1 Continuing Professional / Technical Education in the Philippines By Dr. Divina Edralin Don Antonio Tambunting, Sr. Professor of Business Management Director, Center for Business and Economics Research & Development De La Salle University-Manila June 1999 Economic Policy Agenda for the Estrada Administration Trade and Investment Policy Analysis and Advocacy Support (TAPS) Project There is no such thing as sufficient initial education: learning is endless--Michael Howard, U.K. Secretary of State for Employment 1. Introduction A learning society is one in which all citizens acquire a high quality general education, appropriate vocational training and a job (or series of jobs) worthy of a human being while continuing to participate in education and training throughout their lives. A learning society would combine excellence with equity and would equip all its citizens with the knowledge, understanding and skills to ensure national economic prosperity and much more besides.... Citizens of a learning society would, by means of their continuing education and training, be able to engage in critical dialogue and action to improve the quality of life for the whole community and to ensure social integration as well as economic success. (ESRC, 1994). Seen as a set of practices, at least three interpretations have been placed on the concept of a learning society: (1) the learning society as an educated society, committed to active citizenship, liberal democracy and equal opportunities; (2) the learning society as a learning market, enabling institutions to provide services for individuals as a condition for supporting the competitiveness of the economy; (3) the learning society as learning networks, in which learners adopt a learning approach to life, drawing up on a wide range of resources to enable them to develop their interests and identities (Edwards, 1995). At this stage of its economic development, the Philippines is struggling to uplift the conditions of the poor, which still constitutes a big bulk of the population. Of paramount concern is spurring economic activity to create more jobs for the increasing number of Filipinos. With this in mind, the government has chosen to trek the path of liberalization by taking an active part in the ASEAN Free Trade Area (AFTA), the Asia-Pacific Economic Cooperation (APEC), and the World Trade Organization (WTO). The intent is to open up the economy by
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Continuing Professional / Technical Education in the Philippines
By Dr. Divina Edralin Don Antonio Tambunting, Sr. Professor of Business Management
Director, Center for Business and Economics Research & Development De La Salle University-Manila
June 1999
Economic Policy Agenda for the Estrada Administration Trade and Investment Policy Analysis and Advocacy Support
(TAPS) Project
There is no such thing as sufficient initial education: learning is endless--Michael Howard, U.K. Secretary of State for Employment
1. Introduction
A learning society is one in which all citizens acquire a high quality general education, appropriate vocational training and a job (or series of jobs) worthy of a human being while continuing to participate in education and training throughout their lives. A learning society would combine excellence with equity and would equip all its citizens with the knowledge, understanding and skills to ensure national economic prosperity and much more besides.... Citizens of a learning society would, by means of their continuing education and training, be able to engage in critical dialogue and action to improve the quality of life for the whole community and to ensure social integration as well as economic success. (ESRC, 1994).
Seen as a set of practices, at least three interpretations have been placed
on the concept of a learning society: (1) the learning society as an educated society, committed to active citizenship, liberal democracy and equal opportunities; (2) the learning society as a learning market, enabling institutions to provide services for individuals as a condition for supporting the competitiveness of the economy; (3) the learning society as learning networks, in which learners adopt a learning approach to life, drawing up on a wide range of resources to enable them to develop their interests and identities (Edwards, 1995).
At this stage of its economic development, the Philippines is struggling to
uplift the conditions of the poor, which still constitutes a big bulk of the population. Of paramount concern is spurring economic activity to create more jobs for the increasing number of Filipinos. With this in mind, the government has chosen to trek the path of liberalization by taking an active part in the ASEAN Free Trade Area (AFTA), the Asia-Pacific Economic Cooperation (APEC), and the World Trade Organization (WTO). The intent is to open up the economy by
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liberalizing trade and investment policies in order to attract new job-generating enterprises and to foster competition among the different industries in the country. This is an acknowledgement that only by tapping the virtually unlimited growth potentials of the global markets can the country provide adequate jobs to its rapidly growing labor force.
With the onset of globalization, however, the goal of achieving higher
levels of employment, in an effort to combat poverty, becomes even more difficult to reach because of the glaring mismatch between the skills of graduates provided by higher education institutions (HEIs) and those required by employers. With the liberalization of markets, whole industries could shrink or expand, shifting the demand for skills and the availability of job opportunities. To become more productive and globally competitive, Philippine companies need human resources that do not only have basic workplace competencies but also higher-level professional and technical skills.
Moreover, the trend towards the liberalization of services, and the rapid
development and application of new technologies, are forcing local professionals to upgrade their skills to keep themselves competitive compared to professionals the world over. There is a need, so they say, “to level the playing field.” This is where continuing education comes in, through which the country moves closer to fully becoming a learning society.
