REPORT COMMISSIONED BY THE EUROPEAN TRAINING FOUNDATION USING THE OECD CARRER GUIDANCE QUESTIONNAIRE REVIEW OF CAREER GUIDANCE POLICIES FINAL REPORT ESTONIA Authors: Margit RAMMO Co-ordinator of the Estonian Euroguidance Centre Mare JUSKE Chief Specialist, Estonian Labour Market Board Mari SAARI Psychologist, Tartu Counselling and Crisis Help Centre Katrin MÄLKSOO Project Manager, Foundation for VET Reform in Estonia This report was the subject of an official consultation process during May and June 2003 with the Estonian Ministries of Education and Research and Social Affairs. The text has not yet been subject to final editing or language revision.
This national report (based on the OECD questionnaire on career guidance policies) was prepared in November 2002 by the following experts: Margit Rammo works at the Foundation VET Reform in Estonia as a coordinator for the Estonian Euroguidance Centre. The Centre contributes towards the development of Estonia s career guidance system and, as a member of the European network, sets out to support guidance counsellors in promoting European mobility and the European dimension within education and training. Rammo has coordinated the production of several publications such as Texts in Career Counselling and Education, Labour Market and Careers Guidance in Estonia as well as web-based guidance tools. She has been involved in the guidance field since 1998. E-mail for correspondence: margit.rammo@sekr.ee Mare Juske works as a chief specialist at the Estonian Labour Market Board. Her tasks involve the provision of information on the labour market situation and labour market training, the coordination and development of job mediation and vocational counselling services, and the harmonisation of their provision in the employment offices. She has worked in the guidance field since 1988. E-mail for correspondence: mare.juske@tta.ee Mari Saari works as a psychologist at the Tartu Counselling and Crisis Help Centre, her main target group being unemployed people. Since 1993 she has led several groups of adults and young people in career planning, and has been a lecturer in solution-focused brief therapy and career counselling. She has worked in the guidance field since 1975. E-mail for correspondence: mari.saari@email.isp.ee Katrin Mälksoo works at the Foundation VET Reform in Estonia as a project manager in the Phare programme. She coordinates the implementation of the project component dealing with the development of career guidance services in Estonia. Having previously been employed by Euroguidance Estonia, she has been involved in the development of the field since 2000. E-mail for correspondence: katrin.malksoo@sekr.ee
CONTENTS 1. Overview 2. Key goals, influences, issues and initiatives 3. Policy instruments for steering services 4. The roles of the stakeholders 5. Targeting and access 6. Staffing 7. Delivery settings 8. Delivery methods 9. Career information 10. Financing 11. Assuring quality 12. The evidence base Annexes
1. OVERVIEW Here we would like a brief overview of arrangements for information, guidance and counselling services in your country. 1.1 Please provide a brief (no more than one page) overview of national arrangements for career information, guidance and counselling services in your country. In answering this please describe the principal service providers, and indicate the extent to which the provision of career information, guidance and counselling overlaps with or is integrated with other services. Indicate how responsibility both for managing and for funding information, guidance and counselling services is divided: between different Ministries (for example Education and Labour); between different levels of government; and between governments and other providers. If possible, include as an Annex the contact details and homepages of key players and main providers of services. (Note: questions that allow more detailed descriptions of services can be found elsewhere in the questionnaire). In Estonia, the co-ordination of careers guidance and counselling is divided between two ministries: the Ministry of Education and Research is responsible for the provision of services to young people whereas the main target group of the Ministry of Social Affairs are the unemployed. The Educational Sector On the Ministry level, information about careers guidance and counselling activities for youth in different parts of Estonia is assembled, and decisions about future actions and resources are taken. To carry out these tasks, the Ministry works in close co-operation with two organisations the Estonian Youth Work Centre (see www.entk.ee) and the Foundation VET Reform in Estonia (see www.sekr.ee). These organisations are responsible for the collection, organisation and dissemination of information both in printed and electronic forms. The first of the two is focused mainly on a large variety of themes that are of importance in the general development of young people, while the other is more career data centred, providing both theoretical guidelines as well as practical databases for counsellors and end users alike. In addition, the Foundation VET Reform acts as Euroguidance Estonia and Leonardo da Vinci Programme, and introduces the international dimension into the field by promoting mobility in Europe and supporting careers counsellors participation in various transnational projects. The Estonian Youth Work Act (see Annex 1) also stipulates that in the county (there are 15 in Estonia), the provision of guidance and counselling for young people is to be organised by the county governor. Depending on regional characteristics and the necessity to cover the entire administrative division with youth oriented information and counselling services, the county governor has the task to contract an institution or specialist capable of accomplishing this. Year 2000 marked the establishment of youth information and counselling centres (henceforth YICC) in each county, which work under the supervision of the county governors. Currently, there are 21 centres in operation across Estonia, of whom 18 have signed contracts with the county governments to provide the services in the area. Three centres operate in the biggest cities of Estonia and are related to the local governments. It has to be noted that in the Estonian context, careers guidance and counselling forms only an undefined part (see p.2.2, 2 nd section) in the work of YICC and counsellors working there. In addition, careers related information is also provided at general education schools by being integrated into the state curriculum. This is further supported by many school psychologists. At tertiary level, careers services operate in 5 Estonian universities.
