings suggest that while there is wide recognition of the The critical need for the right skills to increase the importance of WfD among policy makers, policies employability of youth and to help accelerate overall and institutions for WfD grow progressively weaker growth has frequently been raised in Jordan’s as the focus shifts from high-level recognition to national dialogue. Hence, the diagnosis within this policy conceptualization, oversight and report does not differ from the issues the implementation. Many of the gaps identified share government is seeking to address. Jordan’s National common root causes, implying that addressing a Agenda (2006), Executive Development Plan (2011) selected gap may lead to progress on related fronts. and the National Employment Strategy (2012) all SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 11 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 place WfD at the forefront of Jordan’s priority Vocational Education and Training (E-TVET) Council reform strategies, where specific goals and targets in 2008 to serve as an umbrella body for have been set. To achieve these goals, high-level coordinating E-TVET strategies at the sectoral level policies need to be translated into implementable was a step forward. However, the Council is yet to actions that enhance the skills development and play the envisioned role. This is due to legislation education systems. Within a complex context, hurdles and overlapping mandates across key successful initiatives and pilots are critical building stakeholders. Furthermore, the Higher Council for blocks that facilitate achieving all-encompassing Human Resource Development (HCHRD), which was results across the entire skills development system. to be established according to the National Agenda International experience in addressing similar issues as the umbrella for the three councils (E-TVET, demonstrates that progress can be achieved only Education and Higher Education), has yet to through a ‘learning to do’ and ‘do to learn’ approach materialize. This institution could serve as a that is strongly supported by continuous and timely champion for the introduction and enforcement of feedback to guide implementation as well as self- measures to create a coherent WfD system. It could correcting adjustments of policy actions. also act as an inter- and intra-sectoral coordination body for: (a) comprehensive assessments of national Based on the assessment, the following actions may economic prospects and implications for skills supply provide a starting point for dialogue on and demand; and (b) alignment of education, higher strengthening Jordan’s WfD policies and institutions. education, labor, and economic and trade policies. The actions identified here are not listed based on priority, but rather linked to each policy dimension, Going forward, the government may consider recognizing that progress on WfD issues is best establishing an apex level body that has a legally achieved in steps. The prioritization of actions must defined mandate to oversee WfD policies and ensure result from an ongoing dialogue and assessment by the implementation and coordination of key Jordanian policymakers that considers the local priorities. This body would also be responsible for conditions and environment. ensuring that players have clear roles and for enforcing accountability for results driven by defined Strategic Framework: Bringing together the strategy and priorities (see Figure 10 in chapter 4). elements of strong strategic framework for WfD Measures would need to be taken to avoid the past requires visible leadership and advocacy based on an pitfalls and to enable institutions to function as understanding of and conviction about the role and envisioned and not just to add another layer of nature of WfD in national development. It decision making, including: (a) providing adequate necessitates sound judgment in identifying strategic resources to the E-TVET Council for implementing priorities and in mobilizing collaborative effort to strategies; (b) officially authorizing the Council to solve critical short-run challenges while keeping an develop sectoral strategies, introduce coordination eye on longer-run ambitions for WfD and national mechanisms and ensure compliance across socioeconomic goals. This calls for a concerted effort stakeholders; (c) establishing a clear and well- to remove practical roadblocks to cross-sector communicated definition of the roles and cooperation among diverse stakeholders where such responsibilities of all the agencies/entities involved; cooperation is vital for achieving critical (d) establishing an independent Executive Secretariat breakthroughs. Despite some positive developments set outside the Ministry of Labor (MoL) to support at the strategic governancelevel in recent years, the Council and act as the single entry point for all there remain key actions for policymakers to issues related to E-TVET reform; (e) setting criteria consider for improving the Strategic Framework of for Board members, and establishing clear roles and WfD in Jordan: responsibilities together with compliance and accountability measures; (f) increasing inclusiveness 1. Establishing an apex-level WfD body. The through the election of private sector representation establishment of the Employment, Technical and at the sector level (not appointment); (g) enabling SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 12 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 the National Center for Human Resources pilots and the capacity of employers (particularly Development (NCHRD) to take a leading role in SMEs). information management and evidence-based policy analysis through convening stakeholders as needed, System Oversight: The main objectives of oversight conducting assessments of skills across economic are to facilitate efficient and effective skills sectors, and institutionalizing a formal feedback acquisition by individuals to improve their process at all stages of dialogue and implementation; employability and productivity, and to enable and (h) adequately rationalizing MoE’s VET and employers to meet their demand for skilled workers MoL’s VTC programs to address the current in a timely manner. The goal is to minimize disconnects. mismatches in skills supply and demand, thereby enhancing the contribution of WfD to economic 2. Adopting a demand-driven approach led by growth and social progress. Based on the diagnosis, industry and the private sector. Partnership with system oversight is the weakest element in Jordan’s industry and the private sector is key to progressing WfD system and thus warrants special focus. The the WfD agenda, and they should be given a leading points below are very much interconnected, role in identifying priorities, setting strategies, reflecting the need to establish an integrated system carrying out oversight and delivering training for funding mechanisms linked to quality assurance services. In the context of Jordan, this remains an to improve system efficiency and effectiveness and area where there is room for improvement. While diversify pathways for skills acquisition. This can only industries are well represented in committees and be achieved through a strong political will and boards, their role is limited and their function needs leadership at all levels. to be clarified. This adds to the mismatch between what the labor market demands and what the TVET 3. Introducing a systematic performance-based sector offers in terms of the design and delivery of funding mechanism that ensures diversification in training. However, a number of emergent initiatives resources and promotes non-state investments in that link providers with employers through joint TVET. Funding arrangements - how money is training programs are being undertaken, such as the mobilized, allocated, and channeled - shape USAID supported Siyaha as part of the Public Private incentives and therefore the decisions made by Partnership (PPP) framework that was developed by individuals, training providers, as well as employers the Vocational Training Corporation (VTC) as a and firms in their capacity as trainers and users of 'formal arrangement' for partnerships. skills. WfD system in Jordan depends on limited resources, mainly from the state, with no linkage to To enhance the scope of these pilot initiatives, the performance resulting in little investments in WfD diagnostic tool highlights actions proven innovation in service delivery. The establishment of effective in other countries. These include: (a) the E-TVET Fund (Article 7 of E-TVET Council law in building upon the PPP Framework developed by VTC 2008) has been a good step towards improving to institutionalize the role of industry as well as efficiency in TVET funding, but further interventions other stakeholders in planning, oversight and will be needed to strengthen the fundingaspect of delivery of demand-driven training services the system. (operationalizing MoUs with other sectors); (b) capitalizing on the successes of ALMPs in The assessment highlights several actions that could be incentivizing employers and introduce financial and considered by policy-makers in the realm of system non-financial incentives to involve employers in both financing, these include: (a) moving from input-based initial training and on-the-job training/skills financing to new performance-based funding upgrading; and (c) identifying areas of good practice mechanisms that provide incentives and accountability to be replicated across other sectors, based on for increased efficiency and effectiveness; (b) offering evaluations of pilots such as Siyaha; recognizing the greater autonomy at the institution level that would challenge that would typically face scaling up of allow flexibility in responding to local market needs (for SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 13 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 example autonomy in managing funds, hiring staff, reference/standard for service provision and designing curricula and sector-specific training accreditation across all training providers; (b) programs, developing partnerships), this would also provide adequate resources and strengthen CAQA to require looking into changing demand-side financing enable it to fulfill its role as an autonomous QA body mechanisms to achieve financial autonomy (such as closely linked with labour market reporting to introducing vouchers); (c) introducing competition into HCHRD (alternatively the apex level body, if and the system as a driver for greater incentives, quality when established,) ; (c)ensure that HCRHD mandate and innovation at the institution (training delivery) address the areas of fragmentation due to the level; (d) expanding the E-TVET Fund’s financing criteria existence of a triple accreditation/quality assurance to include cost effectiveness, program evaluation, system within TVET, within the overall framework of private sector feedback, placement rates, innovation, NQF; and (d) introduce robust testing protocols to established demand, cost per trainee and ensure that it accredit competency-based qualifications within and fulfills its mandate; (e) expanding the E-TVET Fund role beyond the existing formal pathways; including a as an engineforpromoting innovation and scaling up more rationalized pathways between MOE’s VET, goodpractices at the sector level through strong MOL’s VTC, community colleges, and professional monitoring and evaluation mechanisms across all experience. programs;and (f) aligning T-VET Fund role with the overall TVET sector policy at the national level and Service Delivery: Service delivery addresses raising TVET providers’ awareness of the Fund’s criteria implementation challenges in WfD that stand to facilitate their application for additional resources. between a country’s ambition for WfD to support economic development and what materializes in 4. Establishing a quality assurance system reality. Training providers, both stateand non-state, (accreditation, standardization and certification) are the main channels through which the country’s that is uniformly enforced. Creating reliable strategic and systemic policies are translated into standards for quality in service provision and skills operational applications. Despite instances of good acquisition is an integral part of having efficient and practice and some successful pilots, there remain effective system oversight. In Jordan, there are three areas of service delivery that require the following accreditation/quality assurance systems within TVET: key actions: One for technical education (Higher Education Accreditation Commission – HEAC) and two for 5. Ensuring accountability for results through technical, vocational education and training (the robust monitoring and evaluation. Training Center for Accreditation and Quality Assurance – providers (both state and non-state) are loosely CAQA – and the Ministry of Education – VET. This is regulated, and there is a clear gap in terms of aggravating system fragmentation. The accountability for results at the WfD sector level to establishment of CAQA to regulate the quality of meet quality standards. This in part stems from: (a) training and certification system for TVET is a good limited monitoring and evaluation of the delivery of measure; however, it falls under the MoL’s oversight, WfD services; (b) the lack of evidence based even though it technically reports to the E-TVET assessments; (c) the lack of linkages across training Council, and has inadequate by-laws in terms of the providers; and (d) the weak information base for authority to enforce accreditation and competency communicating labor market needs. standards across providers beyond the MoL. Thus, it lacks the autonomy and resources (financial and The following actions may be considered: (a) human resources) needed to play its envisioned role. enhance the monitoring and evaluation system at the sector level linked to accreditation and Going forward, policymakers may consider measures certification – where a TVET sector performance to: (a) ensure that the National Qualifications assessment system and a decision support system Framework (NQF) (including occupational standards) are now being developed under the Bank’s is fully developed and serves as the national supported EDSDP in MoL; (b) introduce and enforce SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 14 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 accountability measures for both state and non-state 6. Providing training that is based on labor market providers through setting clear performance requirements. Curriculum and training programs are indicators; and (c) create a centralized database still developed without adequate input from within NCHRD for tracking activities in the WfD industry. Linkages between industry and training system as a whole, for providing comparative data to providers exist, but are largely sporadic and have yet individual providers to evaluate and improve their to be institutionalized across the system as whole. In performance, and for building a strong labour middle- to high-income nations, and especially in market information system (LMIS) and career large industrialized nations such as the United information that is tailored to be used in a structured States, Germany, and Japan, employer-based and efficient way by specific users including students training programs are the main suppliers of middle- and parents, job seekers, employers, policy makers, to higher-level skills training. universities to ultimately address mismatches in skills supply and demand. Such a database may be The assessment thus highlights the following actions: hosted in NCHRD, E-TVET Council Secretariat, or in (a) introducing incentives to attract private sector the Apex-level body (when and if established), yet investments in the delivery of training (financial more importantly, ALL stakeholders and TVET and/or non-financial); (b) establishing new providers need to be mandated to maintain regular governance arrangements such as autonomous data entry/update and report generation that feeds management boards; and (c) introducing into the system wide report, which is currently being competition that would encourage innovation in supported by the EDSDP along with a decision delivering market relevant programs of high quality support system. (such competition would be not only between public and private providers but also within the public system). SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 15 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 4. Aligning Workforce Development to of linkages between training and labor market and the widening of the gap between private sector Key Economic and Social Priorities expectations and skill profiles available and being WfD is not an end in itself but an input toward delivered; (c) the persistent public perception of broader objectives – of boosting employability and TVET as a marginal tool for easing pressure on higher productivity; of relieving skills constraints on education, rather than a means for aligning labor business growth and development; and of advancing supply with employers’ demand for skills; and (d) the overall economic growth and social wellbeing. This lack of adequate career guidance services and an chapter briefly introduces Jordan’s socio-economic inefficient network of job placement agencies. aspirations, priorities and reforms to contextualize the role of WfD in realizing these broader objectives. Various reforms were introduced in an attempt to In the SABER-WfD framework, this role is defined by tackle the above challenges in the supply of and the following three Policy Goals: (i) setting a strategic demand for skills; however, national efforts continue direction for WfD; (ii) fostering a demand-led to follow a piecemeal approach, yielding modest approach; and (iii) ensuring coordination among WfD results. Due to the disconnect in interventions, the leaders. The ratings for these Policy Goals are gap between education and employment transitions presented below and are followed by a brief has widened. Education reforms in Jordan have been reflection on their implications for policy dialogue. successful in improving enrolment and the quality of education, leading to an increasingly educated Socioeconomic Aspirations, Priorities workforce, yet the labor market has been moving and Reforms towards low-skilled jobs. Additional interventions need to be implemented at all levels, including Socioeconomic challenges in the context of WfD: within the WfD system, starting with policy and The current context of Jordan-Arab awakening poses governance and continuing through to a set of complex challenges for the country, but also implementation in order to address these structural provides an opportunity to address not only mismatches and improve the status quo. immediate political demands, but also institutional and structural reforms for creating an enabling National aspirations and guiding strategies: To date, environment for sustained growth and three major national documents have clearly macroeconomic stability. At the core of creating such identified national socioeconomic priorities and an environment is the challenge of employment, guided their implementation, of which WfD is a skills development and WfD. Despite Jordan’s major component (see Box 1). The National Agenda sustained economic growth, the economy has not (NA) (2005) provides the first major attempt to been able to absorb the increasing influx of job develop a coherent agenda for Jordan’s seekers (60,000 new entrants annually and the socioeconomic and political development, giving number is on the rise) pushing the active-to-total new momentum to placing Jordan at the cutting population ratio to four non-active individuals to one edge of human development and prompting the active worker. It should be noted that this does not beginnings of an era of serious all-encompassing yet include the influx of Syrian refugees, where data change in Jordan. With its vision to “to improve is not yet readily available. This raises questions over quality of life of the Jordanian citizen through the sustainability of Jordan’s economic performance improving standards of living, and