Continuing education is the aggregate principles and practices
encompassing education of individuals after they have left the formal system. Continuing education includes continuing professional education and further non-formal and informal education and training. For purposes of this paper, continuing education must be understood in consonance with the UNESCO’s definition of adult education, which:
denotes the entire body of organised educational processes, whatever the content, level, and method, whether formal or otherwise, whether they prolong or replace initial education in schools, colleges, and universities, as well as in apprenticeship, whereby persons regarded as adult by the society to which they belong develop their abilities, enrich their knowledge, improve their technical or professional qualifications, or turn them in a new direction and bring about changes in their attitudes and behavior in the two-fold perspective of full personal development and participation in balanced and independent social, economic and cultural development (UNESCO, as quoted in Kidd and Titmus, 1989).
Continuing education is closely linked to the notion of lifelong learning,
which is the body of theories and principles espousing that education and learning occurs as a continuing process throughout a lifetime. Lifelong learning, therefore, encompasses the following: initial education, which is the period of
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continuous formal study (and ‘youth training’) completed before entry into main employment (Parry, 1993); further education, which refers to education oriented toward more specific occupational or life skills, rather than academic degrees (Carnegie Commission on Higher Education, 1973); and recurrent education, which is the distribution of education over the lifespan of an individual in a recurring way. Recurrent education implies the alternation of education with other activities, of which the principal would be work, but which might also include leisure and retirement (Council of Europe, 1973).
Today, continuing education has emerged as the preferred category to
describe the education of adults (Jarvis, 1983), and has been extended in recent years to encompass parts of initial education as well as the core territory of post-initial education and training.
The literature on continuing education reveals that it aims to achieve any
or a combination of the following objectives: 1. Improve the adaptability of the labor force to technological change. 2. Invigorate educational institutions. 3. Facilitate more flexible labor market adjustments to changing
requirements. 4. Enable a better interplay between educational and other social sectors,
including a better contribution to the potential necessary for economic growth.
5. Enhance continuing personal development, motivation and learning behavior of adults.
6. Enhance individual freedom of choice and opportunities for self-development.
7. Provide better opportunities for individual development. 8. Restore and protect the employment prospects of particular individuals
and groups.
Given this background, and taking into consideration the information gathered from interviews and various secondary sources, this paper aims to review the status of, and identify issues concerning, continuing education in the Philippines, to review the experiences of other countries that could be useful to the Philippines, and to present a set of recommendations concerning continuing education in the country.
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2. Relevant Country Experiences
The experience of other countries regarding continuing education could provide useful insights for the Philippines as it attempts to improve its own continuing education programs. Hereunder is a review of the experiences of selected countries.
Worth mentioning is the fact that continuing education has a long history
dating as far back as the French Revolution, during which the concept of lifelong education was first formulated within the framework of the Condorcet Education Plan. Since then, adult education has developed into a complex system, and has contributed to the transformation of the French economy and society. In the 1960s, for example, adult education played a major role in facilitating the transition of the traditional labor force (agriculture and crafts) to new industries.
In Japan, the role of school education was emphasized during the Meiji
era (1868-1912) with the promulgation of the Education Order in 1872 in an attempt to catch up with the advances made by the USA and Western countries. While both school education and social education (first referred to as ‘popular education’) have been considered as complementary educational activities, school education has been regarded as the main stream, with social education fulfilling a secondary role. From the latter half of the Meiji era, however, especially after the Russo-Japanese War (1905), the development of social education, which was directed towards youth and adults who had insufficient school education, was undertaken in real earnest. As a result, even before the start of World War II (1941), social education, a precursor of adult education, was already practiced on a wide scale throughout the nation.
Combating unemployment. Faced with the structural problem of
unemployment, including long-term unemployment, most industrialized countries are developing schemes to train and retrain the growing number of unemployed people. Such courses usually encompass preparation for work, basic skills, and specialized programs for specific occupational tasks (Atchoarena, 1993).
In Europe, the magnitude of and the increase in unemployment figures
tend to focus lifelong education on labor market issues. The aim is to assist in finding employment through training for the unemployed and in the prevention of marginalization of the long-term unemployed. In France, for example, the 1990s saw the growth of continuing education as government allocated more resources to training programs for the out-of-work in an effort to curb the rising unemployment level (Atchoarena, 1993).
In the United Kingdom, the persistence of skills shortages alongside high
levels of youth and adult unemployment have encouraged central government to give emphasis on skills development and employment-related education, and to shift resources in this direction (Parry, 1993).
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The unification of Germany, on the other hand, has resulted in radical changes in individual life patterns (including loss of jobs), bringing forth the need for retraining and skill adjustment. In the eastern states of Germany alone, roughly 400,000 men and women are currently enrolled in programs of further education and retraining. Although the development of strategies for lifelong learning has come under the influence of new political priorities, the overall emphasis on labor-related premises and objectives has been even further strengthened (Kunzel, 1993). In the former Soviet Union, higher and lifelong education need to deliver economic and managerial knowledge and skills required in the transition to a market economy. Because of the mismatch between higher and lifelong education and the labor market, a higher education diploma is no longer a guarantee of employment or adequate remuneration (Kitaev, 1993).