The Ministry of Social Affairs Under the Ministry of Social Affairs, the Labour Market Services Act came into force on October 1, 2000 deeming vocational guidance to be a labour market service as stipulated by the law. There are 18 vocational counsellors working currently in 16 regional employment offices. The central Ministry of Social Affairs is responsible for establishing the political guidelines and strategic goals making up the national labour market policy and for seeing to it that these guidelines are adhered to. The implementation of the labour market policy is monitored by the administrative Labour Market Board, which supervises and monitors the regional employment offices (16). 2. KEY GOALS, INFLUENCES, ISSUES AND INITIATIVES Here we would like you to provide information about the broad goals for information, guidance and counselling services, about the influences that are shaping these services, about the key issues in their organisation, management and delivery, and about important recent initiatives. 2.1 What are the key objectives and goals of national policies for information, guidance and counselling services in your country? Please describe differences in objectives and goals that might exist between Ministries. Where a legislative basis exists for these objectives and goals, please provide details. The key objectives of vocational counselling activities within the scope of the Ministry of Education and Research are described in two source documents: I. Action Plan for Developing Estonian Vocational Education and Training System in 2001-2004 The accessibility of relevant vocational information and guidance/counselling are an assumption Counselling and labour institutions, effective counselling process and continuous feedback analysis function smoothly II. Development Plan for Estonian Youth Work in 2001-2004 Priorities: Further develop national information and counselling system; Create a network of vocational guidance specialists within the administrative capacity of the local governments Realisation of the plan: 1. Start the regular national funding of the regional ICC with a view to use youth work opportunities (2001) 2. Develop co-operation in information dissemination with different state institutions and the third sector 3. Adjust the activities of the regional centres to the standards laid down by the state (2002) 4. Encourage co-operation within the common network of ICC (starting in 2002) Advisory guidelines for the regional ICC have been prepared and further development plan of the system composed. Contact details of the regional network are available in the database Rajaleidja. Two further training curricula drafts in the field of vocational guidance and counselling have been prepared, waiting to be revised and approved. The shorter one is aimed at teachers working in schools, the longer one at practitioners working already in ICC. Some confusion has been caused by the different aims of the current youth counselling system in the regions: in some cases the centres focus on youth information in general, in some cases, their emphasis is on counselling.
On December 18, 2001, six counterparts the Ministry of Education and Research, the Ministry of Social Affairs, the Ministry of Economy, Estonian Confederation of Employers and Industry, Estonian Chamber of Commerce and Industry and the Estonian Confederation of Trade Unions - signed the Joint Assessment Paper in Tallinn. One of its objectives is to enhance co-operation in the fields of professional career planning and youth friendly labour market. A common centre specialised in vocational guidance and counselling, and in the engagement of the young unemployed, was envisaged to become the institution that would help all parties involved to achieve the above named aims. In addition, it has been realised that efficient collaboration between the two ministries currently co-ordinating the field of guidance and counselling, is an essential prerequisite for sustainable and satisfactory results. Special attention is to be devoted to the joint training (both initial and further) of practitioners and to the production of methodological and information materials. Mobility is likewise to be supported at all levels of education and professional life. The main objective is to reduce unemployment in the future by dealing with risk groups and helping to increase youngsters and adults coping skills in the changing world. 2.2 What are the major social, educational and labour market influences that are currently shaping national policies for information, guidance and counselling services? The main influences that are still effecting Estonian system of careers guidance and counselling, emanate from the 50 years long period of planned economy and centralisation. The system of mandatory assignment to jobs, used both at the graduation from the universities and from the vocational schools, excluded the question of unemployment in Soviet times. With the re-establishment of independence in the early 1990s and the state s advancement from planned economy to free market economy, many people were left unemployed, the elderly among them. However, as the range of priority problems for the state was wide, its attention to careers guidance declined. Public procurement for this field was suspended, former structures and systems were dissolved and the entire development of the field was cut through. Careers guidance practices continued in several minor alternative structures. Today, the major labour market influence that is affecting national policies for information, guidance and counselling services, is the rising figure of the unemployed. The decline