providing social as well as the realization of the country’s vision to welfare and social security, and providing new job emerge as a competitive, knowledge and skill opportunities” 16, the agenda defines short-, medium- 15F intensive economy. A number of issues contribute to , and long-term goals along eight themes that were these structural economic challenges, including but identified as national priorities: Political not limited to: (a) the rapid increase in working age Development and Inclusion; Justice and Legislation; population due to changing demographics; (b) the weak performance of the WfD system given the lack 16 National Agenda, 2005 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 16 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Box 1: E-TVET Priorities in Principal National Strategies The National Agenda (2006 - 2015) • (i) Increase workforce employability through adequate training and training programs aligned with market needs; (ii) Improve labor market flexibility and productivity through less stringent labor laws, coupled with the introduction of safety nets; and (iii) Increase workforce size through effective job placement and increasing the economically active segments of the population. The Executive Development Plan (2011 – 2013) • (i) Organize the Jordanian labor market and enhance workers productivity; (ii) Participate in raising the economic rate of the workforce; (iii) Enhance the vocational training system's efficiency and effectiveness to meet the labor market's needs and international standards and (iii) Contribute to decreasing the unemployment rate through provision of training and employment and (iv) stimulate investments to increase employment opportunities (replacing foreign workers with Jordanians) The National Employment Strategy (2012 - 2020) • (i) Upgrade the E-TVET Institutional Framework; (ii) ensure that vocational training programs are demand driven to meet the needs of the labor market in quantity and quality terms; examples of how NES seeks to achieve these objectice: (a) Implementing school-to-work transition and employability programs; b) Activating vocational guidance in the basic stage; (c) review E-TVET Board composition and scope of accreditation body ; (d) Expand awareness campaigns to improve the image of vocational and technical education and training. Investment Development; Financial Services and vocational training framework by establishing: (a) Fiscal Reform; Employment Support and Vocational the Higher Council for Human Resource Training; Social Welfare; Education, Higher Development (HCHRD), (b) the Employment, Education, Scientific Research and Innovation; and Technical and Vocational Education and Training (E- Infrastructure Upgrade. The phases of Jordan’s TVET) Council, (c) the Outplacement Department, socioeconomic transition call for a focus on: (a) and (d) an independent Licensing and Accreditation productive employment for all in the period 2007-12; Council for the Vocational Training sector. This (b) upgrading and strengthening the industrial base national framework presented an all-encompassing between 2013 and 2018; and (c) world-class strategy for addressing several of the issues competition in the world-wide knowledge economy mentioned above. However, this new institutional from 2018 onwards. Two of the eight themes framework never materialized as envisioned. Among address the WfD issues of education and these recommendations, only the E-TVET Council employment, proposing radical reform concepts and and the accreditation center (CAQA) were strategies. established, with the latter not as an independent authority but rather as a unit that falls within the Under the Employment Support and Vocational purview of the MoL both administratively and Training theme, the NA aimed to create 600,000 new financially, while technically reporting to the E-TVET jobs, halve the unemployment rate and reshape the Council. While the NA has recognized the need to skills of the labor force by expanding vocational adopt a holistic approach and align employment and training and employment support. On the E-TVET education interventions with investment institutional framework specifically, the NA development strategies (mainly through suggested a restructuring of the employment and development of labor intensive and export oriented SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 17 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 industries and trade services), implementation has and political parties, to develop the agenda and been mixed and sporadic, with some objectives monitor progress. The NA is currently being updated being met, but many others falling behind. with a new timeframe. The EDPs are led by the Ministry of Planning (MoP) with more specific Development Plans were developed to translate the implementable plans. The NES, on the other hand, is vision of the National Agenda into implementable a comprehensive employment strategy that stems actions/plans, the most recent being the Executive from the NA but addresses Jordan’s socioeconomic Development Program (EDP) for the period 2011- problems through the lens of employment. It was a 2013. The Program is a comprehensive work plan joint effort of multiple stakeholders from the adopting the recommendations of the National government and private sector, led by the MoL and Agenda, His Majesty's letter of designation to the MoP and supported by the World Bank. The NES Government, and sectoral strategies (24 sectors provided more specific and concrete actions in the prioritized) to complement previous programs and short, medium and long term through closely build upon achievements. The premises examining what has been implemented so far under underpinning the EDP are based on the NA, and the NA and previous national plans and building continue to underscore the role of education and upon them. skills development in tailoring the country’s human capital to the needs of the private sector and E-TVET Reforms: Education has clearly been an area propose several areas of intervention. of concern for Jordan over the past two decades, and with the increasing focus on building the country's As a response to the fragmentation of interventions human capital to develop into a knowledge-based and deriving its vision from the NA, the National economy in recent years, it has been placed at the Employment Strategy (NES) was developed in 2012 forefront of national priorities. Jordan has invested and has adopted an integrative approach that considerably in education since the onset of broader examines investment policies, fiscal and monetary educational reform in mid 1980s and has achieved policies, education and higher education, vocational significant results at all levels (from basic to tertiary). training, and social welfare, all through the lens of The biggest share has gone into investments in employment, with a vision to “Improve standards of professional/high skilled labor and R&D/scientific living for Jordanians, through increased employment, fields and less into other skill categories and fields. wages, and benefits, and productivity While E-TVET has received support, these improvements”. The NES promotes the gradual investments have been comparatively less replacement of foreign workers by (skilled) substantial. A number of E-TVET reforms are Jordanians, addressing structural unemployment and ongoing, which include: (a) the ERfKE Vocational the need to upgrade the E-TVET system. A Education (VE) component being undertaken in committee headed by the Minister of Labour has collaboration with the E-TVET Council to restructure been established in order to follow up on and realign all elements of the secondary education implementation of the NES action plan and vocational stream with the sector policy, program, recommendations. While implementation of short- certification, accreditation and quality assurance term actions is underway, it is too early to assess initiative; (b) the VTC restructuring and E-TVET progress. Council institutional development under the Employer Driven Skills Development Project (EDSDP) It is important to note that the NA is the main supported by the World Bank, and (c) the reform of guiding document for the country’s plans and technical education to improve governance, strategies. It is a high-level initiative formed by a management and relevance of community colleges Royal Decree, where a special committee was under the Support to Higher Education Reforms established under the Prime Minister’s Office, Technical Assistance supported by the World Bank comprising representatives from the Government, and the Canadian International Development Agency Parliament, civil society, the private sector, media (CIDA) – but the draft law that is a prerequisite for SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 18 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 implementing these reforms is still in the pipeline Figure 9: SABER-WfD Ratings of Dimension 1 stage, and so the reforms have taken place at a slow pace and international support was halted in 2012. SABER-WfD Ratings of the Strategic Framework Based on data collected by the SABER-WfD questionnaire, Jordan receives an overall rating of 2.1 (Emerging) for the strategic framework Dimension (see Figure 9). This score is the average of Note: see figure 2 for an explanation of the scale on the the ratings for the underlying Policy Goals: (i) setting horizontal axis. a strategic direction for WfD (2.5); (ii) fostering a demand- driven approach (1.8); and (iii) Source: based on analysis of the data collected using the SABER-WfD questionnaire. strengthening critical coordination among the actors at the leadership level of decision-making (2.0). The explanation for these ratings and their implications took the lead in 2006 to develop the vision and follow below. mission for the E-TVET sector and subsequently translated the vision into an action plan along with Policy Goal 1: Setting a Strategic Direction the establishment of the E-TVET Council and Fund for WfD Board, both chaired by the Minister. While these actions provided a basis for reform, they did not Leaders play an important role in crystallizing a constitute a comprehensive policy embracing all strategic vision for WfD appropriate to the country’s training providers that are beyond the purview of unique circumstances and opportunities. Their MoL. Despite the efforts, an apex-level body or advocacy and commitment attract partnership with leader that can pull the various elements of WfD into stakeholders for the common good, builds public a coherent national plan aligned with the country’s support for key priorities in WfD, and ensures that economic challenges and priorities is still missing. critical issues receive due attention in policy Figure 10 illustrates the E-TVET institutional dialogue. Taking these ideas into account, Policy framework as suggested by the NA and NES, Goal 1 assesses the extent to which apex-level recognizing that coordination and guidance need to leaders in government and in the private sector take place within an umbrella structure (Higher provide sustained advocacy for WfD priorities Council for Human Resource Development) that through institutionalized processes. Jordan scores at represents the supply and demand sides of policy the Emerging level on this Policy Goal. making as well as the main stakeholders. Strategic Focus and Decisions on WfD: The Advocacy for WfD to Support Economic prioritization of WfD across all national plans Development: There are a number of organizations demonstrates a level of government support and and initiatives that advocate for E-TVET/WfD. Yet, willingness to reform WfD. However, the clear and these should not be considered as visible champions consistent leadership needed to translate vision into or leaders for the sector given the limited scope of coherent actions with impact has yet to materialize. the small projects and innovations they implement. This is in part due to the lack of a visible champion A number of initiatives are contributing to WfD capable of bringing the efforts of multiple national advancement including some of VTC's cooperation and international stakeholders together and with international donors and target sectors, such as mainstreaming good practice to create a critical Siyaha project targeting tourism sectorwhich was mass for improvement. There are examples of implemented by VTC in collaboration with USAID and existing WfD stakeholders initiating specific actions national tourism council, funded by E-TVET Fund. on strategic WfD priorities. For example, the MoL The model is driven by public private partnerships SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 19 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Figure 10: E-TVET Institutional Framework Source: author’s construction from NA and NES and is based on transforming vocational training The business community and private sector, which centers to 'model centers of excellence' that provide could serve as influential champions are largely specific training in line with the needs of the tourism absent in terms of advocating for a strategic vision industry. Following the success of Siyaha, the for WfD. This - in great part - stems from the lack of VTC/MoL has expanded this Model Skill Centers of involvement and thus ownership from the private Excellence (MSCoE) and partnerships to other sector in the decisions on WfD priorities. At present, sectors. The VTC, with support from EU and other this involvement is sporadic and focuses on donors, is in the development phase of MSCoEs in advancing sectoral agendas as opposed to broader the Water, Pharmaceutical Manufacturing, national development priorities. The Jordan Army Refrigeration and Sheet Metal Working, Health & Forces cooperation with the private construction Safety, Handicrafts and Renewable Energy sectors. sector is an example of such efforts; the Satellite Additionally, the VTC is working with the Schneller Centers Project is another example of cooperation Schools (TSS) to develop MSCoE on their premises between the MoL, E-TVET Fund & the privet sector for Hospitality and Automotive.Considerable to support youth inrural areas across Jordan. innovation is also taking place in the not-for-profit However, results have so far been mixed to limited. and private training sector. There is a rich spectrum of programs, some of which are donor supported, Policy Goal 2: Fostering a Demand-led aimed at male and female students at various Approach to WfD educational levels, that offer cost-effective and innovative methods of providing immediate skills Effective advocacy for WfD requires credible necessary for the work environment, however these assessments of the demand for skills, engagement of programs are still young and it is early to measure employers in shaping the country’s WfD agenda and the impact on beneficiaries incentives for employers to support skills development. Policy Goal 2 incorporates these ideas SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 20 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 and benchmarks the system according to the extent Role of employers and industry: There is no clear or to which policies and institutional arrangements are defined role given to the private sector in defining WfD in place to: (i) establish clarity on the demand for priorities and agenda, with the exception of the skills and areas of critical constraint; and (ii) engage appointment of private sector representatives to sit on employers in setting WfD priorities and in enhancing Boards (for example, the E-TVET Council board, E-TVET skills-upgrading for workers.Jordan scores at the Fund committees, VTC Board, and the Ministry of Emerging level for Policy Goal 2. Higher Education and Scientific Research (MoHESR) advisory committee for technical education). As it Assessment of economic prospects and skill stands now, the private sector members who serve on constraints: The government and other WfD these committees and boards are not officially stakeholders conduct occasional assessments of the nominated or elected by the private sector and have no country's economic prospects and skills implications legal mandate from the private sector to speak on its for a number of sectors. There is a set of studies that behalf. Instead, these individuals simply represent their are conducted on an ad-hoc basis, either by the own enterprises (or themselves in most cases), with the government or international partners. These studies same being true of individuals representing the provide a fairly up-to-date picture of skills demand in Chamber of Industry and Labor Federation. Their inputs Jordan; however, they are not sufficient to provide a reflect the needs of their individual organizations; for complete picture of the country’s economic instance, both the Chamber of Commerce and the prospects and economy-wide skills implications. The Chamber of Industry have been working separately on most recent and comprehensive is the National a skills needs analysis for priority sectors. As another Employment Strategy (2012) that provides a formal example, the sector association for ICT (Int@j) is assessment of Jordan's economic prospects and planning, together with the ICT Workforce Assessment, labor market from both the demand and supply sides to assess the gap between ICT private sector demand and their implications on a number of issues. Other and the higher education supply of skilled human reports that touch upon economic prospects and resources, develop the IT Qualification Framework and skills implications include: (a) World Bank’s develop a training coordination institution, supported “Development Policy Review” prepared with by the International Finance Corporation (IFC) under its Ministry of Planning and International Cooperation Education for Employment (e4e) initiative. On the and the Economic and Social Council (World Bank, whole, little to no cooperation exists across any of 2012), (b) International Labour Organization’s (ILO) these individual initiatives. “Employment Policies” paper and action plan prepared with the MoL (ILO, 2007); (c) ILO’s “Global The private sector is seldom approached to Jobs Pact Country Scan for Jordan” (ILO, 2011); (d) participate in defining WfD priorities, and when this the World Bank’s “Resolving Jordan’s Labor Market occurs, it is limited to representation in meetings Paradox of Concurrent Economic Growth and High where they are often viewed as ‘guests/ observers’ Unemployment” (World Bank, 2008), and (e) the in the groups in which they participate. The “Jordan Human Development Report, 2011” (UNDP identification of 'who sits on which board/committee and MOPIC, 2011). The Department of Statistics from the private sector' is still made by the (DoS) conducts different economic related surveys to government or entities such as the chambers (para- serve as inputs to such studies and assessments, government agencies), and thus there is little room such as: (i) the unemployment survey, (ii) survey of for assuming a leadership role. The issue of limited employment in establishments, and (iii) the private sector engagement is also linked to the fact household expenditure and income surveys. The that SMEs account for 94% of all enterprises in the findings of the above assessments and papers Jordanian market, and they focus on underpin major interventions and reforms targeting immediate/quick wins and do not necessarily have WfD and/or specific industries in Jordan. the sufficient resources and capacity to contribute to long-term national WfD goals compared to giant industry leaders. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 21 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Incentives for skill upgrading and monitoring: Policy Goal 3: Strengthening Critical Coordination Employers make limited contributions and are not for Implementation active in addressing the skills implications of major Ensuring that the efforts of multiple stakeholders policy/investment decisions. There are many factors involved in WfD are aligned with the country’s key that may influence firm behaviors, for instance, tax socioeconomic priorities is an important goal of policies affect firm and worker behavior, including strategic coordination. Such coordination typically their incentives to train.Individual firms often cannot requires leadership at a sufficiently high level to spare the time to codify their skills requirements, overcome barriers to cross-sector or cross- particularly if they employ few people or operate in a ministerial cooperation. Policy Goal 3 examines the fast-changing business climate. Overall, Jordan lacks extent to which policies and institutional a coherent set of incentives to encourage skills arrangements are in place to formalize roles and upgrading by employers in the formal and informal responsibilities for coordinated action on strategic sectors. The focus in Jordan has been in particular on priorities. Jordan scores as Emerging for Policy initial vocational education and training (IVET) and Goal 3. training related ALMPs to reach disadvantaged and other target groups. Incentives are limited to Roles of Government Ministries and Agencies: The employment initiatives that are designed as a E-TVET system is highly fragmented with many combination of training and upskilling of new players operating in isolation, even though graduates followed by deployment, the incentives legislation and agreements amongst stakeholders can include wage subsidies, or covering the cost of exist to promote coordination. At the government social insurance/benefits etc, but these are not level, various ministries and agencies have legally systemized, and are one-time interventions or defined roles and responsibilities in E-TVET: the MoE, initiatives based on employment activities. Overall, MoHESR, MoL, VTC, Balqa Applied University (BAU), these programs do not target skill upgrading of the National Employment and Training Company existing employees, however, some up-grading (NEC), the National Center for Human Resources programs are organized by VTC for employed people Development (NCHRD), Civil Service Bureau (CSB), based on special needs from companies. A recent and Higher Education Accreditation Commission survey found that Jordan’s companies rank among (HEAC). Each is governed by different laws, with a the lowest of Arab countries in terms of providing high degree of overlapping mandates. Accordingly, training to their employees, where the percentages each of these entities sets its own strategy. While of companies training existing employees and new the E-TVET Council was envisioned to play the hires are 38% and 47% respectively (see Figure 11). umbrella role of setting the strategy at a sectoral level, the Education Board continued to set the Figure 11: Percentage of companies that provide training strategies for vocational education at the secondary to employees level, although these were presented to the E-TVET Council; the Council for Higher Education continued Yemen 58 to set the strategies for TVET at the community 71 college level; and the E-TVET Council was limited to 38 Saudi Arabia 49 setting the strategy for MoL programs, VTC, and 55 NEC. Morocco 63 Jordan 38 Coordination for the Implementation of Strategic WfD 47 Measures: Despite the numerous committees 43 Egypt 71 convening major WfD stakeholders such as the E-TVET Council Board, or the VTC Board, strategic coordination 0 20 40 60 80 efforts face implementation issues and rarely lead to meaningful progress. The E-TVET Council was New Hires Existing Employees established to carry out the overall coordination role at Source: IFC and Islamic Development Bank, 2011 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 22 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 the sectoral level (Figure 10), by assembling relevant TVET (see Box 2). Establishing such a body would ministries, employers and other stakeholders. follow India’s example, where the government However, the ability of the Council to lead coordination recently created three new structures to set a across providers governed by independent bodies and strategic direction for WfD and coordinate policy boards has proven difficult. This is where an apex-level development and implementation on key priorities: body would play a role to strengthen the E-TVET the National Council for Skills Development, chaired Council by enforcing and institutionalizing coordination by the Prime Minister; the National Skill mechanisms across providers and players. Currently, Development Coordination Board, chaired by the coordination is done through ad-hoc mechanisms, deputy chairman of the Planning Commission; and where non-state WfD providers and stakeholders have the National Skill Development Corporation, headed no legally defined roles and responsibilities. The laws of by an eminent private sector industrialist. In India, the chambers and trade unions stipulate their the roles of these bodies are clearly defined in responsibility towards supporting the E-TVET sector relation to the country’s strategic agenda – centered and representing employers, but the extent to which on an ambitious target of equipping 500 million this is translated into actual strategic inputs is unclear. people with job relevant skills. As for employers, a legally binding agreement does not exist between the government and employers. Rubrics: In advanced WfD systems, government However, there are exceptions and good examples of ministries and agencies responsible for WfD have well partnerships and agreements that were developed; an defined mandates with hardly any overlap and rely on important benchmark is the development of the Public institutionalized mechanisms for coordination; key non- Private Partnership (PPP) framework by VTC, which is government WfD stakeholders have legally-defined roles and responsibilities and coordinate with the government considered a kind of a 'formal arrangement' for through institutionalized mechanisms; strategic WfD partnerships, in addition to the partnerships that are measures are accompanied by an implementation plan formed under the E-TVET Fund between various and budget with routine monitoring of progress and government agencies, private sector and key investors. successful features are mainstreamed into the WfD system. Implications of the Findings 17 16F Institutional Framework: WfD is a vital component of ongoing dialogue around Jordan’s development strategy. While the E-TVET sector has languished for some time, steps have been taken to rectify its governance issues. Of particular importance was the establishment of the E-TVET Council, the CAQA, and the E-TVET Fund. One of the key recent developments also is the dissolution of the E-TVET Fund Board, which included training providers that are recipients of funds, and delegating the funding decision responsibility to a sub-committee that does not include training providers but only industry representatives. However, Jordan still lacks an apex- level body to ensure institutionalized and sustained leadership and coordination for WfD in Jordan, as envisioned in both the NA and NES (Figure 10); this needs to be high on the action list for reforming E- 17 Implications make reference to the SABER-WfD scoring rubrics. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 23 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Box 2: NES Priorities for the New Institutional Assessment of Skills: The development of a strategic Framework for E-TVET agenda for WfD in Jordan will require well-informed Establish the HCHRD, headed by the Prime Minister, with one understanding of the nature of the country’s unique of the ministers as deputy in case of the absence of the Prime skills challenges. In this regard, key policy-makers face Minister, and composed of members from the main ministries significant information gaps on training provision and concerned with HR and employment issues (Education, Higher skills demand. While having a robust Labor Market Education, Labor, Economy and Trade), representatives of the Information System (LMIS) and Educational private sector and labor unions, and some of the specialized technical institutions (the NCHRD and the High Population Management Information System (EMIS) will help fill Council). some gaps, there is a need as well for critical inputs from all stakeholders, including employers and training Provide the NCHRD with the necessary resources and providers through routine and credible assessments. staffing to reassume its vital role in HR and labor market information and policy analysis. Its role should include This would be in line with NES action to enable NCHRD independent evaluation of all training and ALMPs. 18 It is also 17F to take a leading role in evidence based policy analysis proposed that the NCHRD be the Secretariat of the HCHRD and convene stakeholders as needed. In Europe, WfD to ensure evidence-based-policy making, with the NCHRD policies are being informed by detailed analyses providing timely information and analysis to decision conducted by the European Center for the makers. Development of Vocational Training for the 27 Acknowledge the de facto separation of the three arms of countries of the European Union. Countries such as vocational training (vocational high schools, technical colleges, Ireland have developed arrangements that move and the VTC and programs under the oversight of the MoL), but beyond reliance on informal employer feedback or ensure coordination at the HCHRD level. basic industry and labor force surveys. In 1997, Ireland Strengthen the accreditation function by re-drafting the by- established the Expert Group on Future Skills Needs to laws and build the capacity of an independent “TVET advise on strategic directions for skills development Accreditation Council.” based on multiple sources including: employers, Re-consider the role of the NEC along the lines proposed by an research institutions and training providers. Skillnets, independent evaluator, given its poor performance so far. an industry-led training network created in 1999, Support the VTC to become more responsive to private ensures training programs are aligned with industry sector needs by expanding on innovative approaches carried needs. The establishment of these institutions has out by private sector associations. helped Ireland to address information gaps that hinder Allow the NEC and the VTC to compete for ETVET Funds on strategic decision-making and coordination. In Jordan, an equal footing with other public, private, and NGO the establishment of the PPP framework could be the vocational training providers on the basis of cost stepping stone for establishment of such partnerships effectiveness, program evaluation, private sector feedback, and the development of a national network Centers of and placement rates. Better financial management of the ETVET Fund (already underway) will allow it to attract other Excellence that is articulated within the broader E-TVET sources, such as donor funding and government budget system. The framework could be adopted by other funding. providers and by the government at the national level as a basis for establishing institutional arrangements Develop the MOL’s local offices’ capacity to carry out employment and career guidance and counseling aimed at and formalizing the role of the private sector in WfD at the unemployed for job searches, retraining, or access to all levels. micro finance. Rubrics: In more advanced WfD systems, the Support the DOS’s efforts to improve statistics on job government or WfD stakeholders have identified critical creation, labor migration (in- and out-), and skill skills constraints in the key priority economic sectors, mismatches. based on formal, well-informed assessments; selected measures are being taken to address the skills constrains (e.g., reforming existing courses, dedicated budgets); and 18 WfD champions are associated with these measures to The NCHRD’s by-laws include evaluation responsibilities some extent. but that function was never operationalized. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 24 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Leadership and Private Sector Role: Leadership is marginalization through youth activism, civic key in advancing WfD goals. Leaders who are engagement and education. Due to Aramex’s strong committed to achieving growth and who can take position in the market and committed management, advantage of opportunities from the global economy it was able to bring together different players and proved to be the most successful in shaping the skills establish long-term partnerships between the agenda.Advocacy for WfD by top-level national private sector (such as Aramex, Abraaj Group and leaders can turn the public’s attention onto WfD and Cairo Amman Bank), civil society organizations and helps to legitimize WfD as a priority for economic NGOs, governments, social and business development. Such advocacy and focus is not entrepreneurs, and communities to support necessarily more effective if it comes from the Ruwwad. At the heart of the model is the Mossab government, private sector leaders can highly Khorma Youth Empowerment Fund which provides influence theWfDagendawhether relatedto broad youth with scholarships to attend local universities in challenges that are long term in nature or to more specific areas of study in exchange of a minimum of specific and immediate concerns.A good example of 4 hours of volunteering a week in their community. such leadership in Jordan is Aramex. Aramex played In addition, Ruwwad provides youth with free the role of a ‘champion’ to advance the English and IT classes, enrolls them in an enrichment entrepreneurship and skills development agenda and program where executives from the private sector was successful to influence many actors at the teach them soft skills such as business ethics, sales, regional level. Aramex started supporting the customer service, financial literacy, etc. and exposes entrepreneurial ecosystem by hosting and them to global, regional and local leaders in supporting events and networks across the MENA numerous fields (business leaders, public sector region such as Wamda and its Mix n’ Mentor events, officials, etc.) through guest speaking series. It has MIT Enterprise Arab Business Plan Competition, also expanded its efforts to include a Micro-Venture Celebration of Entrepreneurship (CoE), ArabNet, Capital Fund that aims to provide the community in Global Entrepreneurship Week (GEW) events, Jordan with access to knowledge, skills development, various e-commerce events and Injaz Al Arab capital and networks to start and/or grow activities (where private sector volunteers teach sustainable businesses through equity partnership. entrepreneurship in local public schools and Ruwwad’s success in Jabal Al- Natheef in Amman has universities). Aramex went on to establish led to the implementation of the model in other Ruwwad for Development (Entrepreneurs for countries across MENA such as Egypt, Palestine and Development), a non-profit private sector led Lebanon. This is a clear example how private sector community empowerment organization that leaders can advocate and champion WfD agenda. helps disadvantaged ncommunities overcome SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 25 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 5. Governing the system for Workforce providers that have agreements with VTC to link training to qualifications), and non-formal training by Development for-profit and non-profit (NGOs) that do not lead to An important function of WfD authorities is to formal qualifications; and (b) enterprise-based training. facilitate efficient and effective skills acquisition by Figure 12 outlines the current structure of the formal individuals and to enable employers to meet their Jordanian public education system. demand for skilled workers in a timely manner. The objective is to minimize systemic impediments to Despite the existence of some non-public providers skills acquisition and mismatches in skills supply and in Jordan, the majority of training provision is public demand. The SABER-WfD framework identifies three and limited to the above three institutions, yet pertinent Policy Goals corresponding to oversight governance at the sector level remains weak. The mechanisms for influencing the choices of sector lacks a comprehensive strategy that brings the individuals, training providers and employers: (i) different components or subsectors of TVET together ensuring efficiency and equity in funding; (ii) assuring to address the needs of the economy in a holistic relevant and reliable standards; and (iii) diversifying manner and to ultimately allow diverse pathways pathways for skills acquisition. This chapter begins and smooth mobility across the system. Although the with a brief overview of the institutional landscape MoL took the lead in 2006 and developed an E-TVET for governance of the WfD system, then presents the strategy based on the recommendations of the NA, detailed SABER-WfD results, and concludes with a its implementation has been difficult for a wide discussion of the policy implications of these results. variety of reasons: (a) the strategy is not supported by an agreed timeframe, or human or financial Overall Institutional Landscape resources that can enable coordinated implementation. For instance, the overall Organizational and governance structures: TVET in governance and implementation structure of the E- Jordan is understood in terms of lifelong learning and it TVET Council, CAQA and the E-TVET Fund have all consists of three main public segments that deal been put under the responsibility of MoL in some primarily with initial training: (a) secondary vocational way, without support to strengthen its institutional education (grades 11-12) as part of upper secondary capacity to lead or coordinate E-TVET sector reform; education under the MoE; (b) non-formal and formal (b) E-TVET falls under the mandate of several vocational education and training as delivered by the ministries and public agencies regulated by different VTC; and (c) technical education and training as offered laws; decisions are fragmented across three high- by community colleges (grades 13-14) under the aegis level boards/councils that are different in nature: the of Al-Balqa Applied University (BAU). The National Education Board for secondary level vocational Employment and Training Company (NEC) can be education; the Higher Education Council for considered a fourth semi-public body, established in community college and university level training; and 2007 when the Jordanian Armed Forces (JAF) was the E-TVET Council for VTC and NET training; (c) few mandated to develop and implement a project to train actions are taken by the above-mentioned and employ (30,000) young Jordanians/civilian stakeholders to implement common strategies that employees in construction sector trades in are approved in the E-TVET Council; and (d) the E- collaboration with the MoL and the private sector. NEC TVET Council has not been able to effectively provides a one-year vocational training program in the coordinate implementation on supply side policies construction sector followed by employment. In (education and higher education) at a sectoral level. addition, TVET in Jordan also has two non-public As noted in Chapter 4, there is a critical need to aspects: (a) private or non-government training, review roles and responsibilities to ensure a clear provided mainly through private community colleges, division of labor and complementarity among some non-profit formal training programs (for example, government agencies in terms of policy making, the United Nations Relief and Works Agency (UNRWA) funding, accreditation, quality control, curriculum delivering the MoE curriculum and other non-state development and hiring/up-skilling of trainers. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 26 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Figure 12: Structure of Public TVET System in Jordan Education System Labor Market Level Accreditation University Education HEAC (4-year BA or more) Professional grades 13 – 16 Comprehensive Community Colleges exam 2-year Diploma HEAC Technician (grades 13 – 14) Technician 63% Diploma Tawjihi CAQA (VTC Craftsman previously) 2-4 Terms Secondary Education (grades Vocational Training 11 – 12) Centers CAQA MOE for Academic Vocational 2 Terms Skilled (for VTC ministry Programs) Programs Streams Streams 75% 12% 1 Term Semi- Skilled CAQA MOE for (for VTC ministry Programs) programs Basic Education (grades 1 – 10) Source: author’s construction While Jordan performs well in terms of responding needs to be improved so that: (a) it is not a path of to social demand by granting access for place both in last resort for students, and (b) both students and general education and in TVET, TVET is not seen a parents to see the value in choosing TVET as a viable career or education option, and therefore pathway to the job market.Each year, around demand for TVET has been declining over the years. 125,000 young people complete grade 10 through While sheer enrolment figures has increased slightly the general education, and virtually all go on to some in the VE stream in MoE over the past few years, the form of additional education and training. Students total participation rate in TVET as a percentage of all are then streamed mostly based on performance – enrolledin education/training has been declining. For measured by a high-stake secondary examination instance enrollment in secondary vocational (Tawjihi) – and not on personal preferences. To date, education as a share of total secondary enrollment there is not a single system in place for accreditation declined from 18 percent in 2000 to 14 percent in of learning to allow mobility across the system 2009 19. Also it is worth mentioning that underlying 18F pathways, which has a direct impact on the demand reasons for enrolling in VET might differ; 10 graders for TVET. Progression Opportunities are slightly more may tend to get into VET as an easier connection to flexible for graduates of MoE’s vocational secondary higher education when compared to general schools, who can getaccess to post-secondary education “Tawjihi”. The image of TVET vis-à-vis education through the Tawjihi exam to community other types of education and professional options colleges ormost academic programs in universities except for engineering and medicine. Meanwhile, 19 the VTC and BAU have establishedan agreement USAID, Jordan Fiscal Reform Project, Education Public adoptedin some VTC institutes whereby students Expenditures Working Paper, August 2011 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 27 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 who pass vocational Tawjihi can sit for the of the total government budget 21. The share is low 20F comprehensive exam run by BAU and earn a compared to other countries in the region with “diploma”, and those who do not pass, can still earn average spending ranging between 18 and 20%. a ‘technician diploma’ from VTC. The fact that However, education expenditures have grown at a vocational streams are provided within formal slightly higher rate than total government secondary education has helped to make vocational expenditures over the past ten years: education studies more acceptable to both young people and expenditure grew by 170% compared to 164% for parents, albeit not sufficient to boost demand for the total budget. vocational education. While in 2011 155,061 students chose the academic secondary education Education spending as percentage of the GDP has and only 25,040 (16%) chose to pursue vocational gone down from 4.9% in 2001 to 3.8% in 2011, which streams, in 2006 these figures were 153,000 and is below the level of lower middle income countries 30,800 respectively 20. 19F (4%) and worldwide average (4.6%) 22. As reflected in 21F Figure 13 the education budget is distributed across In the area of technical education, the community six entities of which MoE consumes the largest share college system is subsumed under the Al Balqa (86%). Employees in education represent 40% of Applied University (BAU) and does not have a clear public sector employment, where 92% percent of the governance, management or budgeting system that recurrent budget is spent on salaries. From the allows it to respond to the need to develop a highly overall 2011 budget for public education, 2.81% was qualified technical workforce in Jordan, making it spent on secondary vocational education (MoE) less attractive. Around 25% of the graduates of MoE (which represents 3.2% of the Ministry’s budget and vocational streams enroll in community colleges and 20% of the combined secondary and vocational around 20-25% of diploma graduates from education budgets), and 1.4% was dedicated to community colleges advance to bachelor’s degree vocational training (VTC). As is the case in countries programs (this progression is called ‘bridging’ and with advanced WfD systems, in Jordan the costs per requires students to take a ‘comprehensive exam’). instructional hour per trainee in TVET are higher In higher education, the differences in enrolments than those in academic programs at comparable are even more evident where in 2011 only 28,695 (12.6%) Tawjihi students enrolled in Community Figure 13: Jordan’s Education Budget for 2011 Colleges, while 226,713 enrolled in academic universities. To reverse this trend, the MoHESR with support from CIDA and the World Bank, embarked on a strategy is to create an independent community college network, thereby separating community college diploma programs from university programs currently managed jointly under the BAU; new programs with strong links to local and regional industries and businesses will be opened, and non-relevant programs eliminated.However, implementation has been slow and to date this transition has not taken place. Financing Skills Development: The public budget is Source: General Budget Law 2011 still the main source of financing for education and TVET at large. In 2011, publicly funded education programs totaled to JD 836.5 million, which is 12.7% 21 General Budget Law 2011 22 USAID, Jordan Fiscal Reform Project, Education Public 20 General Budget Law 2012 Expenditures Working Paper, August 2011 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 28 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 levels of instruction: JD 365 per academic secondary The E-TVET Fund was established in 2005 with the student, JD 813 for MoE students (average objective of financing and expanding on-the-job enrolment 25,000 per year) and JD 1,300 for training and demand-driven technical and vocational VTC students (average enrolment 10,000 per year). training by both public and private providers, as well There is a clear funding gap in the TVET sector, as to improve the efficiency and quality of programs. especially when all costs associated with this type of Prior to the amendment of the Income Tax Law, its education are factored includingequipment costs, financing came from a tax levy of one percent over maintenance, raw materials, teachers for theory and private enterprise profits (which constituted 72 practice, etc. This is limiting the number of students percent of funding), revenues from foreign workers’ that can be absorbed and leaves little space for permits, government contributions and donations or innovations in TVET provision. financial aid; excluding non-Jordanian funds which shall be subject to approval by the Council of The situation for technical education is different. The Ministers. However, the Tax Law of 2009 eliminated responsibility for the Community College system was the tax levy leaving the Fundreliant on a deduction transferred from MoHESR to BAU in 1996, which was of a set amount 23from each worker’s permit granted 2F established by the government with a mandate to to foreign labor. This raises questions about the coordinate the activities of all public and private financial viability as this funding modality contradicts colleges in the country in addition to offering applied the national objective of replacing foreign workers technical and vocational programs at BA level. BAU is with Jordanians. The E-TVET Fund provided almost therefore responsible for the governance and JD 94 million to ETVET activities between 2005 and management of public community colleges, including 2010, and it is one of the main sources of funding for the financing of these institutions. All decisions on ALMPs. investments and budget allocations are made by BAU. Jordan’s higher education (HE) institutions have SABER WfD Ratings on System Oversight seen declining government support in recent years, but the fees that students pay remain minimal The SABER-WfD framework identifies three pertinent compared to the actual expenditure/cost per Policy Goals corresponding to oversight mechanisms student. Like any other HE institution, BAU receives for influencing the choices of individuals, training budget support from MoHESR, but is mainly providers and employers: (i) ensuring efficiency and dependant on its own revenues and some foreign equity in funding; (ii) assuring relevant and reliable loans and donations. BAU allocates funds to public standards; and (iii) diversifying pathways for skills community colleges based on historical trends, the acquisition. The ratings for these Policy Goals are number of students and the staffing level. While presented and explained below, followed by a community colleges were established to offer reflection on their implications for policy dialogue. effective technical education programs characterized by their linkage with, and foundation in, the Based on data collected by the SABER-WfD knowledge, skills and abilities required to questionnaire, Jordan’s system receives an overall immediately engage in employment, most rating of 2.0 (Emerging) for system oversight (see community colleges have grown to offer both BA Figure 14). This score is the average of the ratings for (based on BAU programs) and diploma programs. All the underlying Policy Goals: ensuring efficiency and program fall under the same budget with no equity of funding (2.0); assuring relevant and reliable specificity in the investments and spending on standards (2.2); and diversifying pathways for skills 'technical education' or diploma/polytechnic acquisition (1.8). The explanation for these ratings programs, therefore, diploma programs tend to and their implications follow below suffer from a large funding gap particularly in 23 providing adequate up-to-date facilitiesdue to this 130 JD per each permit in Wholesale and retail trade unclear distribution - based on a number of sector, Maintenance and repair of vehicles, and hotel and assessments of technical education in Jordan. restaurant sector, 70 JD per permit in the Agricultu-ral Sector and 40 JD per each permit in other sectors. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 29 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Figure 14: SABER-WfD Ratings of Dimension 2 the committee of project funding, which does not include training providers as members (mainly representative of private sector, chambers and NGOs). While the funding criteria and standards have improved over the past two years to avoid the pitfalls of the past where funding was allocated to the main government providers (lack of diversity), particularly with the establishment of the committee, more needs to be done to ensure financial sustainability, and good governance and transparency in funding criteriaincluding: Note: see figure 2 for an explanation of the scale on the (a)reviewing proposed programs cost effectiveness horizontal axis. and placement rates, (b) conducting impact Source: based on analysis of the data collected using the SABER- evaluation of programs, (c) seeking regular private WfD questionnaire. sector feedback, and (d) ensuring innovation and assessing demand. E-TVET Fund may be considered as an engine for promoting innovation and scaling up Policy Goal 4: Ensuring Efficiency and Equity in goodpractices in vocational and technical training Funding and ALMPs. Despite the shrinking of its budget as a WfD requires a significant investment of resources result of abolishing the one percent tax levy in 2011, by the government, households and employers. To the Fundhas a yearly budget exceeding JD 30 million ensure that these resources are effectively used it is (from foreign working permits). Considering the important to examine the extent to which policies employers’ involvement in the various decision- and institutional arrangements are in place to: (i) making committees, the Fund can potentially be ensure stable funding for effective programs in effective in financing employer-driven training if well initial, continuing and targeted VET; (ii) monitor and targeted and aligned with national priorities, which assess equity in funding; and (iii) foster partnerships has started to take place within the fund activities. with employers for funding WfD. Jordan scores at While overall funding for WfD in Jordan has increased the Emerging level on Policy Goal 4. over the years, the funding mechanisms are mostly Overview of Funding for WfD: Some positive based on historical trends and inputs with no links to initiatives were implemented in recent years, most performance and no consideration of national socio- importantly is the establishment of the E-TVET Fund economic priorities. In general, there are also no formal to expand and finance demand-driven technical and reviews of the impact of funding on training programs vocational education/training. The fund faced beneficiaries. Private sector investments in WfD have several governance and management issues when it increased, particularly at the sector level (targeted was first established, including lack of clarity on interventions), but are still limited particularly at the funding criteria and concentration on a limited national level. Additionally, information on the capacity number of projects that were mostly related to NET and quality of private training provision is scarce due to and MoL activities, with 78% of its resources going to the lack of an accreditation body to license institutions NEConly. However, there were important changes or accredit training programs prior to the recent and improvements in E-TVET Fund management and establishment of CAQA. Before 2012, only private decision making in 2011. The operations became community colleges that fell under BAU’s mandate and much more transparent, with better accounting and were licensed/ accredited by HEAC. auditing standards, and diversity in program funding Recurrent funding for initial vocational education (NECfunding was reduced to 12%), and upon the and training (IVET): The current input-based recommendation of the NES Technical Team, the budgeting processes for TVET do not take into Board of Directors was disbanded and replaced by SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 30 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 account performance indicators nor are these competition within TVET. Such competition, which processes linked to national priorities or outputs; can contribute to increased quality and efficiency they are simply based on historic trends and system and reduced costs, should take place not only among inputs. In fact, most public programs do not draft or public and private training providers, but also among distribute annual performance documentation, providers within the public sector. which results in lack of accountability and incentives to utilize resources efficiently or to become more Partnerships between training providers and self-reliant. There does not appear to be much cost employers: There have been improvements in consciousness in the TVET system, based on the private sector involvement in provision of training in current budget process the prevailing incentives are recent years, particularly in the form of partnerships to spend allocated budgets in full and to obtain more between government agencies (such as MoL, VTC, financing. Lack of available data on cost-benefit BAU) and sector associations/syndicates. The ALMPs, analysis and cost comparisons across programs and funded by the E-TVET Fund, have expanded institutions could be one reason for this. Low-use considerably and are targeting diverse beneficiaries factors also indicate inefficient use of resources, a depending on the needs identified in different survey on the utilization of capacity of TVET training regions and sector. The programs range from regular facilities found that it was 60% in the vocational and on-the-job training to apprenticeships, wage training centers, 64% in BAU and 86% in MoE subsidies/benefits and employment services vocational secondary institutions 24, leaving a sizeable 23F (examples of these programs are listed in Table 1). A resource that could be utilized for other types of number of these programs are implemented within training such as adult and continuing training, the framework of the MoL National Training and although TVET facilities in some areas suffer from Employment Project (NTEP) in agreement with the outdated equipment and need major renovation. Qualified Industrial Zones and investment companies. In addition, the government recently The productivity of the TVET system is questionable. launched an initiative to create 18,000 jobs by While institutions claim to suffer from funding gaps, stimulating employers to open up job opportunities, issues of optimal resource allocation and efficiency offering employment services and conducting job need to be factored into the analysis. Performance fairs to connect employers with unemployed youth - information needs to be integrated with costs, in effect it is a job matching initiative. However, modalities and rules for budget development and these programs still lack robust assessment and execution. A Mid-Term Expenditure Framework is in monitoring mechanisms to measure impact 25. This is 24F the process of being applied to government where E-TVET Fund can play a critical role as a budgeting and public expenditure, which will funding body. strengthen the links between policy, planning, and budgeting at the sectoral level. The fact that the TVET system is centralized and little autonomy is granted to training institutions eliminates 25 MoL in cooperation with E-TVET Fund has started 24 Analysis of TVET System in Jordan undertaking evaluation of programs SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 31 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Table 1: Examples of ALMPs and other programs funded accreditation enables students to document what under E-TVET Fund they have learned and employers to identify workers with the relevant skills. For Policy Goal 5 it is Project/ Activity Beneficiaries Implementing Agency therefore important to assess the status of policies and institutions to: (i) set reliable competency Jordan Tourism Training and VTC (in standards; (ii) assure the credibility of skills testing Development upskilling of 1,620 collaboration Project students with Siyaha and certification; and (iii) develop and enforce and tourism accreditation standards for maintaining the quality sector) of training provision.Jordan scores at the early Emerging level for this Policy Goal. Solar Energy Project Training of 95 BAU (Husson (to address the need students in solar College) Accreditation, licensing and certification system: for new sources of and alternative Despite existing isolated institutions that provide the energy in Jordan – energy emerging sector) quality assurance of training delivery in TVET (CAQA, HEAC and MoE VE), there is an absence of a Agriculture Training/Employm Agriculture comprehensive, clear, and functioning system in Graduates projects ent of 200 Engineers terms of national standards, accreditation and graduates Association certification in TVET. The establishment of CAQA in The Male Nurses Training/Employm MoL in 2012 under Article 11 of the E-TVET Council to training and ent of 500 collaboration regulate the certification system for Vocational employment graduates with the Education and overall quality of training and is a program (to address privet sector good step forward.Prior to CAQA vocational training gap in male nurses) was entirely limited to job licensing in a rather Satellite Project Training/Employm MoL in bureaucratic manner. The NA however advocated for (targeting rural ent of 1,480 collaboration an independent body that regulates the sector unemployed youth (almost 90% with the through: (a) licensing public and private technical with focus on females) in factory privet sector and vocational training