In Singapore, there are plans to hold an annual manpower meeting where
government officials, employers and unions could discuss with foreign experts how to improve training. This comes amid warnings from some trade union leaders that unemployment could rise to as much as 7 per cent of the work force in 1999. As Singapore was hit hard by the regional slump, growth in gross domestic product fell sharply to 1.5 per cent in 1998 from 7.8 per cent in 1997, with the manufacturing sector declining by 0.5 per cent. This resulted in 19,000 manufacturing workers losing their jobs.
In response to the rising unemployment and to the competition posed by
the cheaper work force of neighboring countries, the Singaporean government has taken steps to increase the productivity and upgrade the capabilities of its work force. According to Prime Minister Goh Chok Tong, there is a need “to restore and widen the competitive gap between ourselves and our neighbors.” Among these efforts is the establishment of the School of Lifelong Learning, which is meant to help workers learn continuously to enhance their employment prospects.
Financing of continuing education. In France, the government imposed
a payroll tax for all companies of 10 workers or more, because it was felt that the government budget was not sufficient to sustain the level of investment required to finance the level of training necessary for economic growth. Companies can avoid paying the tax if they provide training for their workers. As a result of this policy, employers have become a significant source of funding for training in France. In 1991 alone, 42 percent of total financial resources spent for training came from companies.
There are 96 fund-collecting organizations authorized by the state to
collect funds and finance educational activity in France. They covered 82,000 companies employing some 4,490,000 individuals and they collected 2.95 billion francs in 1989. They also took control of educational expenses totalling 3.6 billion francs in accord with agreed educational plans or individual measures for
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education. Furthermore, employers are liable to pay 0.15 per cent of their total wage bill to one of the 67 organizations authorized to organize individual paid educational leave, which is the right of every individual by law. In 1989, this contribution amounted to 1.17 billion francs. During that year, there were 21,725 individual applications for study leave, with an average of 800 hours each. Finally companies are expected to pay a continuing education contribution of 0.3 per cent of their wage bill to OMA (Organisme de Mutualisations Agrees), which are responsible for planning alternative professional training for young people. In 1989, approximately 6.9 billion francs were contributed to these funds.
In Sweden, Parliament decided to create renewal funds by cutting 10
percent off the profit of bigger enterprises. The total sum was used for corporate learning strategies over a period of five years starting from 1986. This policy had a strong impact on work-oriented learning strategies. Even though employers were very skeptical about this method of using their profits, it is obvious that the interest in employer-sponsored adult education increased strongly during the late 1980s (Abrahamsson, 1993).
Role of government. In France, the state plays a principal role in continuing education. It determines policy on an inter-ministerial level, manages the funds for further education and social promotion, and engages in educational activity with specific priority groups in the population. In addition, the Delegation of Further Education constitutes the central organization on a national level, and is involved in planning and sub-contracting education to the regions. It also plays a major role in the negotiations between trade unions and employers’ organizations.
In 1989, the state organized further educational programs for 1.25 million
people, provided about 350 million training hours and spent 18.8 billion francs. In addition, it donated 2.4 billion francs to the regions for continuing professional education and apprenticeship training, allowed 4.1 billion francs in tax exemption to companies employing young people and offering apprenticeships to the long-term unemployed, and spent 14.8 billion francs on paying trainees and the continuing professional education of its own staff.
In Germany, the federal government seeks to promote and develop the
economic welfare of the nation partly through vocational training and continuing vocational education. The federal administration takes control, by way of legislation, financing and curricular licensing of that part of Weiterbildung (adult continuing education) which is labor-market oriented, including the approbation of professional qualifications.
In the USA, professionals are required by their licensing bodies to attend a
minimum number of educational events each year. Of the 30 million professionals in the United States, as estimated by Cervero (1988, 1989), 75 per cent of those surveyed were already found to be participating in continuing education at levels exceeding the minimum requirements (Phillips, 1987).
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In Japan, the policy for lifelong learning is being developed at three
different levels of the state, the prefecture, and the municipality, with the Ministry of Education, Science and Culture (MOESC) taking the leadership. While respecting the autonomy and free development of private educational entrepreneurs, the central government and the local public bodies give indirect support.
In the United Kingdom, the role of the state in post-school education and
training was to be deliberately detached, with interventions into the training market limited to supporting disadvantaged groups (the disabled and long-term unemployed), pump-priming new ventures, and urging employers to invest in vocational education and training (Parry, 1993).
Role of the private sector. Throughout Europe, as well as in Japan and
the USA, employers, whether or not supported by the state, are increasingly providing adult education opportunities for their workforce.
There is a great variety of co-operation arrangements and modes of delivery developed by industries. These delivery systems include: in-house company-training, programs organized in companies’ training centers, courses organized by a training institution to meet the company’s training needs, mixed schemes including on-the-site training, self-imposed individual study, and distance education programs.