in economy s growth in 1998 1999, had a particularly strong influence with the unemployment rate measured according to ILO methodology jumping from 9.4% in the second quarter of 1997 to 13.9% in the fourth quarter of 2000. Long-term unemployment and regional disparities have likewise forced the authorities to re-organise the policy priorities. With youth unemployment rising above the EU average and the number of basic school drop-outs growing, steps have been made eventually to increase the variety of support measures for them. The objectives have been included in the Employment Action Plan for the coming years. In addition, the Labour Market Services Act entered into force on October 1, 2000, stipulating vocational counselling to be an official labour market service and is to be provided only to all registered unemployed and job seekers (information on labour market and training is available and free for everybody). This executed a strong impact on the organisation of labour market structures that required immediately a supply of new counsellors, and brought to the fore the necessity to approve the guidance counsellor s tertiary level training programme. Due to this objective still being unachieved, the labour market administration has been forced to provide other kinds of training several sessions of concrete topic-oriented trainings have taken place within the structure. Of the social influences, emerging new professions that have been brought about by rapid changes in economy, can be highlighted. These jobs require new qualifications and have created the need for re-training and in-service training. People s passive attitude towards
retraining, lack of mobility and psychological barriers to adjusting to the conditions of market economy are still issues that require continuous measures. Within the educational influences, the impact of the lifelong learning concept development is gradually gaining importance. A respective strategy paper has been prepared at the participation of various stakeholders in Estonia, and is likewise in the finalisation phase. 12 counsellors from YICC who had participated in a week-long exchange of careers counsellors in Europe, provided their input to the careers counselling section of the strategy. The strategy will be complemented by a respective action plan. In addition, the developments and trends in the careers counselling field in Europe have their influence in Estonia as well. The main channel for their introduction is Euroguidance Estonia which belongs to the transnational network of Euroguidance centres in all EU Member and Associated States, and the EEA countries. The other channel for the infiltration of the European influences are various international projects that Estonia participates in e.g. Phare projects run both in the educational and labour market sector and have components dealing specificly with careers guidance and counselling issues and the further development of the field. Leonardo da Vinci and Socrates promote international exchanges of the practitioners, and place big stress on the dissemination and sustainability of the project results. 2.3 What are the most important issues facing policy makers in your country in the organisation, management and delivery of information, guidance and counselling services? Key issues for the educational sector. Vocational guidance and counselling, and careers counselling as part of the curriculum Although the local government is responsible for this issue, it has remained of secondary importance on their priority list. There are very many local governments whose budgets are scarcely sufficient to take care of the basic needs of their population, which postpones any changes in the improvement of the situation. The support of central authorities is both needed for the organisation of trainings and the compilation and dissemination of information materials. The establishment of the balanced systems of youth information and vocational guidance in counties. Different regions have currently made different choices as to which aspects should be prioritised: in some regions it is only vocational guidance, in others there is a big number of youth information centres which do not consider vocational guidance to be their responsibility. On the central level of authority, the situation is planned to be influenced by means of preparing contracts that are more binding between the Ministry of Education and Research and the regions for the next year 2003. The contracts would foresee the task of providing vocational guidance services within the framework of youth work. Till now the issue has been up to the regions to decide. The increased binding of the contracts will involve increase of resources. The evaluation of the service quality Service standards are missing. Currently, the reports of the regional YICC are considered for the evaluation of quality, but these do not provide sufficient background information. Assurance of vocational and careers counselling possibilities for working adults