institutions and guaranteeing women) units in rural areas fair competition amongst providers; (b) setting up - through training standards to control quality of outcomes agreements with and match them with market needs in line with the textile and other industries E-TVET Council strategies and directives; and (c) factories to conducting occupational tests for those involved in subsidize the technical and vocational work and granting establishment of occupational licenses. To date, CAQA is hosted factory production within MoL, while it reports to the E-TVET Council. units in rural areas To date, it has only accredited few private sector Gas and Fuel Pipes Training of 25 BAU in providers and a selection of VTC programs, within a project (to address supervision collaboration limited range of occupations, as reflected in Figure skill gap in this area) technicians with CCC 12 earlier. Therefore as it stands now it (a) lacks the autonomy/independence vis-à-vis the mandate Source: author’s construction envisioned (to enforce standards across all providers); (b) is understaffed; and (c) is Policy Goal 5: Assuring Relevant and Reliable underfunded. Standards A good example of an independent and strong The WfD system comprises a wide range of training accreditation authority is the HEAC that is providers offering courses at various levels in diverse responsible for accreditation of both public and fields. An effective system of standards and private higher education institutions including SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 32 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 technical education institutions (Community accreditation system is incomplete and there is no Colleges). HEAC: (a) reports to the Prime Minister; system in place to establish nationally recognized (b) develops accreditation and quality control accreditation standards. Each subsector has its own criteria; (c) licenses institutes and accredit their system and criteria for quality assurance that focuses programs; and (d) ensures that institutions conduct only on internal requirements and not on the self-assessments. HEAC also provides a good capacity of the WfD system to provide a well example of incentivizing institutions to seek and prepared workforce that meets the needs of the retain accreditation and quality assurance through a labor market, which a national accreditation body certification system and expansion of existing can provide. Training providers are not required nor pathways that can ultimately increase demand. provided with incentives to seek accreditation, However, because HEAC has not been directly linked particularly in the public TVET sector. And, to the E-TVET sector, its focus has been more on occupation skills’ testing is generally underdeveloped academic than technical programs in terms of with no nationally recognized and functioning testing competency standards and accreditation criteria. system for TVET. Stronger linkages with the E-TVET sector are needed to develop national standards for all TVET skill Policy Goal 6: Diversifying Pathways for Skills categories, for which the NQF (when established) Acquisition can be a good reference or platform. In dynamic economic environments, workers need to acquire new skills and competencies as well as keep Competency standards and national qualifications their skills up-to-date throughout their working lives. framework: Despite this situation, and in close They are best served by a system of initial and collaboration with the E-TVET Council Secretariat, continuing education and training that promotes CAQA has established National Sector Teams lifelong learning by offering clear and flexible composed of sector representatives from the labor pathways for transfers across courses, progression to market and from TVET providers. This was supported higher levels of training and access to programs in by the EDSDP project to develop occupational other fields. For those already in the workforce, standards for 6 sectors 26 and is working towards a 25F schemes for recognition of prior learning are qualifications system for TVET that can be fitted into essential to allow individuals to efficiently upgrade a National Qualifications Framework (NQF) 27. In 26F their skills and learn new ones. Policy Goal 6 addition, CAQA has developed occupational therefore evaluates the extent to which policies and standards for 2 additional sectors, and guidelines institutions are in place to: (i) enable progression have been developed for occupational tests to be through multiple learning pathways, including for based on the newoccupational profiles. students in TVET streams; (ii) facilitate the recognition of prior learning; and (iii) provide It is important to note that Jordan did not start targeted support services, particularly among the from scratch in developing occupational disadvantaged. Jordan scores at an Emerging level standards/profiles. The VTC developed the 'Jordan for Policy Goal 6. Classification of Occupations' in 1999 to guide the design of programs and curricula, which was then Learning pathways: Despite the adequate number of updated based on the Arab Standard Classification of institutions and programs covering diverse Occupations in (ASCO) in 2008. Like most other disciplines and levels, as well as the piloting of features in the country's WfD landscape, the different delivery models, the system is characterized by limited flexibility in the ability to re- 26 Metal Fabrication “Welding and Sheet Metal”, Metal enter formal education and limited opportunities for Fabrication “Metal Machining”, Automobile Repair, Retail progression within vertical pathways. The system and Sales, Electricity “House Electricity”, Construction and operates through the logic of selection instead of the Press Packaging and Printing 27 logic of learning. In other words, it is characterized CAQA is supported by EC to develop NQF, however the framework is still underway and is not yet fully drafted by limited choice and high selectivity throughout, SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 33 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Figure 15: Proposed Vocational Routes for VE and VTC Source: Vocational Education Competencies and Programs review, EU, 2010 starting with rigid tracking in secondary education replaced by ‘learning modules’ that indicate prior and leading into quotas and strict university/college learning needs and horizontal linkages, would open admission policies that are solely based on high- the door for the recognition of prior learning and stakes examinations at the end of secondary schools systems integration. Individuals without the formal (Tawjihi). Such system leaves students with limited credentials for admission into their chosen training choice and pathways to follow. In recent years there programs are assumed to have no relevant skills and were attempts to diversify pathways and provide must start their training (or new job) at a more basic more options for MoE vocational students, who are level than necessary. The result is a prolonged now eligible to enroll in most academic programs training time, increased costs for the government depending on their Tawjihi results. Hence, (and/or employers) and a potential discouragement opportunities to continue on to post-secondary of trainees who wish to learn new skills or upgrade education only exist for those who sit for the exam existing ones. Figure 15 shows proposed vocational and pass. On the other hand, the lack of integration routes that provide better learning pathways and between TVET providers offers limited opportunities progression based on a recent review undertaken by for those who enter VTCs or who receive on-the-job the EU 28. 27F or other types of training for continuing their education and training in the mainstream education At the post-secondary level, those who complete a system. No system is in place yet for accreditation of two-year diploma have the opportunity to continue learning to allow mobility across the system. Formal further after sitting for the ‘comprehensive exam’. recognition of prior learning has not been introduced While this could be a good characteristic of the yet due to the absence of a qualifications framework and of routine procedures for assessment and 28 European Union’s ENPI Programme for Jordan, recognition outside the formal system. Also, the Vocational Education Competencies and Programs review, current curricula are based on ‘subjects’, which if 2010 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 34 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 system in terms of diversifying pathways, bridging is Implications of the Findings becoming one of the unintended consequences of Funding mechanisms: While public resources for technical education where students with low Tawjihi WfD have increased over the past decade, Jordan’s averages who are not entitled to be admitted to increasing fiscal burden will likely intensify the universities enrolling community colleges to get a competition between WfD and other socio-economic second chance for attaining a bachelor’s degree. This policy priorities. Improving efficiency and sustaining is due to the prevalent perception that a BA degree an adequate level of public resources for WfD would holds more social and financial value than a diploma. benefit from a clear strategy and mechanisms for Public perception of pathways for TVET: While continuous monitoring and evaluation. Incentives these attempts to improve pathways both in should be introduced in the budget processes, such secondary vocational education (MoE) and technical as normative financing or competition for funds, as a education reflect good progress, the trends in TVET way to use financial mechanisms to stimulate better enrolments have been negative, leading to a failure performance. A common characteristic of advanced to produce a diverse workforce with the skills WfD systems are regular assessments and timely needed for the economic transformation envisioned reviews of the impact of funding on a range of in Jordan. Other factors play out, with the result that training and labor market outcomes. In addition to children and young people look into learning defining public budget allocations for WfD, such a strategies that increase their chances of succeeding strategy would identify additional resources in high-stakes examinations that are key to gaining including: fees paid by trainees or their sponsors as access to preferred options in higher levels of well as contributions from employers, NGOs, and education and then, as a result, into the desired donor partners. Fostering these partnerships would public sector job. To reverse this trend, perceptions multiply resources available for WfD, and encourage about TVET must be addressed among stakeholders the support and investment of individual trainees, on both the supply and demand side. Not only employers, and other stakeholders within the WfD should young children and parents be better system. These additional resources could also foster informed about the quality of vocational education competition across institutions, which would and training provided, and available career contribute to better quality performance and paths/options, but employers should also be aware increased efficiency. of WfD’s outcomes and play a major role in setting accreditation standards to overcome the gap in Rubrics: In more advanced WfD systems, budgeting recognition from the standpoint of providers versus processes for TVET is routine and based on comprehensive criteria that are routinely reviewed and that of employers. The E-TVET Council has adjusted through considering the impact of funding on introduced two good strategies to address this training beneficiaries focusing on a full range of issue: (i) the TVET awareness campaign and training-related and labor market outcomes communication strategy to improve the public image and social status of TVET as a desirable career option Quality assurance system: Linked to the funding supported by EDSDP; 29 and (ii) the career guidance 28F mechanism is the establishment of robust quality strategy to better inform students and job seekers assurance for the TVET sector as a whole to set about training and employment opportunities, standards and accredit programs for all skill levels supported by CIDA Best project. 30 29F across providers in the country. This would include: (a) developing robust protocols through a system of competency-based testing to certify qualifications in most skilled and semi-skilled occupations, and (b) 29 increasing public attention to recognition of prior The strategy was developed in 2011 and learning and diversifying pathways in the WfD implementation is underway 30 system. These measures would improve the value The strategy was approved in 2011 and implementation is underway employers put on the outputs of the system. Bearing SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 35 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 in mind that it took a country like Singapore almost positively shaped the image of TVET. Following an four decades to move from "emerging" to extensive review, Singapore upgraded TVET from "advanced" in some of the policy actions under this post-primary to the post-secondary level which dimension, advancing in this sector is a lengthy raised TVET’s profile as an option for higher learning process that should start now. and skills upgrading. This shift was complemented by the creation of and heavy investment in the Institute Pathways: Though pathways and opportunities to of Technical Education (ITE) as an apex-level upgrade and acquire new skills exist, there is a lack organization for managing TVET, providing high of clarity and flexibility for individuals navigating quality training within cutting-edge facilities. these pathways. The public perception of TVET further complicates the situation, whereby it has traditionally been associated with low academic Rubrics: In advanced WfD systems, an accreditation agency is responsible for defining accreditation performance, limited social possibilities, and low standards through consultation with stakeholders; skilled jobs. In a society marked by a very strong standards are reviewed following established protocols aspiration towards obtaining university degrees and are publicized and enforced to a large extent; (regardless of its use in practical life or their value in training providers are offered incentives and support to seek and retain accreditation and all training providers the labor market), it is fundamental to take coherent are required to do so. In addition, competency action on multiple fronts to improve public standards exist for most occupations; where policy perception of TVET. Transforming the image of TVET dialogue is done through institutionalized processes is a process that requires a series of dedicated and skills testing for major occupations assess both actions and Jordan can benefit from reference to theoretical knowledge and practical skills Singapore, which over a prolonged period of time SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 36 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 6. Managing Service Delivery 2011 and 99% of enrolment in secondary vocational are in public schools. Figure 16 shows the trend in Training providers, both government and the few enrolments in vocational streams versus academic non-state that are in operation, are the main stream over the past ten years. channels through which the country’s policies are translated into results on the ground. This chapter It is accepted that practical workshops in vocational therefore provides an overview of the functions of schools are poorly equipped with outdated materials the line ministries or agencies responsible for and infrastructure. For example, in the hotel managing public institutions and overseeing non- program first year students are sent for applied state providers. The Policy Goals for this Dimension practical training in 2, 3 star hotels and in the SABER-WfD framework focus on the following restaurants/fast food during the first two semesters three aspects of service delivery: (i) enabling without the necessary guidance and instructions diversity and excellence in training provision; (ii) between school, student and enterprise. In addition, fostering relevance in public training programs; and the vocational stream faces the public perception of (iii) enhancing evidence-based accountability for “academic failure” associated with students that results. The ratings for these three Policy Goals are pursue the stream. It will be difficult to improve the presented below and are followed by a brief enrolment, image and quality of TVET without reflection on their implications for policy dialogue. vocational training courses in earlier stages (e.g., primary and middle school), greater private sector Overview of the Delivery of Training engagement, and involvement of vocational schools Services in real production. The MoE provides the bulk of vocational training in The VTC (a semi-autonomous agency under the MoL) Jordan through its vocational stream in grades 11 owns and operates a network of 10 specialized and 12, currently enrolling around 25,000 students institutes and 35 training institutes (VTIs), which are each year – or around 14 percent of high school distributed over 3 regions in the country targeting students. MoE provides vocational education as part young people aged 16 and above; of which 11 of its ‘comprehensive’ secondary schools in grades specialized Centers of Excellence (in tourism sector) 11-12, accommodating both academic and and 31 multidisciplinary training institutes. VTC vocational education in the same institutions, motivated by economic and social reasons to reduce Figure 16: Enrolment in Academic and Vocational barriers between the two. A total of 237schools offer Streams vocational education, of which 4 are private schools and the rest are public.Many of the public schools in 200000 Jordan house mainly academic streams. Students can specialize within four main training fields: industry, 150000 agriculture, home economics, or hotel management and tourism. However, the vocational part of the 100000 curriculum is only 30% and the rest is comprised of general requirements/subjects to sit for the Tawjihi exams and added basic sciences for those who wish 50000 to continue to higher education. Thus, the applied or practical training hours in the vocational stream are 0 limited, and work based learning or internship 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 outside school is not part of the educational program. The number of students in the academic Academic Stream Vocational Stream stream is more than 6 fold that of vocational; a total of 25,000 in vocational versus 155,061 students in Source: Ministry of Education SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 37 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 offers vocational training and apprenticeship Education, and six other governmental community programs at semi-skilled, skilled and craftsman levels colleges.UNRWA - as a non-profit TVET provider – in the following trades: electronics, vehicles and also runs two community colleges, in adherence to machinery maintenance, air-conditioning and BAU framework; especially those related to plumbing, agriculture and plant production, personal accreditation criteria, while the rest are private services, chemical industries and traditional crafts. In colleges. Many of the colleges also offer Bachelor’s addition, some upgrading programs are organized degrees and a high proportion of students who for in-service workers based on well-defined needs bridge from community colleges to public from employers, and other training programs on ad universities. The preference for university education hoc basis. For example, a program was developedto is strong in Jordan, as reflected in low rates of train 1,000 unemployed workers in industrial sewing community college enrollment. While national in response to industry complaints about the policies have emphasized the importance of shortage of workers for textile jobs, Yearly, around community colleges playing a more important role in 10,000 students