In France, businesses are a major player in the education of adults,
spending approximately 2.97 per cent of their total wage bill on training—both in-house and external (Caspar, 1993).
In the United Kingdom, employers have been given the prime
responsibility for investment in training and for meeting targets set by the Confederation of British Industry. Much of this training has been sub-contracted to local providers of further and higher education, although non-profit groups (such as group training associations, chambers of commerce, and industry training organizations) also provide training, particularly short courses or continuing provisions for adults.
More significantly, many of the largest companies in the UK have had
long-established and effective training programs. Worth mentioning is the Employment Development and Assistance Programme launched by Ford Motor Company in 1989 across its 22 major sites in Britain and available to over 40,000 employees. In this initiative, employees were offered funding for non-job-related educational and training opportunities and by 1990 over 20,000 applications had been received for more than 500 courses. The program was planned in cooperation with the trade unions and with educational providers.
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In Japan, there is a considerable range of lifelong educational activities conducted by the private sector. Private providers of learning opportunities for adult learners in Japan include company and vocational education institutions, social education centers, and private educational institutions such as Culture Centers. Furthermore, other conventional program providers in the private sector such as temples, churches, YMCAs, and YWCAs have begun to embrace the concept of lifelong learning.
In Germany, other private sector establishments, outside of business
enterprises, are involved in providing continuing education. These include church organizations (nine per cent of enrolments), institutes of distance learning, welfare organizations, trade union offsprings, party-political foundations, societies for technical and commercial education, and, having emerged from various ‘social movements’ in the early eighties, alternative adult education organizations (Atchoarena, 1993).
In the USA, providing agencies (outside of higher education institutions)
involving adult learning include: community organizations, corporations and businesses, free universities, labor unions, the Armed Forces, parents’ groups, professional organizations, public (state) schools, self-help groups, voluntary organizations, community development agencies, cooperative extension, cultural institutions, hospitals, mass media, non-profit agencies, prisons, proprietary schools, and religious institutions. (Brookfield, 1993).
Role of higher education institutions. There seems to be a general
trend towards an increasing involvement of higher education institutions in providing lifelong education. This common pattern takes place within a context of great change in higher education systems. Such changes include: the continuing expansion of the number of students enrolled in higher education, change in the structure of higher education, closer cooperation between industries and universities, the search for stronger links between the higher education institutions and the regions they serve, the introduction of market mechanisms into higher education provisions, and pressures for greater accountability (Atchoarena, 1993).
In France, the need for higher education institutions to be involved in
continuing education was only officially recognized in 1984, when an Act was passed extending the mission of tertiary education institutions to include adult education and inviting them to establish ad hoc delivery and administrative structures. This legal framework, together with growing pressures from the economic environment, has given an increasingly important role to universities in continuing education. In 1989, higher education institutions trained 5 per cent of the total number of adults who had benefited from continuing education. The same year, 19,740 university degrees were granted by higher education institutions within the framework of continuing education, corresponding to 8 per
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cent of all degrees awarded. In 1991, 412,000 adults benefited from continuing education services provided by tertiary education institutions, mainly universities.
In the United Kingdom, higher education as a sector had played an
important part in highlighting the strategic role of continuing and higher education, not just in relation to advanced learning but as a phase in a wider and articulated system of post-compulsory education and training (Parry, 1993). Among the providers of continuing education, colleges of further education account for the majority of people engaged in formal learning in the post-school system. Typically, colleges of further education offer a broad mix of programs and qualifications matched to the needs of the local communities they attempt to serve. Across all colleges, only about one in five students follow full-time courses, the majority participating on a part-time basis, through short courses, or through regular or occasional day or evening attendance.
In Japan, the number of adults entering higher education institutions
amounted to 3,448 in university departments (1989), 1,623 at junior colleges (1989), and 1,827 at graduate schools (1990). Special training schools, known as Special Training Colleges, which offer advanced courses, have played a definite role among the further education institutions in conferring specified technical skills and knowledge to the 59,515 adult students (specifically, employed people) who were enrolled as of 1988. Higher education institutions also offer extension courses, and figures for 1989 show that out of 499 universities, there were 395 universities (79 per cent) offering 3,147 courses to a total of 415,198 participants.
In Singapore, the government recently set up the School of Lifelong
Learning, which uses modern communication technologies to link businesses and individuals to affordable training opportunities. This is part of a comprehensive learning system that encourages workers to acquire skills throughout their careers so they can adapt better to rapid changes in the workplace (Richardson, 1999).
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3. Continuing Education in the Philippines In the Philippines, continuing education encompasses both continuing
professional education, which is primarily the responsibility of the Professional Regulation Commission (PRC) and of the Commission on Higher Education (CHED), and technical-vocational education and training (TVET), which is the main responsibility of the Technical Education and Skills Development Authority (TESDA).