At the current moment, it is not possible to facilitate access to services for all age and interest groups. Vocational guidance of young people takes place as part of their curriculum and as a service of the regional YICC, unemployed people receive counselling within the framework of labour market services; all other target groups can only use possibilities provided in the business sector. There is neither control nor an overview of these services. Both sectors (education and labour) have stressed the co-operation with EU Member States and EEA countries as an important issue. For example, the needs of the European Portal of learning opportunities are considered while the developments of national registers are planned. Labour Market Board is making arrangements to join the EURES network and activate it also in Estonia. In addition, both sectors are engaged in preparatory works for the utilization of European Social Fund. 2.4 Please describe any recent (last five years) initiatives and changes that are of particular significance for the organisation, management, funding, staffing, or delivery of information, guidance and counselling services. For example you might like to describe initiatives such as: government reports that have recommended new approaches or new priorities, new methods and philosophies of providing services (for example within the context of lifelong learning), new or proposed legislation and regulations, new or upgraded services or the down-sizing or elimination of existing services, changed priorities for access to services, changed responsibilities between agencies for the provision of services, new education and training requirements for staff, initiatives to engage citizens in the planning and delivery of services, changes in the involvement of the private sector, technological developments that have made a real difference to the ways in which services are delivered and/or accessed Government reports that have recommended new approaches or new priorities. - Employment Action Plan, 2002 (www.sm.ee/gopro30/web/gpweb.nsf/htmlpages/thtk2002/$file/thtk2002.pdf) - The strategy of Lifelong Learning is still a draft document, but guidance and counselling is one of the issues there as well. New methods and philosophies of providing services: for example within the context of lifelong learning. - The concept of socio-dynamic counselling has been introduced to the practitioners. New legislation and regulations. - Youth Work Act, 1999 see Annex 1, - Social Protection of the Unemployed Act, 2001 see Annex 2, - Employment Service Act, 2001 see Annex 3. New services. - Private sector is developing actively outplacement and management consulting service. New education and training requirements for staff. - The qualification standard of career counsellor IV is a collection of requirements for the employee that he / she has to possess in the form of skills, knowledge and necessary personality traits which has been agreed upon by the institutions concerned. The standard has a voluntary status. Initiatives to raise public awareness and use of services. - Arrangement of regional discussion forums on Lifelong Learning Memorandum and relevant strategy paper in Estonia. - A campaign has been planned to promote lifelong learning (incl. vocational education and guidance). - Continues introduction of services (the network of YICC established in 1999 and guidance counsellors in employment offices 2001).
Technological developments that have made a real difference to the ways in which services are delivered and/or accessed. - The use of the Internet has been continuously supported by both sectors. In addition, the number of good examples in co-operation at regional level is growing rapidly. 3. POLICY INSTRUMENTS FOR STEERING SERVICES Here we wish to know about the key policy instruments that are used to steer information, guidance and counselling services, and about how policy goals are translated into service delivery. 3.1 How important is legislation in steering information, guidance and counselling services in your country? Please briefly describe the main pieces of legislation that directly affect information, guidance and counselling services. More complete details and examples can be provided in an Annex. Legislation lays down the basis and framework for guidance and counselling, hence its role in steering the services can be considered important. Educational Sector Estonian Youth Work Act (see Annex 1) regulates the guidance and counselling of young people in Estonia: 4. 5) Ministry of Education and Research co-ordinates guidance and counselling of young people 5. 3) County governor organises the provision of guidance and counselling for young people in the county, by contracting respective institution or specialist Education Act stipulates the role of local governments: 7. 10) they organise vocational guidance of children and youth, and provide the latter with respective advice. Labour Market Sector Social Protection of the Unemployed Act, 2001 see Annex 2 Employment Service Act, 2001 see Annex 3. 15. Giving information on situation in labour market and of possibilities of employment training (1) Giving information on the situation in the labour market and of the possibilities of employment training means providing information about the conditions of the labour market, changes and forecasts, training providers and vocations to be trained. (2) The purpose of giving information on the situation in the labour market and of the possibilities of employment training is to provide an overview of the labour market, positions and the requirements set for employment in the positions and of the possibilities of employment training in order to enable persons to choose the most suitable job or the most purposeful employment service. 21. Vocational guidance (1) Vocational guidance means recommending to a person who seeks employment, which suits his or her education, professional skills and personal characteristics, or employment training, which is necessary for engagement in employment. (2) The purpose of vocational guidance is to assist persons who seek employment to resolve issues related to choosing work, professional career, and access to or loss of employment. (3) Persons providing vocational guidance must have completed higher education.