enroll in VTCs regular vocational technical and applied fields of education in order to streams and the average cost per student is almost increase the efficiency and productivity of the labor double that of MoE. This may be due to VTC’s higher market, progress has been slow and responsiveness investments in equipment for practical training and to labor market needs and demands remains limited. the financial incentives offered to students. However, some argue that VTC experience a surplus There are a few privately owned or managed TVET in funding, which results in overstaffing (staff/trainee providers and some private community colleges ratio is 1 staff member to every 6.41 trainees) and offering diploma programs. Additionally, other forms poor utilization of certain resources. of training include: industry attachments (apprenticeship schemes), in-service training, and re- VTC typically adopt a top-down management training of both employed and unemployed workers approach. It is historically considered a bureaucratic in the labor force. Information on this type of institution offering outdated and supply driven training is scarce. Lastly, there are a number of non- programs. However the VTC, under the World Bank- profit organizations providing training to promote supported EDSDP support, is currently undergoing youth employment, where considerable innovation restructuring to become an autonomous service is taking place. Theses providers offer cost-effective provider with a clear mandate; governance, and innovative methods of providing training, with a management and organizational structures; which focus on employable skills (as opposed to only adopts a new employer driven governance, business technical ones), through significant employer and training service delivery model. The VTC is the involvement and on-the-job training. only TVET institution that has a ‘dual system’ for training, with training is split into two components: In general, the linkages between the education and theoretical at the level of the institute and practical training system and the labor market in Jordan in the workplace through internships and training by remain weak. There is a clear mismatch between the employers. In addition, the introduction of the type and level of skills needed by the labor market Model Centers for Excellence has been a benchmark and what is being supplied by the education and in the transformation of VTC’s service delivery model training system. A key trend is that the WfD system to better respond to local market needs. is producing a higher educated workforce that transcends the immediate skills needs of the labor As for technical education, Jordan has a total of 51 market. Unemployment is increasing linearly with community colleges offering two-year of technical educational attainment (see Figure 17). There is a education, what is called a ‘diploma’, of which 26 are growing mismatch between the output of the publicly supported. These include 14 community education system and market demand, with the colleges under the auspices of Al Balqaa’ University, proportion of university graduates among the six sponsored by the Armed Forces Department of unemployed doubling between 2000 and 2010. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 38 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Figure 17: Distribution of the unemployed (aged 15-64) by educational attainment Source: DOS Employment and Unemployment Survey, 2011. SABER-WfD Ratings on Service Delivery Figure 18: SABER-WfD Ratings of Dimension 3 The Policy Goals for this Dimension in the SABER- WfD framework focus on the following three aspects of service delivery: (i) enabling diversity and excellence in training provision; (ii) fostering relevance in public training programs; and (iii) enhancing evidence-based accountability for results. The ratings for these three Policy Goals are presented below and are followed by a reflection on their implications for policy dialogue. Note: see figure 2 for an explanation of the scale on the horizontal axis. Based on data collected by the SABER-WfD questionnaire, Jordan receives an overall rating of Source: based on analysis of the data collected using the 2.1 (Emerging) for the Service Delivery Dimension SABER-WfD questionnaire. (see Figure 18). This score is the average of the ratings for the underlying Policy Goals: (i) enabling diversity and excellence in training provision (2.0); (ii) fostering relevance in public training programs Policy Goal 7: Enabling Diversity and (2.1); and (iii) enhancing evidence-based Excellence in Training Provision accountability for results (2.2). The explanation for these ratings and their implications follow below. Because the demand for skills is impossible to predict with precision, having a diversity of providers is a feature of strong WfD systems. Among non- state providers the challenge is to temper the profit motive or other program agendas with appropriate regulation to assure quality and relevance. Among state providers, a key concern is their responsiveness SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 39 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 to the demand for skills from employers and under MoE, and private community colleges, which students. Striking the right balance between fall under BAU and HEAC. institutional autonomy and accountability is one approach to address this concern. Policy Goal 7 takes Autonomy and accountability of public training these ideas into account and benchmarks the system institutions: In general, public training providers according to the extent to which policies and have limited autonomy, with only a few public institutional arrangements are in place to: (i) providers permitted to have broad authority over encourage and regulate non-state provision of admissions, operations and staffing. This training and (ii) foster excellence in public training centralization in authority results in limited provision by combining incentives and autonomy in innovation to become more market responsive at the management of public institutions.Jordan scores the training institution level and also compromises at an Emerging level for Policy Goal 7. the potential for competition to enhance performance. Most decisions are made at the central Scope and formality of non-state training provision: level and equally applied across all institutions, The country has a limited menu of WfD services, and including budget allocations; thus, institutions are there is a lack of industry engagement in training not fully accountable for results and have little delivery, curriculum development and upskilling of motivation to achieve performance targets. trainers, with the exception of a few initiatives such Furthermore, training institutions use ad-hoc as Siyaha and MSCoEs where private sector processes for introducing and closing new programs involvement is substantial, and to some extent NET. as these decisions are made centrally and are Non-state TVET services that lead to formal informed by limited assessment of the needs of qualifications are limited in scope. Non-formal employers and implementation constraints (e.g. providers, particularly non-profit and international funding, capacity). organizations, are active in WfD provision. While, on the whole, this provision is perceived to be of high Policy Goal 8: Fostering Relevance in Public quality by employers, and some of the non-profit Training Programs providers have international accreditation for their courses, these providers are only covering/targeting Public training institutions need reliable information specific segments because the non-formal/non- on current and emerging skills demands in order to recognized nature of training is not attractive to keep their program offerings relevant to market many. The regulations for setting up private training conditions. It is therefore desirable for public institutions are relatively straightforward, but the training institutions to establish and maintain lack of government policies in providing both relationships with employers, industry associations, financial and non-financial incentives to foster non- and research institutions. Such partners are a source state training provision plays an important role in of information about skills competencies as well as limiting the growth of non-state provision. expertise and advice on curriculum design and Additionally, information on the quality, scope and technical specifications for training facilities and delivery of training by non-state providers has been equipment. They also provide opportunities for scarce due to the lack of a regulatory body to control workplace training for students and continuing quality assurance and license/regulate providers, professional development for instructors and and CAQA was established to address that. Prior to administrators. Policy Goal 8 considers the extent to CAQA, training providers were largely only required which arrangements are in place for public training to obtain a license to operate from the Ministry of providers to: (i) benefit from industry and expert Industry and Trade, which was not accompanied by input in the design of programs and (ii) recruit any measures to assess quality and performance or administrators and instructors with relevant accredit programs/certificates. The only exceptions qualifications and support their professional are the very few private schools that offer the development.Jordan is evaluated at an Emerging secondary vocational education stream, which fall levelof developmentfor Policy Goal 8. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 40 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Links between training institutions and industry: rigorous selection process. In most cases, the Limited and sporadic links exist between public instructors hired for TVET do not possess the training institutions and industry, with limited knowledge or skills needed for this type of training involvement of industry in curriculum design and the as the experience base of most trainers is purely specification of standards for training facilities. Links academic; very few, if any, have industry exposure. between public training providers and research This is mainly due to the limited autonomy institutions are rare due to scarcity of such institutions have in selecting and hiring staff, and institutions. However, in the absence of systematic also the low wage scale of CSB that does not attract arrangements it may be difficult and probably too highly qualified instructors. Heads and instructors of costly for individual training providers to gather the public training institutions are offered few desired information. Besides the links at the opportunities for in-service training needed to keep institution level, each training provider can also pace with up-to-date developments across different benefit from close ties with the specific employers or industries; particularly training that involves practical industry that they serve. components and industry exposure. In addition, the process and funding for in-service training and There are good practices that have succeeded in continuing personal development is best described establishing strong linkages between training as ad-hoc and limited in scope. institutions and industry that can be built upon and scaled. MSCoE has been defined as any TVET Policy Goal 9: Enhancing Evidence-based Training Institutes developed through Public Private Accountability for Results Partnerships (PPPs) between the Government of Jordan, Training Institutions and target Industry. VTC Systematic monitoring and evaluation of service has established 11 MSCoE so far (Tourism sector); delivery are important for both quality assurance the Centers are sector-specific and geared towards and system improvement. Accomplishing this an identified need for employment within that function requires gathering and analyzing data from sector. They are set up based on international a variety of sources. The reporting of institution level goodpractices in all areas including the design, data enables the relevant authorities to ensure that delivery, management and evaluation of training, providers are delivering on expected outcomes. Such and training outcomes aspire to meet international data also enable these authorities to identify gaps or standards. In addition, the PPP framework that was challenges in training provision or areas of good developed by the VTC provides an excellent platform practice. Additionally, periodic surveys and for linking industry with training institutions. evaluations of major programs generate complementary information that can help enhance Recruitment and in-service training of staff in public the relevance and efficiency of the system as a training institutions: Recruitment of all staff in whole. Policy Goal 9 considers these ideas to assess public training providers is done through the Civil the system’s arrangements for collecting and using Service Bureau (CSB), with the exception of data to focus attention on training outcomes, universities and community colleges. Although there efficiency and innovation in service delivery.Jordan is an established system for recruiting all levels of scores at Emerging level for Policy Goal 9. staff and instructors under the CSB, these procedures do not necessarily guarantee adequate Use of data to monitor and improve program and competencies and qualifications for instructors system performance: The Jordanian TVET and WfD based on the needs of institutions and students. system lacks clear Key Performance Indicators and Both heads and instructors of public training appropriate mechanisms for monitoring and evaluating institutions are recruited on the basis of minimum system performance. Only public training providers are academic qualifications; no consideration is given to required to collect and report basic administrative data, a minimum number of years of practical industry or which are occasionally used to assess individual work experience or teaching experience, and a more institutional performance. Additionally, available data SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 41 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 on labor market outcomes are limited to a few ad-hoc employer and trainee satisfaction and job placement skills-related sectoral surveys or evaluations of specific, rates based on accurate tracer studies. On the other targeted programs, and there is limited public access to hand the scope and formality of non-state training this information. provision is somehow vague, limiting the menu of WfD services in the country. Having a diverse supply of non- Initiatives in recent years have sought to improve the state providers is a key factor in creating competition information systems for both supply and demand. and market accountability which can be vital drivers for Among the major initiatives is the Al Manar project, improved quality of services. Policies in providing both which was implemented by NCHRD with support from financial and non-financial incentives to foster non- CIDA to develop a human resources information state training provision play an important role in system. The project has produced valuable policy attracting providers, such as facilitating licenses to reports on labor participation, unemployment, operate and authorizing issuance of recognized migration, employment growth, etc. However, the certificates, granting access to government support project was suspended due to a shortage of financing services (e.g. information, instructor training, facilities after CIDA’s funding stopped. Al Manar, and therefore etc), tax exemption, eligibility to enroll students NCHRD’s very limited funding from the government is receiving financial aid from the government or not sufficient to fulfill its functions to develop the eligibility to compete for government-funded training envisioned full-fledged Human Resources Information contracts. System covering both supply and demand [. On the supply side, the ERFKE has supported the establishment of an EMIS, but it is not yet fully Rubrics: In more advanced WfD systems, a diversity of non-state providers offer training and most are functional; only basic data is included in the system at registered and licensed; the government provides this point and more has to be done both at the school comprehensive financial and non-financial incentives level and centrally to fully operationalize the EMIS to to encourage non-state training provision and takes become a major source of information on skills supply. systematic measures address quality issues in lagging Lastly, the E-TVET sector, under the EDSDP, is currently institutions. developing a sector performance assessment system with clear performance indicators at the TVET Autonomy: The highly centralized system and lack of providers’ level. This system is expected to provide a autonomy at the level of service of providers in comprehensive picture of E-TVET sector outputs and managing their financial and administrative affairs, performance in light of the country’s labor supply including the selection and hiring of resources, is needs. It aims to make use of all available data, in order limiting service providers ability to deliver services that to develop an annual system-wide report to be are highly responsive to local needs. Autonomycould presented to the E-TVET Council and/or any other be achieved by establishing management boards and relevant decision-making and policy setting body. amending legislation to include financial control at the level of the training delivery institution. Examples of Implications of the Findings good practice in the establishment of empowered Accountability for results: The responsiveness of public boards include community colleges in the United States training institutions to the demand for skills is in part and the establishment of management boards in hindered by a lack of incentives for results. In turn, Mozambique and Pakistan. performance targets for public training providers and corresponding incentives for meeting those targets are Rubrics: In more advanced WfD systems, training institutes have the autonomy to select, hire and currently underutilized in Jordan. In light of these training their staff, instructors are recruited on the results, a competitive environment might serve to basis of minimum academic qualifications in addition introduce motivational aspects to improve to industry and teaching experience, and have performance, based on a clear set of performance opportunities for regular in-service training, including periodic industry attachments. indicators such as: repetition and graduation rates, SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 42 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Demand-led approach: The PPP framework provides Monitoring and evaluation system: Effective a platform for formal mechanisms to engage monitoring and evaluation systems require appropriate employers in all service delivery matters, including tools for measuring quality and performance, and curricula design and training facility specifications. robust information systems. Data on WfD are often Higher engagement of employers could be achieved limited in quality, scope, timeliness and accessibility. In if the MSCoEs were integrated within the Jordan, there is a clear lack of evidence-based policy programming of the VTC itself and articulated with making due to the limited availability and accessibility other institutions serving TVET such as CAQA, the of relevant information/reports on labor supply and community colleges and the E-TVET Council. This demand, but also due to the low demand for data in would enhance the relevance of training for decision and policy making, where there is a need to producing skills that meet the needs and instill a culture of collecting, sharing and utilizing data in expectations of the labor market. Innovative all stages of policy making, implementation and demand-driven approaches are being piloted by non- monitoring. From the perspective of those overseeing profit providers; a good example is the Business the WfD system, further harmonization of training and Development Center, which operates at the national labor market indicators and improved data reporting level to provide the Maharat training program – a requirements can inform the design and delivery of youth entrepreneurship and employability program programs to better equip trainees with the skills that guides youth through a career path. The desired by employers. Building on the EMIS and the Maharat program is now a 3-hour accredited elective Human Resources database that was initiated by the course; it has recently been introduced to NCHRD, it would then be possible to create a community colleges, and potentially at the centralized database for tracking activities in the WfD vocational education level (in collaboration with system as a whole and to provide comparative data for MoE). Another example is the Jordan Career individual providers to evaluate and improve their Education Foundation, which works closely with performance. On the other hand, a comprehensive employers to foster a demand-driven approach to labor market information system (LMIS) and career create job opportunities for unemployed Jordanian information are needed. The development of a youth through tailor-made vocational, technical, and comprehensive LMIS is now included in the NES and in managerial training programs. All these initiatives the MoL work plan and budget for the coming years. 