Continuing professional education. The Professional Regulation
Commission (PRC) recognizes the following as part of continuing professional education (CPE): seminars, conventions, academic studies, distance learning, authorship, inventions, preparation of teaching materials, on-the-job training, study and observation tours, professorial chair lectures, and other activities pre-approved by the CPE councils. Currently, CPE programs are basically meant to update the professionals about the latest developments in their respective fields, and serve as a requirement for the renewal of their license to practice.
Anticipating the stiff competition in the global professional labor market as
a result of the General Agreement on Trade in Services (GATS), the Philippine government has required all Filipino professionals to undergo continuing education programs. The standardized implementing guidelines and procedures for CPE programs as contained in PRC Resolution No. 381, took effect on November 13, 1995 in compliance with Executive Order No. 266 signed by President Ramos on July 25, 1995. Under the law, 40 different professions being regulated by the PRC are required to undergo CPE programs to be administered by various accredited CPE providers. These programs are meant to ensure that licensed professionals maintain minimum skills, are exposed to advances in their field of practice, and get additional training.
The law requires registered professionals with baccalaureate degrees to
earn a total of 60 units in CPE credits for three years, while those with non-baccalaureate degrees need 30 CPE credit units before they can renew their respective licenses. Those who fail to comply with the law would not be permitted to renew their professional licenses and would be ‘delisted’ from the roster of professionals authorized to practice in the Philippines. As of May 26, 1999, there are 1,175,386 registered professionals across 35 categories of PRC. In the top of the list are the nurses, midwives, and accountants (Refer to Appendix 1).
Since the law took effect, the PRC has accredited at least 1,611 CPE
providers, including colleges and universities, professional associations, and private companies. The professions with the most number of accredited providers are nursing, which has 360; medicine, 230; dentistry, 121; professional teachers, 116; medical technology, 77; accountancy, 67; and midwifery, 63 (Refer to Appendix 2).
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The extent of participation of professionals in the various CPE programs can be gleaned from the records of the PRC, which show that a total of 43,153 certificates of compliance, 29,278 certificates of exemption, and 48,929 certificates of undertaking had been issued in 1998 (refer to Appendix 3). However, figures for some professions like architecture, civil engineering, geodetic engineering, interior design, landscape architecture, medical technology, and social work are unavailable.
The number of accredited programs as shown in Appendix 4 have also
progressively increased over the past three years with the medical, nursing, midwifery, and accountancy professions accounting for the most number of approved programs.
Tullao (1998) cited the different positive characteristics of the CPE
program implemented by the PRC, particularly the variety of CPE methods, the varying weights of CPE points professionals undergoing training could earn to renew their license to practice, and the requirement for documents to prove attendance in training programs. Tullao, however, suggested a review of the current Matrix of CPE Programs, Activities and Sources (refer to Appendix 5) in response to the need to enhance the international competitiveness of local professionals. He further noted that international benchmarking requires giving more weight to research papers, publications in professional journals, and graduate studies, which are not the preferred forms of continuing education in the country.
Dr. Andres Oreta, a member of the Philippine Institute of Civil Engineers
(PICE) and a former reviewer of CPE programs for civil engineers, would rate the general quality of CPE programs for civil engineering, particularly those provided by the PICE Chapters, as “average” based on the feedback of the participants. This rating is reflected in the reports submitted by accredited CPE providers after they have conducted a CPE program.
He acknowledged that PICE needs to augment its pool of speakers to
expand the scope, and to improve the quality, of the content of various CPE programs for civil engineers. He bewailed the fact that some CPE providers give very short notice (sometimes just a week before a seminar) to invited resource persons, preventing the speakers from preparing well for a particular topic or from coming up with a fresh topic that would be of interest to the participants.
Dr. Oreta observed that, in many one-day or two-day seminars, topics are
“very diverse” with several speakers often tackling remotely related topics. This could lead to limited learning among participants, who could have benefited from a more focused seminar featuring a module of related topics. He likewise expressed concern over the ‘diverse’ composition of participants in CPE programs, forcing speakers to adjust their topics to an “average level” to
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accommodate older participants who “find it difficult to understand advanced topics.”
He pointed out that some seminars have too many participants,
sometimes exceeding 200 at a time, obviously an attempt “to maximize profits” and to recoup the expenses of the CPE providers. To compound this situation, some participants just have their attendance recorded in seminars and conferences without actually attending the sessions.
Dr. Oreta, however, revealed some steps being taken by PICE to improve
its CPE programs. The PICE, for example, is examining the possibility of having specialty groups (structural engineers, construction engineers, hydraulics engineers, geo-technical engineers) within the association and its various chapters. By designing CPE programs towards specialty groups, the problem of having remotely unrelated topics in one seminar or conference would be addressed because CPE modules would necessarily contain topics connected to the specialization of the participants.