3.2 What other instruments are normally used for the political steering of information, guidance and counselling services and to monitor implementation? For example you might like to describe the use of instruments such as outcomes targets, mandatory or voluntary service quality standards, mandatory or voluntary competency standards and qualification standards for staff, competitive tendering for services and the like. Educational Sector Estonian Ministry of Education and Research signs annual contracts with the county governments (15) to provide information, guidance and counselling services for youth in the region (see p.1 Overview). Although according to the law, the county governor is responsible for the implementation of the above named contract (see p.3.1), all appointed regional youth ICC are obliged to report to the Ministry. The Ministry of Education and Research uses this scheme as an instrument for the political steering of the services and their implementation. In addition, Estonian Youth Work Centre and Foundation VET Reform in Estonia carry out their tasks on the basis of their annual contracts. There are no mandatory standards existing within educational sector. In general, youth ICC and services have the following guidelines: they are specifically designed to respond to the needs of young people they are open to all young people, without the need for an appointment they provide information on a wide range of subjects, in a variety of forms, prepared both for young people in general and for groups with special needs the information provided is practical, pluralistic, accurate and regularly updated they operate in a way which personalises the reception of each user, respects confidence, provides a maximum of choice and promotes the client s autonomy when necessary, they refer the user to a specialised service. In addition, the qualification standard for guidance counsellors has been created in Estonia (see Annex 4 and p. 6.4) which establishes both qualification and competency requirements. As respective accreditation system has not been developed yet, the standard can be considered as an advisory document. Labour Market Sector Here you have a list of instruments used in the labour sector: Standard of Public Services / Vocational Guidance in Employment Office, 2001 see Annex 5 Standard of Public Services / Informing about labour market situation and opportunities for labour market training in Employment Office, 2001 Instructions for providing vocational guidance services and official form for reporting on vocational guidance, 2001 see Annex 6 Job description for service provider (including activities by target groups) 3.3 Please describe how government regulation, funding and provision of information, guidance and counselling services are related to one another. Is the same (government) body typically responsible for all three, or are they carried out by separate agencies?
Educational Sector Vocational guidance as part of the youth information system is regulated, financed and provided with information by the Ministry of Education and Research. General regulations are incorporated in the legislation of the field of education. Financing is based on the yearly contracts between the Ministry of Education and Research and the county governors, who are responsible and usually contract an non-profit organisation to provide the service. See also p.1 and 3.2. In addition, Ministry funds other usually non-profit institutions (Foundation VET Reform, Youth Work Centre etc.) to provide necessary careers info. Labour Market Sector The Ministry of Social Affairs is responsible for the political directions (legislation, funding, development and action plans etc). Labour Market Board has the executive role organisation, analysis and development of the service provision. Employment offices are the service providers. 3.4 What mechanisms, if any, exist for co-ordinating information, guidance and counselling services: between different Ministries; between different levels of government; between governments and other parties such as employers, trade unions, the private sector, and community groups; between services for youth and for adults; and between the different agencies that provide services? What barriers exist to co-ordination of services and to networking among providers? Co-operation between different service providers at a horizontal level in both sectors has been developing successively during last years. Hence, co-operation in regions between county government and local authorities, does not function fluently. One of the reason might be the following there are two ministries acting in the same field with different aims and target groups. 3.5 What barriers exist to co-ordination of services and to networking among providers? In the educational sector, the requirements that have been established for the regional YICC are only advisory. On the one hand, this allows the centres and other organisations that provide the services to consider and respond to the local needs and characteristics better; on the other hand, it makes the co-ordination and management of the YICC as a unified network more complicated. The main barrier to co-ordination and networking among providers are limited resources available for the entire field in general. Due to the lack of financial resources, the amount of human resources is likewise too limited. This places too much workload on one person enabling him/her to deal only with basic work tasks, i.e. meeting the needs of clients. No time is left over to thoroughly develop either the services or the networking. On the government level, the biggest drawback is the lack of professional expertise. Again, the inadequate funding of the field restricts the establishment of a proper careers guidance and counselling development institution that would deal with the named issues. Low interest in co-operation and the influences and remains of the former systems of vocational counselling. The lack of expertise at a ministerial level is also one of matters, what hinder co-operation in the field. 4. THE ROLES OF THE STAKEHOLDERS Here we wish to know about the roles played some key stakeholders other than government Ministries -- such as employer organisations and trade unions in information, guidance and counselling services.