31 30F are fostering a demand-driven approach; however, This system could be combined with a career taken as a whole the scope of non-state training information system, enabling career orientation and provision is still underdeveloped due to limited the introduction of employability, and entrepreneurial incentives and lack of legislation. and career management skills in the curriculum, which are part of the career guidance strategy that is being implemented at the moment. Rubrics: In advanced WfD systems, relevance of training is enhanced through formal links between most training institutions, industry and research Rubrics: In advanced WfD systems, relevance of institutions, leading to significant collaboration on a training is enhanced through formal links between wide range of areas; heads and instructors are most training institutions, industry and research recruited on the basis of minimum academic and institutions, leading to significant collaboration on a professional standards and have regular access to wide range of areas; heads and instructors are diverse opportunities for professional development, recruited on the basis of minimum academic and including industry attachments for instructors. professional standards and have regular access to diverse opportunities for professional development, including industry attachments for instructors. 31 MoL has started capacity building in this area as part of the NES action plan SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 43 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Annex 1: Acronyms ALMP Active Labour Market Programs ASCO Arab Standard Classification of Occupations BAU Balqa Applied University CAQA Center for Accreditation and Quality Assurance CIDA Canadian International Development Agency CSB Civil Service Bureau EDSDP Employer Driven Skills Development Project ERFKE Education Reform for Knowledge Economy Project DOS Department of Statistics DCI Data Collection Instrument ECA Europe and Central Asia EMIS Education Management Information System ETF European Training Foundation E-TVET Employment, Technical and Vocational Education and Training EU European Union FDI Foreign Direct Investment GCC Gulf Cooperation Council GDP Gross Domestic Product GoJ Government of Jordan HCHRD Higher Council for Human Resource Development HDI Human Development Index HEAC Higher Education Accreditation Commission ICT Information and Communication Technology LMIS Labor Market Information System MSCoE Model Skill Centers of Excellence MENA Middle East and North Africa MoE Ministry of Education MoHESR Ministry of Higher Education and Scientific Research MoL Ministry of Labour NA National Agenda NCHRD National Center for Human Resources Development NES National Employment Strategy NET National Employment and Training Company NQF National Qualifications Framework PPP Public Private Partnership QA Quality Assurance TVET Technical Vocational Education and Training UNRWA The United Nations Relief and Works Agency VTC Vocational Training Corporation WfD Workforce Development SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 44 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Annex 2: The SABER-WfD Analytical Framework Policy Goal Policy Action Topic Setting a G1_T1 Advocacy for WfD to Support Economic Development Provide sustained advocacy for WfD at the top G1 Strategic leadership level G1_T2 Strategic Focus and Decisions by the WfD Champions Direction Establish clarity on the demand for skills and areas G2_T1 Overall Assessment of Economic Prospects and Skills Implications Strategic Framework of critical constraint G2_T2 Critical Skills Constraints in Priority Economic Sectors Dimension 1 Fostering a G2 Demand-Led G2_T3 Role of Employers and Industry Approach Engage employers in setting WfD priorities and in G2_T4 Skills-Upgrading Incentives for Employers enhancing skills-upgrading for workers G2_T5 Monitoring of the Incentive Programs Strengthenin G3_T1 Roles of Government Ministries and Agencies Formalize key WfD roles for coordinated action on G3 g Critical G3_T2 Roles of Non-Government WfD Stakeholders strategic priorities Coordination G3_T3 Coordination for the Implementation of Strategic WfD Measures G4_T1 Overview of Funding for WfD Recurrent Funding for Initial Vocational Education and Training G4_T2 Provide stable funding for effective programs in (IVET) Ensuring initial, continuing and targeted vocational Recurrent Funding for Continuing Vocational Education and G4_T3 Efficiency education and training Training Programs (CVET) G4 and Equity in Recurrent Funding for Training-related Active Labor Market G4_T4 Funding Programs (ALMPs) Monitor and enhance equity in funding for training G4_T5 Equity in Funding for Training Programs Facilitate sustained partnerships between training G4_T6 Partnerships between Training Providers and Employers institutions and employers Broaden the scope of competency standards as a G5_T1 Competency Standards and National Qualifications Frameworks System Oversight basis for developing qualifications frameworks G5_T2 Competency Standards for Major Occupations Dimension 2 G5_T3 Occupational Skills Testing Assuring Establish protocols for assuring the credibility of G5_T4 Skills Testing and Certification Relevant and skills testing and certification G5 G5_T5 Skills Testing for Major Occupations Reliable G5_T6 Government Oversight of Accreditation Standards G5_T7 Establishment of Accreditation Standards Develop and enforce accreditation standards for Accreditation Requirements and Enforcement of Accreditation maintaining the quality of training provision G5_T8 Standards G5_T9 Incentives and Support for Accreditation Promote educational progression and permeability G6_T1 Learning Pathways through multiple pathways, including for TVET Diversifying G6_T2 Public Perception of Pathways for TVET students Pathways for Facilitate life-long learning through articulation of G6_T3 Articulation of Skills Certification G6 Skills skills certification and recognition of prior learning G6_T4 Recognition of Prior Learning Acquisition Provide support services for skills acquisition by G6_T5 Support for Further Occupational and Career Development workers, job-seekers and the disadvantaged G6_T6 Training-related Provision of Services for the Disadvantaged G7_T1 Scope and Formality of Non-State Training Provision Enabling Encourage and regulate non-state provision of G7_T2 Incentives for Non-State Providers Diversity and training G7_T3 Quality Assurance of Non-State Training Provision G7 Excellence in G7_T4 Review of Policies towards Non-State Training Provision Training G7_T5 Targets and Incentives for Public Training Institutions Provision Combine incentives and autonomy in the G7_T6 Autonomy and Accountability of Public Training Institutions management of public training institutions G7_T7 Introduction and Closure of Public Training Programs G8_T1 Links between Training Institutions and Industry Service Delivery Dimension 3 Integrate industry and expert input into the design G8_T2 Industry Role in the Design of Program Curricula Fostering and delivery of public training programs G8_T3 Industry Role in the Specification of Facility Standards Relevance in G8_T4 Links between Training and Research Institutions G8 Public Recruitment and In-Service Training of Heads of Public Training Training Recruit and support administrators and instructors G8_T5 Institutions Programs for enhancing the market-relevance of public Recruitment and In-Service Training of Instructors of Public training programs G8_T6 Training Institutions Enhancing G9_T1 Administrative Data from Training Providers Evidence- Expand the availability and use of policy-relevant G9_T2 Survey and Other Data G9 based data for focusing providers' attention on training Use of Data to Monitor and Improve Program and System Accountabilit outcomes, efficiency and innovation G9_T3 Performance y for Results SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 45 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Annex 3: Rubrics for Scoring the SABER-WfD Data Functional Dimension 1: Strategic Framework Policy Level of Development Goal Latent Emerging Established Advanced Visible champions for WfD are Some visible champions provide ad- Government leadersexercise Both government and non- G1: Setting a Strategic either absent ortake no specific hocadvocacy for WfD and have acted sustained advocacyfor WfDwith government leaders exercise Direction for WfD action to advance strategic WfD on few interventions to advance occasional, ad-hoc participation sustained advocacy for WfD, and rely priorities. strategic WfD priorities; no from non-government leaders; on routine, institutionalized arrangements existto monitor and their advocacy focuses on selected processes to collaborate on well- review implementation progress. industries or economic sectors and integrated interventions to advance a manifests itself through a range of strategic, economy-wide WfD policy specific interventions; agenda; implementation progress is implementation progress is monitored and reviewed through monitored, albeit through ad-hoc routine, institutionalized processes. reviews. Functional Dimension 1: Strategic Framework Policy Level of Development Goal Latent Emerging Established Advanced There is no assessment of the Some ad-hocassessments exist on the Routine assessments based on A rich array of routine and robust country's economic prospects country's economic prospects and multiple data sources exist on the assessments bymultiple stakeholders G2: Fostering a Demand-Led and their implications for skills; their implications for skills; some country's economic prospects and exists on the country's economic industry and employers measures are taken to address critical their implications for skills; a wide prospects and their implications for havealimited or no role in skills constraints (e.g., incentives for range of measureswith broad skills; the information provides a basis Approach to WfD defining strategic WfD priorities skills upgrading by employers); the coverage are taken to address for a wide range of measures with and receive limited supportfrom government makes limited effortsto critical skills constraints; the broad coveragethat address critical the government for skills engage employers as strategic partners government recognizes employers skills constraints; the government upgrading. in WfD. as strategic partners in WfD, recognizes employers as strategic formalizes their role, and provides partners in WfD, formalizes their role, support for skills upgrading through and provides support for skills incentive schemes that are upgrading through incentives, reviewed and adjusted. including some form of a levy-grant scheme, that are systematically reviewed for impact and adjusted accordingly. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 46 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Functional Dimension 1: Strategic Framework Policy Level of Development Goal Latent Emerging Established Advanced Industry/employers have a Industry/employers help define WfD Industry/employers help define Industry/employers help define WfD limited or no role in defining priorities on an ad-hocbasis and make WfD priorities on a routine basis priorities on a routine basis and make G3: Strengthening Critical Coordination for strategic WfD priorities; the limited contributionsto address skills and make some contributions in significant contributions in multiple government either provides no implications of major policy/ selected areas to address the skills areas to address the skills implications incentives to encourage skills investment decisions; the government implications of major policy/ of major policy/investment decisions; upgrading by employers or provides some incentives for skills investment decisions; the the government provides a range of conducts no reviews of such upgrading for formal and informal government provides a range incentives for skills upgrading for all incentive programs. sector employers; if a levy-grant ofincentives for skills upgrading for employers; a levy-grant scheme with Implementation scheme exists its coverage is limited; all employers; a levy-grant scheme comprehensive coverage of formal incentive programs are not with broad coverage of formal sector employers exists; incentive systematically reviewedfor impact. sector employers exists; incentive programs to encourage skills programs are systematically upgrading are systematically reviewed and adjusted; an annual reviewed for impact on skills and report on the levy-grant scheme is productivity and are adjusted published with a time lag. accordingly; anannual report on the levy-grant scheme is published in a timely fashion. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 47 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Functional Dimension 2: System Oversight Policy Level of Development Goal Latent Emerging Established Advanced The government funds IVET, The government funds IVET, CVET The government funds IVET, CVET The government funds IVET, CVET CVET and ALMPs (but not OJT in (including OJT in SMEs) and ALMPs; (including OJT in SMEs) and ALMPs; (including OJT in SMEs) and ALMPs; SMEs) based on ad- funding for IVET and CVET follows funding for IVET is routine and funding for IVET is routine and based hocbudgeting processes, but routine budgeting processes involving based on multiple criteria, on comprehensivecriteria, including takes no action to facilitate only government officials with including evidence of program evidence of program effectiveness, formal partnerships between allocations determined largely by the effectiveness; recurrent funding for that are routinely reviewed and G4: Ensuring Efficiency and Equity in Funding training providers and previous year's budget; funding for CVET relies on formal processes adjusted; recurrent funding for CVET employers; the impact of ALMPs is decided by government with input from key stakeholders relies on formal processeswith input funding on the beneficiaries of officials on anad-hoc basis and targets and annual reporting with a lag; from key stakeholders and timely training programs has not been select population groups through funding for ALMPs is determined annual reporting; funding for ALMPs recently reviewed. various channels; the government through a systematic process with is determined througha systematic takes some action to facilitate formal input from key stakeholders; process with input from key partnerships between individual ALMPs target diverse population stakeholders; ALMPs target diverse training providers and employers; groups through various population groups through various recentreviews considered the impact channelsand are reviewed for channels and are reviewed for impact of funding on only training-related impact but follow-up is limited; the and adjusted accordingly; the indicators (e.g. enrollment, government takes action to government takes action to facilitate completion), which stimulated facilitate formal partnerships formal partnerships between training dialogue among some WfD between training providers and providers and employers at all levels stakeholders. employers at multiple levels (institutional and systemic); recent (institutional and systemic); recent reviews considered the impact of reviews considered the impact of funding on a full range of training- funding on both training-related related indicators and labor market indicators and labor market outcomes; the reviews stimulated outcomes; the reviews stimulated broad-based dialogue among WfD dialogue among WfD stakeholders stakeholders and key and some recommendations were recommendations were implemented. implemented. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 48 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Functional Dimension 2: System Oversight Policy Level of Development Goal Latent Emerging Established Advanced Policy dialogue on competency A few stakeholders engage in ad-hoc Numerous stakeholders engage in All key stakeholders engage in policy standards and/or the NQF occurs policy dialogue on competency policy dialogue on competency dialogue on competency standards and/or on an ad-hoc basis with limited standards and/or the NQF; standards and/or the NQF through the NQF through institutionalized engagement of key stakeholders; competency standards exist for a few institutionalized processes; processes; competency standards exist for competency standards have not occupations and are used by some competency standards exist for most occupations and are used by training been defined; skills testing for training providers in their programs; most occupations and are used by providers in their programs; the NQF, if in major occupations is mainly skills testing is competency-based for a some training providers in their place, covers most occupations and a G5: Assuring Relevant and Reliable Standards theory-based and certificates few occupations but for the most part programs; the NQF, if in place, wide range of skill levels; skills testing for awarded are recognized by public is mainly theory-based; certificates covers some occupations and most occupations follows standard sector employersonly and have arerecognized by public and some arange of skill levels; skills testing for procedures, is competency-based and little impact on employment and private sector employers but have most occupations follows standard assesses both theoretical knowledge and earnings; no system is in place to little impact on employment and procedures, is competency-based practical skills; robust protocols, including establish accreditation standards. earnings; the accreditation of training and assesses both theoretical random audits, ensure the credibility of providers is supervised by a dedicated knowledge and practical skills; certification; certificates are valued by office in the relevant ministry; private certificates are recognizedby both most employers and consistently improve providers are required to be public and private sector employers employment prospects and earnings; the accredited, however accreditation and may impact employment and accreditation of training providers is standards are not consistently earnings; the accreditation of supervised by a dedicated agency in the publicized or enforced; providers are training providers is supervised by a relevant ministry; the agency is offered some incentives to seek and dedicated agency in the relevant responsible for defining accreditation retain accreditation. ministry; the agency is responsible standards in consultation with for defining accreditation standards stakeholders; standards are reviewed with stakeholder input; standards following established protocols and are are reviewed on an ad-hoc basis and publicized and routinely enforced; all are publicized or enforced to some training providers arerequired as well as extent; all providers receiving public offered incentives and support to seek funding must be accredited; and retain accreditation. providers are offered incentives and limited support to seek and retain accreditation. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 49 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Functional Dimension 2: System Oversight Policy Level of Development Goal Latent Emerging Established Advanced Students in technical and Students in technical and vocational Students in technical and vocational Students in technical and vocational vocational education have education can only progress to education can progress to education can progress to academically or few or no options for further vocationally-oriented, non-university vocationally-oriented programs, vocationally-oriented programs, including formal skills acquisition programs; the government takes including at the university level; the at the university level; the government beyond the secondary level limited action to improve public government takes some action to takes coherent actionon multiple fronts to and the government takes no perception of TVET (e.g. diversifying improve public perception of TVET improve public perception of TVET (e.g. action to improve public learning pathways); (e.g. diversifying learning pathways diversifying learning pathways and G6: Diversifying Pathways for Skills Acquisition perception of TVET; somecertificatesfor technical and and improving program quality) and improving program quality and relevance, certificates for technical and vocational programs are recognized in reviews the impact of such efforts on with the support of a media campaign) vocational programs are not the NQF; few qualificationscertified by an ad-hoc basis; most certificates for androutinely reviews and adjusts such recognized in the NQF; non-Education ministries are technical and vocational programs efforts to maximize their impact; most qualifications certified by non- recognizedby formal programs under are recognized in the NQF; a large certificates for technical and vocational Education ministries are not the Ministry of Education; number of qualifications certified by programs are recognized in the NQF; a large recognized by formal policymakers pay some attention to non-Education ministries are number of qualifications certified by non- programs under the Ministry the recognition of prior learning and recognized by formal programs under Education ministries are recognized and of Education; recognition of provide the public with some the Ministry of Education, albeit granted credits by formal programs under prior learning receives limited information on the subject; the without the granting of credits; the Ministry of Education; policymakers give attention; the government government offers limited services for policymakers give some attention to sustained attention to the recognition of provides practically no further occupational and career the recognition of prior learning and prior learning and provide the public with support for further development through stand-alone provide the public with some comprehensive information on the subject; occupational and career local service centers that are not informationon the subject; a formal a national organization of stakeholders development, or training integrated into a system; training association of stakeholders provides provides dedicated attention to adult programs for disadvantaged programs for disadvantaged dedicated attention to adult learning learning issues; the government offers a populations. populations receive ad-hoc support. issues; the government offers limited comprehensive menu of services for further services for further occupational and occupational and career development, career development, which are including online resources, which are available through an integrated available through an integrated network of network of centers; training centers; training programs for programs for disadvantaged disadvantaged populations receive populations receive systematic systematic support with multi-year budgets support and are reviewed for impact and are routinely reviewedfor impactand on an ad-hocbasis. adjusted accordingly. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 50 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Functional Dimension 3: Service Delivery Policy Level of Development Goal Latent Emerging Established Advanced There is no diversity of There is some diversity in training There is diversity in training There is broad diversity in training G7: Enabling Diversity and Excellence in training provision as the provision; non-state providers operate provision; non-state training provision; non-state training providers, system is largely comprised of with limited government incentives providers, some registered and most registered and licensed, operate public providers with limited and governance over registration, licensed, operate within a range of with comprehensive government or no autonomy; training licensing and quality assurance; public government incentives, systematic incentives, systematic quality assurance provision is not informed by training is provided by institutions with quality assurance measures and measures and routine Training Provision formal assessment, some autonomyand informed by some routine reviewsof government reviewandadjustmentofgovernment stakeholder input or assessmentof implementation policies toward non-state training policies toward non-state training performance targets. constraints, stakeholder input and providers; public providers,mostly providers; public providers, mostly basic targets. governed by management boards, governed by management boards, have have some autonomy; training significant autonomy; decisions about provision is informed by formal training provision are time-bound and analysis of implementation informed by formal assessment of constraints, stakeholder input and implementation constraints; stakeholder basic targets;lagging providers input and use of a variety ofmeasures to receive support and exemplary incentivize performance include support, institutions are rewarded. rewards and performance-based funding. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 51 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Functional Dimension 3: Service Delivery Policy Level of Development Goal Latent Emerging Established Advanced There are few or no attempts Relevance of public training is Relevance of public training Relevance of public training is enhanced G8: Fostering Relevance in Public to foster relevance in public enhanced through informal links isenhanced through formal through formal links between most training programs through between some training institutions, linksbetween some training training institutions, industry and research encouraging links between industry and research institutions, institutions, industry and research institutions, leading to significant Training Programs training institutions, industry including input into the design of institutions,leading to collaboration collaboration in a wide range of areas; and research institutions or curricula and facility standards; heads in several areas including but not heads and instructors are recruited on the through setting standards for and instructors are recruited on the limited to the design of curricula basis of minimum academic and the recruitment and training basis of minimum academic standards and facility standards; heads and professional standards and have regular of heads and instructors in and have limited opportunities for instructors are recruited on the access to diverse opportunities for training institutions. professional development. basis of minimum academic and professional development, including professional standards and have industry attachments for instructors. regular access to opportunities for professional development. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 52 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Annex 4: References and Informants References Angel-Urdinola, D., A. Semlali and S. Brodmann. 2010. “Non-Public Provision ofActive Labor MarketPrograms in Arab-Mediterranean Countries: An Inventory of Youth Programs.”SP Discussion Paper 1005, Social Protection and Labor, the World Bank. Arab Labour Organization. 2012.“Third Arab Report on Employment and Un- employment in the Arab States”. Reflections of Arab Popular Protests on Employment and Unemployment: Present and Future, ALO. Aramex, 2012. “Aramex Annual Report 2012”. Sustainability Report. http://www.aramex.org/Public_Articles Bataineh, M. 2012. “Technical Education Sector in Jordan.”Ministry of Higher Education and Scientific Research, Amman, Jordan. Comerford, D. and M. Shawareb. 2009. “National employment and training program: evaluation report Final document.”Supported by BEST –JORDAN, funded by Canadian International Development Agency. DOS. 2010. “Analytical Report on Job Creation, 2009.” Amman, Jordan (Arabic). ETF. 2006. “Technical and Vocational Education and Training in Jordan: Areas for Development Cooperation.” European Commission in Amman, Office for Official Publications of the European Communities, Luxembourg. ETF. 2012. “Torino Process Report.”ETF Working Paper. Jordan ETVET Council. 2009. “Priority Sectors for Economic Activity in Jordan: Analytical Report.” (Arabic) Amman, Jordan. IBRD and IFC. 2012. “Country Partnership Strategy for the Kingdom of Jordan for the Period FY12-FY15”.Country Management Unit, Middle East and North Africa Refrion. IFC and Islamic Development Bank. 2011. “Education for Employment: Realizing Arab Youth Potential.”Washington, D.C. and Jeddah, Saudi Arabia. Margaret, W., F.Harry, A. Joband P. Kai. 2010. “Vocational Education Competencies and Programs Review.” The European Union’s ENPI Programme for Jordan. Ministry of Education. “Annual Statistical Reports 1990-2012.” Amman, Jordan Tan, Jee-Peng, Kiong Hock Lee, Alexandria Valerio and Joy Yoo-Jeung Nam, 2013. “What Matters in Workforce Development: A Framework and Tool for Analysis.” SABER Working Paper Series Number 6, Education Department, Development Network, World Bank, available at http://go.worldbank.org/32GZWRY8Z0. Theodory, G. 2007.“Employers Driven Skills Development.” the Vocational Training Institute Reform and Development Project, Amman, Jordan. United National Development Programme (UNDP). 2011. “Human Development Report.” HDI values and rank changes in the 2011 Human Development Report. USAID. 2010. “VTC Hospitality Program Case Study”. Amman, Jordan. USAID. 2011. “Education Public Expenditures Working Paper”. Jordan Fiscal Reform Project II, Jordan Economic Growth Office. World Bank, 2008.“Resolving Jordan’s Labor Market Paradox of Concurrent Economic Growth and High Unemployment.” Report No. 39201-JO, Social and Economic Development Group, Middle East and North Africa Region. Washington, D.C.: World Bank World Bank. 2012. “Development Policy Review.” Washington, D.C.: World Bank. World Development Indicators (database). World Bank, Washington, DC. http://data.worldbank.org/data- catalog/world-development-indicators World Economic Forum. 2012. “The Global Competitiveness Report 2012-2013.” The Global Benchmarking Network, Geneva. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 53 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Strategies and Legal Documents - National Agenda: the Jordan we strive for, 2006 - National Employment Strategy, 2012 - Executive Develoment Plan, 2011 - Vocational Education Strategy (MoE), 2012 - Higher Education Strategy 2007-2012 - E-TVET Strategy, 2008 - E-TVET Communication Strategy, 2011 - General Budget Laws 2003 and 2011 and Proposed Government Units budget 2011. - Ministry of Labour law N0. 8 ,1996 - Employment and Vocational and Technical Education and Training (E-TVET) Council Law No. 46 , 2008 - Employment and Vocational and Technical Education and Training (E-TVET) Fund By Law No. 50, 2012 - Center of Accreditation and Quality Assurance (CAQA) By Law No. 35, 2012 - Ministry of Labour Law, 1999. - Ministry of Higher Education and Scientific Research Law No. 23, 2009. - Jordan Universities Law No. 20 ,2009 - AL-Balqa Applied Science University , AL-Balqa University Law , 1997 - Ministry of Education Law , 1994 - Vocational Training Corporation(VTC) law No 38 , 2006 - Chamber of Commerce Law No. 70, 2003. - Chamber of Industry Law No. 10, 2005. Websites - http://data.worldbank.org - http://dos.gov.jo/home - http://etvetfund.gov.jo/ - http://hdrstats.undp.org/en/indicators - http://hdr.undp.org/en/statistics/hdi/ - http://nchrd.gov.jo - http://unrwa.org/ - http://vtc.gov.jo/ SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 54 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 List of Informants: The following list includes all those who informed the data collection process. Name Title Government Mrs. Nadera Al Bakheet Director, E-TVET Council Secretariat Eng. Mohamed Irsheid Director, CAQA Mr. Maher Rababe'a Former Director, DCU – EDSDP/MOL Ms. Abeer Hakouz M&E Officer, DCU – EDSDP/MOL Eng Mohammad Al Shgerat Director for NES, MOL Mr. Ahmad Badareen Technical Officer, TVET Council Secretariat Dr. Mukhallad Omari Director, Ministry of Planning and International Cooperation Ms. Zein Soufan Head, Ministry of Planning and International Cooperation Mr. Ahmad Shadid DG Vocational Education, MOE Ms. Firyal Aqel Director of DCU – ERFKE/MOE Mr. Muwaffa Aead Economic Researcher, Ministry of Industry and Trade Dr. Monther Bataineh Assistant SG, MOHESR Dr. Tarek Al Azab Advisor for Technical Education, Balqaa Applied University H.E. Majed Habashneh, Director General, Vocational Training Corporation Eng. Hani Khleifat Assistant Director General, Vocational Training Corporation Mrs. Tayeed Alalem Director, Planning Unit, Vocational Training Corporation Ms. Susan Gregoleit Vocational Training Corporation Dr. Basheer Al Zoubi President, Higher Education Accreditation Commission (HEAC) Dr. Rula Khzouz Head of TE, HEAC Eng. Ali Nasrallah Director of HRD , Jordan Chamber of Commerce Dr. Khaled Al Qudah Researcher, NCHRD Mr. Mohammad Khreisha Researcher, DOS Mr. Mohammad Abu Sabha Acting Director, E-TVET Fund Non-Government Dr. Omaz Razzaz Chairman of King Abduallah Fund for Development Mr. Fadi Ghandour CEO of Aramex Mr. Qais Qatamin Former E-TVET Fund Director Dr. Hidar Rasheed, Representative, Jordan General Laborers Union Eng. Thaher Al Abed Jordan General Laborers Union Mr. Nayef Z. Stetieh CEO of BDC Ms. Maha Shawareb Vice President, BDC Ms. Mayyada Abu Jaber CEO of JCEF Ms. Orouba Subhi Al- Musa TVET and Youth Advisor - UNRWA Dr. Nader Mrayyan Researcher/Former NCHRD Mr. Khaled Dajani Managing Director, Dajani Consulting SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 55 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Annex 5: SABER-WfD Scores Policy Goal Policy Action Topic G1_T1 2.0 G1 2.5 Provide sustained advocacy for WfD at the top leadership level 2.5 G1_T2 3.0 G2_T1 2.0 Establish clarity on the demand for skills and areas of critical constraint 2.0 Dimension 1 G2_T2 2.0 G2 1.8 G2_T3 3.0 2.1 Engage employers in setting WfD priorities and in enhancing skills- 1.7 G2_T4 1.0 upgrading for workers G2_T5 1.0 G3_T1 2.0 G3 2.0 Formalize key WfD roles for coordinated action on strategic priorities 2.0 G3_T2 2.0 G3_T3 2.0 G4_T1 info Provide stable funding for effective programs in initial, continuing and G4_T2 2.0 2.0 targeted vocational education and training G4_T3 1.0 G4_T4 3.0 G4 2.0 G4_T5_IVET 3.0 Monitor and enhance equity in funding for training 2.0 G4_T5_CVET 1.0 G4_T5_ALMP 2.0 Facilitate sustained partnerships between training institutions and 2.0 G4_T6 2.0 employers Broaden the scope of competency standards as a basis for developing G5_T1 2.0 2.0 Dimension 2 qualifications frameworks G5_T2 2.0 G5_T3 2.0 2.0 Establish protocols for assuring the credibility of skills testing and 2.7 G5_T4 3.0 certification G5 2.2 G5_T5 3.0 G5_T6 info Develop and enforce accreditation standards for maintaining the quality G5_T7 2.0 2.0 of training provision G5_T8 2.3 G5_T9 1.7 Promote educational progression and permeability through multiple G6_T1 2.0 2.0 pathways, including for TVET students G6_T2 2.0 G6_T3 2.0 G6 1.8 Strengthen the system for skills certification and recognition 1.5 G6_T4 1.0 Enhance support for skills acquisition by workers, job-seekers and the G6_T5 2.0 2.0 disadvantaged G6_T6 2.0 G7_T1 3.0 G7_T2 1.3 Encourage and regulate non-state provision of training 1.8 G7_T3 1.7 G7 2.0 G7_T4 1.0 G7_T5 1.7 Combine incentives and autonomy in the management of public training 2.3 G7_T6 2.3 institutions Dimension 3 G7_T7 3.0 G8_T1 3.0 2.1 Integrate industry and expert input into the design and delivery of public G8_T2 2.7 2.0 training programs G8_T3 1.3 G8 2.1 G8_T4 1.0 Recruit and support administrators and instructors for enhancing the G8_T5 2.0 2.3 market-relevance of public training programs G8_T6 2.7 G9_T1 2.7 Expand the availability and use of policy-relevant data for focusing G9 2.2 2.2 G9_T2 1.7 providers' attention on training outcomes, efficiency and innovation G9_T3 2.3 SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 56 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 Annex 6: Authorship and Acknowledgements This report is the product of collaboration between Zaina Dawani, Principle Investigator and staff at the World Bank comprising Amira Kazem, Task Team Leader as well as Jee-Peng Tan, Rita Costa and Brent Parton, leader and members, respectively, of the SABER-WfD team based in the Education Department of the Human Development Network. Ms. Dawani collected the data using the SABER-WfD data collection instrument, prepared initial drafts of the report, and finalized the report; the Bank team scored the data, designed the template for the report and made substantive contributions to the final write up. Special thanks to the Government of Jordan for setting up the WfD National Team to support this activity, whose members include representatives from: Ministry of Planning and International Cooperation, Ministry of Education, Ministry of Labour, Ministry of Higher Education and Scientific Research, Ministry of Trade, E-TVET Council, E-TVET Fund, Vocational Training Corporation and the Business Development Center. This report has benefited from suggestions and feedback from Ms. Nadera Al-Bakhit (E-TVET Council Secretariat), Mr. Majed Habashenh (VTC), Mr. Qais Qatamein (King Abdullah II Fund for Development), Dr. Nader Mrayyan (formerly of the NCHRD), Ms.Yara Masaadeh (E-TVET Fund), Ms. Abeer Hakouz (DCU, MoL). The research team acknowledges the support of all who have contributed to the report and its findings, including informants, survey respondents, participants at various consultation workshops, as well as other members of the SABER-WfD team at the World Bank: Ryan Flynn, Viviana Gomez, Rijak Grover, and Alexandria Valerio. The research team gratefully acknowledges the generous financial support of the Government of the United Kingdom through its Department of International Development’s Partnership for Education Development with the World Bank which makes it possible for HDNED’s SABER-WfD team to provide technical support to the principal investigator in the form of standardized tools for and guidance on data collection, analysis and reporting. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 57 JORDAN ǀ WORKFORCE DEVELOPMENT SABER COUNTRY REPORT |2013 www.worldbank.org/education/saber The Systems Approach for Better Education Results (SABER) initiative produces comparative data and knowledge on education policies and institutions, with the aim of helping countries systematically strengthen their education systems. SABER evaluates the quality of education policies against evidence-based global standards, using new diagnostic tools and detailed policy data. The SABER country reports give all parties with a stake in educational results—from administrators, teachers, and parents to policymakers and business people—an accessible, objective snapshot showing how well the policies of their country's education system are oriented toward ensuring that all children and youth learn. This report focuses specifically on policies in the area of Workforce Development This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. SYSTEMS APPROACH FOR BETTER EDUCATION RESULTS 58 THE WORLD BANK