Mrs. Anesia Dionisio, President of the Philippine Nurses Association (PNA), would rate the quality of CPE programs for nursing as “excellent” based on the feedback of takers, but does not yet clearly see the impact of the CPE programs on the quality of service provided by nurses to their patients. She expressed confidence in the capability of accredited CPE providers for the nursing profession, which include PNA’s different chapters and reputable hospitals. She pointed out, however, that the CPE programs offered to nurses have not yet been standardized, meaning that the content of a seminar on the care of diabetic patients, for example, would differ depending on who is teaching it. She laments the commercialization of the CPE programs and the lack of consistency in giving credit units of some CPE providers.
Like PICE, the PNA is moving towards the direction of specializing within
the nursing profession with the adoption of a voluntary ‘credentialing’ process leading to a specialization in psychiatry nursing, maternal and child nursing, community health nursing, or medical surgeon nursing. Mrs. Dionisio envisions a system through which nurses could take up CPE programs leading towards a specific specialization, after which an accumulated number of credit units could earn for the nurse a master’s degree in his/her specialization, one that could be granted by an accredited university. This system, she believes, will make the CPE programs meaningful to nurses and really lead them towards an improvement in their skills in health care delivery.
Continuing vocational training. Another component of continuing
education in the country would be technical-vocational education and training (TVET), which is the primary concern of TESDA. Established in 1994, TESDA aims to mobilize the full participation of industry, labor, local government units and technical-vocational institutions in the country’s skilled manpower
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development programs. The creation of TESDA was meant to reduce overlapping in skills-development activities initiated by various public and private sector agencies, and to provide national directions in the varied programs of the different educational and training institutions that comprise the country’s TVET system.
Under the law, TESDA is mandated to: integrate, coordinate and monitor
skills development programs, restructure efforts to promote and develop middle-level manpower, approve skills standards and tests, develop an accreditation system for institutions involved in middle-level manpower development, fund programs and projects for technical education and skills development, and assist trainers training programs.
TESDA is also expected to devolve training functions to local
governments, reform the apprenticeship program, involve industry/employers in skills training, formulate a skills development plan, develop and administer training incentives, organize skills competitions, and manage skills development funds.
In particular, TESDA has the TESDA Occupation Qualification and
Certification System (TOQCS), which is designed to enhance the existing qualification and certification system particularly with regards to expanded clientele and qualification requirements under TESDA. It integrates the formal, non-formal and informal modes under one system, which calls for modularized and competency-based learning such that each level has a set of qualification requirements. The qualification requirements will correspond to competencies stipulated in the existing occupational skills standards for each specific trade (See Figure V.S TOQCS, page 21, in TESDA: Installing a Quality Assured TESD System, June 1998, Appendix 6). This could be a model that the different professions can adopt in their CPE programs.
TESDA also has the Training Contract Scheme (TCS), an industry
capability build-up program (ICBP), wherein subsidies for training in essential training competency areas are given to firms. In 1995, some 48 regional/sectoral ICBPs were implemented, with 6,849 participants trained in various levels of competencies. In 1996, some 42 regional and sectoral training capability programs were approved, with 2,758 participants trained.
While some programs of TESDA were quite successful in improving the
development of technical skills in the country, it has been criticized for its inability to provide skilled workers to industry, and for its failure to attract enrolees in its various programs. Former Labor Secretary Leonardo Quisumbing (1996), for instance, observed that “TESDA failed to turn out enough skilled workers to meet basic demands of booming industries here and abroad.” Consistent with this claim is the decline of enrolment in TVET schools. TESDA figures revealed that total enrolment dipped from 297,146 in SY 1995-1996 to only 253,748 in SY
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1996-1997. Quisumbing (1996) recommended an intensified human resource development program in order to entice job seekers to undergo TESDA training.
There are other initiatives that would fall under the purview of continuing
education in the Philippines, among which are the following: Support for government employees. The Civil Service Commission
(CSC) is currently pursuing various programs to address the need of government employees for continuing education. Its Local Scholarship Program assists government employees pursue masteral and doctoral studies to enhance the capability of government personnel. Other government agencies have also established their own educational support programs to assist employees seeking to complete their bachelor’s degree and those pursuing their masteral or doctoral studies (Conferido, 1998)
Equivalency program. Also worth mentioning is the Expanded Tertiary
Education Equivalency and Accreditation Program (ETEEAP) which opens the doors of formal academic institutions to accreditation of learning obtained outside their own systems. Implemented by CHED and TESDA by virtue of Executive Order 330, ETEEAP is an alternative mode of obtaining post-secondary and higher education credits. Through a compendium of creative competency-based assessment processes, students could gain tertiary education certificates, including a college degree. The equivalency system is based on the assignment of equivalent academic credits to competencies obtained outside the formal school system as demonstrated by knowledge, skills, attitudes and values (Valisno, 1997). The program then gives formal recognition to prior learning and competencies gained by individuals from other channels beyond the classroom. Such formal recognition, in the form of a certificate or diploma, will enable them to pursue higher learning, further career development, and improve their professional qualifications (Conferido, 1998). This program closely establishes the relationship of the higher education system with the labor market in an effort to advance the ability of the Filipino labor force to compete globally.