Employer organisations 4.1 What role do employer organisations play in regulating or funding information, guidance and counselling services? For example by participating in advisory and co-ordination bodies; by contributing to common funds for information, guidance and counselling services; through providing employee leave to take part in career guidance; or through participation in programme management committees. Educational Sector Employer organisations are involved in the development of strategies and curricula of educational institutions. In some cases, they can also be represented in the Board of Trustees of a general education institution and thus have a say among other topics in those that concern career development. Employer organisations also participate in a variety of programme management committees that deal either directly or indirectly with careers issues. Labour Market Sector At first, employer organisations play a substantial role in providing information about vacancies. Secondly, many of these organisations are actively involved with the development of Estonian qualification system participating in the vocational councils and providing this way the production of qualification standards. Thirdly, employer organisations take also part in the employment councils in regions The role that employer organisations currently play in the funding and regulation of careers issues is in general very small and could be considerably more extensive. 4.2 What initiatives do employer organisations take to help provide information, guidance and counselling services? For example: involvement in career information programmes in schools and tertiary education; the provision of guidance and counselling; organising careers fairs and exhibitions; or the production of career information. The main initiatives undertaken by employer organisations are participation in careers fairs, in surveys conducted by professional associations and in those identifying labour force demand. University careers services work quite closely with employer organisations. Their advice was considered in the process of adopting the 3+2 study system, in addition a variety of events, career days etc are together with them. See also p. 4.1. Through the Estonian Qualification Authority the employers participate in the development of qualification standards, including the one for the careers counsellor that was approved in June 2001. 4.3 Does employer involvement in information, guidance and counselling services tend to be: In answering this question please tick the box that best applies. You might also like to add some descriptive material in support of your response. Seldom Occasional Regular 1 2 3X 4 5
Local Mostly local, but some national 50-50 Mostly national, but some local National 1 2 3 4X 5 Trade unions 4.4 Do trade unions play a role in regulating or funding information, guidance and counselling services? For example through participating in advisory and co-ordination bodies, or in programme management committees. Trade unions role has so far been very modest and mainly of advisory nature. They have been involved to some extent in relevant decision making processes, in school administrative bodies, in the devising of local governments development plans, and in careers fairs. They have expressed interest in a closer involvement in the field. 4.5 What initiatives do trade unions take in providing information, guidance and counselling services? For example involvement in career information programmes in schools; providing guidance and counselling; or producing career information. Here also describe any initiatives taken by trade unions to provide information, guidance and counselling services to their own members. So far the very few initiatives undertaken by trade unions are participation in careers fairs, and in some surveys. They have expressed interest in a closer involvement in the field. 4.6 Does trade union involvement in information, guidance and counselling services tend to be: In answering this question please tick the box that best applies. You might also like to add some descriptive material in support of your response. Seldom Occasional Regular 1X 2 3 4 5 Local Mostly local, but some national 50-50 Mostly national, but some local National 1 2 3 4 5X
Other stakeholders 4.7 Please describe ways in which policies encourage other stakeholders such as parents, associations of students, alumni, community organisations, educational institutions or the end-users of services -- to play a role in information, guidance and counselling services. For example through roles that are expressed in legislation; through policies to contract service provision to non-government organisations; through membership of advisory bodies; through membership of programme management committees. There is no nationwide or any other unified co-ordination system for careers guidance and counselling services in Estonia. The role of different stakeholders depends mostly on their own initiative and sense of mission. The mechanisms that affect the participation of different stakeholders are: legislation (Employment Service Act, Education Act see Annex 3 and Annex 9), the development plans of counties/cities (if the plan contains a section on youth information), the financial resources for promoting the field, different programmes and projects, contracts. On the regional level, the policies encourage the contracting of services from the YICC, which in their nature are mainly non-profit organisations. Parents, students, graduates are invited to participate in the board of trustees of their (former) educational institution and thus have a possibility to provide their input into the development of careers issues within the institution. Foundation VET Reform, being involved in the introduction of the international dimension into the field of careers guidance and counselling through its programmes Euroguidance Estonia and Leonardo da Vinci, has a Board consisting of representatives of educational institutions, professional associations and other stake holders. Foundation Board is entitled to advise all activities undertaken within the Foundation. 5. TARGETING AND ACCESS Here we want to know about priorities for access to information, guidance and counselling services. This section also asks about how services are provided for adults. 5.1 Please describe any priorities or target groups for information, guidance and counselling services, including how priority needs are established. For example target groups might include: school students; young people; adults; unemployed people; those receiving social welfare benefits; tertiary education students; employees; refugees and members of ethnic minorities. The target groups for information, guidance and counselling services within the educational sector are: Young people (according to law, 7 26 years old), more particularly those at the end of basic or upper secondary school (grades 9 and 12). Also those young persons who do not have any practical or professional training, no work or job finding experience; Practitioners youth workers, classroom teachers, information specialists and guidance counsellors at YICC s etc. Within the labour market sector Target groups (Employment Service Act see Annex 3): Non-employed job seeker (i.e. not registered as unemployed) Job-seeker, who has received notice of termination due to re-organisation within the employees enterprise