Under this program, government encourages the participation of learners
who find it difficult to enrol in residency programs of colleges and universities. Individuals with different interests, cultural backgrounds, and value systems participate in ongoing learning programs in their respective companies/milieu, and are later on certified for those relevant aspects of the education in which they participated. Workers in factories, for example, can earn credits for their contributions to innovation and technology development. Women who need to stay at home and care for family members will have a chance to be accredited for knowledge obtained in home management and technology, early childhood or adult care and development, self-development, and other pursuits.
Distance education. Distance education programs use a mode of
instructional delivery that brings down the walls of classrooms to create
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borderless learning environments. This opens opportunities for individuals who want to avail of continuing education, but could not afford to leave their place of work.
Educational technologies offered by computers, video tapes, satellites and various audio-visual equipment form an important aspect of the borderless learning environment, offering innovative, creative and alternative approaches to learning by complementing, supplementing, and strengthening the use of print-based learning materials (CHED, 1997:3-4).
In the area of borderless (open) learning, the country’s most significant accomplishment was the establishment of the UP Open University in February 1995. It was established for the purpose of democratizing access to knowledge through distance education programs aided by strides in information technology. The delivery system at the UPOU does have the essence of a distance learning environment, providing a student support system, which promotes self-study.
Significant progress has been made since its establishment, including: (1) an increase in the number of programs offered from one to ten in the last school year; (2) an increase in enrolment from 181 to 1,395 in the first trimester of SY 1996-1997; (3) an increase in the number of learning centers from 5 to 20. (Quiason and Quiason 1997 in Pablo 1997)
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4. Issues Concerning Continuing Education
Several issues and concerns must be addressed before an attempt to formulate a comprehensive continuing education program for the country. The following issues will be discussed not only in the context of the Philippine educational system, economy and society, but also based on the experiences of other countries, particularly those which have succeeded in certain areas of continuing education.
Level of education / skills of the labor force. The levels of educational
attainment of the Philippine labor force signals the critical need for continuing education among Filipinos, especially in the light of the demands of globalization. In 1997, only 11% of the total employed were tertiary level graduates, while another 11% were tertiary level undergraduates. High school graduates accounted for 20%, while 13% were able to finish only one or two years of high school. The remaining 40% reached only the primary level, and 3% had no schooling at all (Conferido, 1998).
Motivation of employees to avail of continuing education. National
surveys indicate that the majority of adults are not involved in education, primarily because they lack support, interest or motivation (Sargant, 1991). Those that are, and are responding to the opportunities and challenges which lifelong learning presents, still readily come up with lists of financial, situational, institutional and attitudinal barriers to their effective and continuing participation. Individuals would only avail of formal continuing education programs if they perceive the benefits to outweigh the costs in terms of money, time, and effort.
A particular concern would be the ‘learning divide’ at work. In the
workplace, there are individuals who are already well-qualified and who continue to be learners throughout their lives, and there are those who either leave education largely unqualified or who neither engage in learning as adults nor intend to do so in the future. This is what is known as the ‘learning divide.’ According to Conferido (1998), those who have fewer skills and are at the lower ends of hierarchies of authority, autonomy, and pay at work also enjoy fewer formal opportunities for learning through work. The same groups of people who miss out on education in and after school are also likely to miss out on training opportunities at work. The key factors affecting participation of adults are early school leaving, poverty, lack of qualifications or skills, low status, lack of self-esteem and powerlessness.
Limited participation in CPE programs. By comparing the number of
certificates of compliance, exemptions, and undertaking issued in 1998 to the total number of professionals registered in the PRC, the initial conclusion would be that relatively few have actually undergone CPE programs since PRC Resolution No. 381 took effect. In the nursing profession, for example, there are 69,390 delisted nurses (those who have failed to renew their licenses) from the list of registered nurses of the PRC, an indicator that a significant number of
17
nurses failed to comply with the requirements of the law. Possible reasons for the limited participation include the lack of adequate information provided by PRC and of the different professional associations, and the cost involved in undergoing CPE programs. This question of affordability, coupled with the low compliance rate, has, in fact, spawned concerns among certain lawmakers who now question the wisdom of requiring CPE programs for the renewal of professional licenses, given the fact that many people cannot afford to pay for CPE programs.
Relevance of continuing education programs. Many professionals,
particularly those belonging to the professions regulated by the PRC, avail of continuing education through seminars, conferences, and conventions because of government requirements towards the renewal of their license to practice their profession, but relatively few have chosen the path of graduate studies.
The issue raised is whether the continuing education programs availed of
by local professionals have really raised their level of competence and competitiveness. While the variety of continuing education programs approved by the PRC is such that the individual has a lot of choices, oftentimes, the tendency is to accumulate CPE points rather than to enrich knowledge and to upgrade skills. This has led to a reexamination of the relevance and/or quality of certain types of CPE topics covered and the method used in relation to other programs.