Need-driven groups (from Social Protection of the Unemployed Act see Annex 2) Youth Long-term unemployed Mothers with small children People with less competitive ability 5.2 How are any such priorities or targets expressed? For example give details of any legislation that provides rights or entitlements to services for particular groups. Priority target groups are expressed mostly by law through different legislative measures: Youth Work Act, Employment Services Act, Basic Schools and Upper Secondary Schools Act. They are also expressed in the Universities Act and in regional development plans. See also p. 2.2.2 5.3 Where such priorities exist, what active steps are taken to ensure that access to services is possible for target groups? For example one-stop-shops ; drop-in services that do not require appointments; telephone helplines; use of community organisations for service delivery; targeted advertising. Guidance and counselling services are provided in employment offices, which are located in every county (16 + 1 in capital city Tallinn). In addition, some counsellors take the services out and travel to more remote parts of their administrative districts. YICC are likewise situated in every county and accessible for everyone free of charge. Depending on the local arrangements, YICC counsellors might also visit schools in the area and provide guidance or testing and follow-up interviews to the classes there. In some rare cases, the counsellors of both YICC and employment offices co-operate in the provision of services to the region. Furthermore, active steps are taken to promote careers guidance and counselling in different media, including information delivery through Internet (e.g. Pathfinder, also almost every YICC has its own homepage). Leaflets, brochures etc are produced, career fairs organised. The counsellors themselves promote their job in every way through trade associations, regional meetings etc. 5.4 Typically, are different methods used to provide services for different target groups? The need for the use of different methods has been recognised by the practitioners but the majority of methods are at the disposal of the private sector and they are very expensive. Due to the lack of sufficient funds their acquisition by the public and non-profit sector counsellors has thus been arbitrary. In the year 2001, according to the action plan of the Labour Market Board, there were special programmes (complex provision of services) provided for the long-term unemployed and young unemployed. 5.5 Do examples exist in which individuals are required to take part in guidance and counselling? For example to continue to receive social security benefits or pensions; or to avoid expulsion from school.
No. 5.6 Do policies for information, guidance and counselling services favour: A comprehensive approach (so that services are universally accessible and meet a wide range of needs); or A targeted approach that favours those in greatest need; or Both of these approaches. The policies for information, guidance and counselling services favour a targeted approach that favours those in greatest need. Still, on of the public services - Informing about labour market situation and opportunities for labour market training is offered free of charge for all in Employment Offices. 5.7 Please describe the major gaps, if any, in the provision of information, guidance and counselling services. Are there any groups whose needs appear to be met less effectively than others? There are major gaps in the provision of information, guidance ad counselling services. The needs of people with special needs, migrants, employed adults (including the need for retraining, in-service training, changing over job or fulfilling a personal career plan), unregistered unemployed appear to be met less effectively. The needs of prisoners and soldiers are not fulfilled so well either. Services for adults 5.8 Please describe how information, guidance and counselling services are organised and provided for adults in your country. For example: which agencies (educational institutions, community organisation, the public employment service) typically provide services for adults; are these different from the agencies that provide services for youth; how are different agencies co-ordinated; what priority do services for adults have compared to services for youth; what recent initiatives have been taken to provide services to adults. Services for adults are provided through the employment offices, personnel recruitment companies and social rehabilitation centres, also by personnel specialists in enterprises, by private counsellors, including HEIs, and by the universities. Agencies for adults are different from the agencies that offer services for youth in the sense that there are much more services provided for the latter. Services offered for adults are more limited, e.g. an unemployed must be registered, to be able to receive counselling, a working adult must pay for the service etc. Different institutions are co-ordinated by law, by county and local government regulation (including programmes, projects and contracts). While services for youth are more preventive (pre-training, entering the labour market) in their nature, information, guidance and counselling for adults is more like repairing the mistakes (i.e. re-training, in-service training, coping and remaining in the labour market). Counselling services are provided in employment offices since October 2000. In addition, there are services offered on the Internet (CV-Online etc see p.7.7).
6. STAFFING Here we wish to know about the types of staff that provide information, guidance and counselling services in your country, and about their qualifications and competencies. In answering this section, please describe differences between staff in the different settings in which information, guidance and counselling services are provided: for example schools, tertiary education, community organisations, public employment services. 6.1 What types or categories of staff are employed to provide information, guidance and counselling services in your country? For example information librarian, classroom careers teacher, school counsellor, public employment service counsellor. Vocational counsellors in employment offices Information specialists and career guidance counsellors in YICC School psychologists Teachers Information specialists and counsellors in tertiary education Information specialists and career counsellors in private sector Personnel managers Social workers in local governments 6.2 What is the best information that can be provided on the number of staff, by type orcategory, who are employed to provide information, guidance and counselling services in your country? Please indicate if information on their age, gender and equity group structure is available. An overview of specialists is available in the employment system 18 vocational counsellors working currently in 16 local employment offices. Detailed information on the number of staff and other data requested above cannot be provided. In addition, there was a master s thesis Trends in Estonian Career Counselling in the Light of Societal Transformation and Constructive Framework defended in 2000 including a practical study with qualitative orientation. 6.3 What education and training qualifications are the different types or categories of career information, guidance and counselling staff required to have? (Where qualifications are required, please indicate whether it is government or a professional association that requires them, and describe relevant professional licensing bodies). For example teaching qualifications, university degrees in psychology, special diplomas in guidance and counselling, post-graduate qualifications, completion of in-service courses and so on. Please describe the length of the education and training and the type of qualification that it leads to. Please describe any differences in requirements between the different settings in which services are provided. Teachers, who s qualification, training and evaluation requirements have been acknowledged, deal with careers guidance as a part of a cycle. According to the qualification requirements all teachers on the level of primary or secondary education must have pedagogical or special higher education.
Level of Education and Training University degree In-service courses School psychologist In psychology Preferably Type of staff position Career guidance counsellor in YICC Information specialists in YICC Vocational counsellor in employment office Counsellor in private agency Preferably in psychology or pedagogy Preferably in youth work Preferably in psychology or pedagogy Preferably in psychology or pedagogy Preferably Preferably Preferably Preferably Teacher In pedagogy Preferably 6.4 What, typically, are the types of competencies (or knowledge and skills) that these different types or categories of workers are required to have? For example communication skills, group facilitation skills, individual and group assessment skills, labour market knowledge, knowledge of career development theory. Competence Commu nication skills Group facilitati on skills Individual and group assessment skills Labour market knowledge Knowledge of career development theory Other Type of staff positi on School psychologist Career guidance counsellor in YICC Information specialists in YICC Vocational counsellor in employment office Counsellor in private agency Teacher X X X X X ICT X X X X X ICT X X X X ICT X X X X X ICT X X X X X ICT X X X X ICT
6.5 How are the competencies or knowledge and skills required of those who provide information, guidance and counselling changing, and why? What is being done to meet these changing knowledge and skill needs? Educational Sector Changing knowledge and skill needs for teachers and school psychologists are meat through their competency requirement guidelines. Practitioners (information specialists and career guidance counsellor) working in YICCs have no mandatory knowledge or skill requirements. Still the requirements in the qualification standard (see Annex 4) are taken into account when the job description for counsellors is composed. The standard is valid for 4 years. There are several in-service trainings organised to meet the needs. Besides, the draft of vocational description for youth worker has been drawn. Labour Market Sector The system of annual evaluation of service providers (vocational counsellor and other consultants) onwards the 2 nd work year has been developed to meat the needs in the labour market sector. Also for the first time the training plan of the workers in the labour market system was composed. 6.6 What opportunities exist for information, guidance and counselling service staff to update their knowledge and skills? For example: Do industrial agreements allow time for recurrent education and skills upgrading? What time, and what programmes, do government agencies provide for the purpose? What recurrent education and skills upgrading courses are provided by tertiary institutions?! Courses ordered or arranged by institutions! Courses offered by special unions! Courses offered by higher education institutions! International programmes (e.g. exchanges)! Networks mediation of practical experience! Continuous self-learning (literature, via Internet etc) There is a 3% resource of yearly salary fund designated to teachers for re-training. This could be used for several purposes, including re-training in the field of career guidance. The workers of youth information system can participate in those trainings too. In addition, Adult Education Act supports employees to receive 14 to 49 days for training purposes maintaining average salary. 6.7 Please describe any policies that exist to systematically make use of groups such as alumni, parents and local employers in delivering services. For example by acting as mentors, or by visiting classes to provide information on careers. One cannot find a unified and well-regulated system of careers guidance and counselling in Estonia. The involvement of above mentioned groups lie quite often with the enthusiast s initiative that is supported slightly by the law and also by development and action plan at regional and local level. In addition, parents, students, graduates are invited to participate in the board of trustees of their (former) educational institution and thus have a possibility to provide their input into the development of careers issues within the institution.