Financing. Funding continuing education is a very important issue, and is
probably one of the most critical. Government taxation has proven to be inadequate, even in developed countries, to cover the increasing diversified learning needs within modern societies. This is especially pronounced in developing countries like the Philippines, where government has limited financial resources, and could therefore allocate limited funds for continuing education programs.
To supplement government resources meant for training, employer
contributions have been looked at as additional sources of funding. Whether requiring employer contributions through payroll taxes is viable in the Philippines is a question that needs to be answered given the economic condition of the country. Many companies are likely to be more concerned with immediate business pressures, and are less likely to commit resources for human resource development, particularly during economic crises.
Role of government. The government has already defined the roles of
several agencies (i.e. PRC, CHED, TESDA, DOLE) tasked with implementing or coordinating continuing education programs in the country. It has also set up a mechanism to ensure that professionals under the regulation of the PRC avail of CPE programs. Despite all these, the government has yet to formulate, and agree on, a unifying framework on human resource development, which could
18
serve as basis for future sectoral plans, executive policies, legislation, and other programs and projects (Conferido, 1998).
Among the issues that need to be addressed are the following: Should
government allocate more funds for continuing education? Which sectors should be given priority in terms of government funding for continuing education? Should government pass new laws to promote continuing education, or should it concentrate its efforts on implementing existing laws and on improving the effectiveness of concerned agencies? The presence of a unifying framework would help answer these questions.
Role of the private sector. The role of the private sector in providing
continuing education will become increasingly important because of several reasons. First, employers would be looked upon as a source of funds for human resources development activities because limited government funds would likely result in correspondingly limited budgetary allocations for continuing education programs. Second, employers are the direct and visible beneficiaries of well-trained and highly-skilled human resources.
The question, however, is whether Philippine companies are willing and
able to set aside a portion of their profits for the continuing education of their employees, or whether they have the capability to embark on a sustained training program. The case of Japan, for example, shows that while major companies are able to conduct education independently, many of the medium and small companies do not have the ability to conduct education for their employees by themselves and find it necessary to enlist the support of the public sector (Research Department of Lifelong Learning, 1993).
Role of labor unions. Ma. Teresa Soriano, Officer-in-Charge-Executive
Director of the Institute of Labor Studies of the Department of Labor and Employment (DOLE), revealed that DOLE is encouraging labor unions to include continuing education as a major component of their collective bargaining agreements (CBAs). Soriano said that very few CBAs actually have provisions concerning the education and training of workers because labor unions normally concentrate their efforts towards improvements on wages and fringe benefits.
DOLE is also advocating ‘employment security’ through continuous
training and retraining of workers. As opposed to job security, which means keeping one’s job, employment security means remaining employable and easily getting another job even after losing a job due to retrenchments or downsizing of companies. Most unions find it difficult to accept the concept, choosing to focus on job security. The ‘more progressive’ unions, however, have already accepted employment security, and are, in fact, providing training to their members towards this end.
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A major issue, of course, is whether labor unions are prepared and willing to adopt a paradigm shift with regards to their role given both the positive and negative effects of liberalization and globalization on the labor sector. Are they prepared to cooperate closely with management to ensure that their members remain employable through continuous training and retraining efforts?
Role of higher education institutions. While higher education
institutions (HEIs) in other countries have taken a more active role in the provision of continuing education, HEIs in the Philippines have so far a limited role. Tapping the extensive network of public and private colleges and universities throughout the country could serve to make continuing education more accessible to a greater number of people.
A major issue concerning HEIs is their capability to provide continuing
education to the general public, particularly to adults desiring to avail of it. One concern is the lack of experts who can design the CPE curriculum and prepare modules exclusively meant for CPE. This is a likely result of the weak link of HEIs with industry, which could serve as a source of experts for continuing education. Consequently, the lack of experts means that there is a limited pool of resource persons to conduct training programs.
The situation is rooted to the fact that most colleges and universities in the
Philippines have structures intended mainly to provide initial education, particularly to the 16-20-year old age group. Very few institutions, in fact, have realigned their objectives or have structured themselves to provide continuing education. The large demand for traditional college education in the country is such that HEIs have largely ignored the market consisting of adults willing to avail of continuing education programs.
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5. Recommendations On the assumption that continuing education is an alternative education
strategy for professionals and technical workers to improve their adaptability to the flexible labor market adjustments and to be able to restore and protect their employment prospects as individuals or as a group in the global market, the following suggestions are hereby proposed:
1. Formulation of a Unifying HRD Framework. The government is
currently working on a unifying framework on human resource development. This will enable government to determine priority areas in the implementation of continuing education programs, and to develop plans accordingly. It is also expected to provide a better perspective in dealing with issues on globalization and technological developments as they affect the level of competitiveness of the country’s labor force. It must also address issues concerning employment security, as well as access and equity issues including the upliftment of the conditions of the poor and other disadvantaged groups through education and training.
2. Review of matrix of continuing education. Consider variations in
the Matrix of CPE Programs, Activities and Sources according to the needs and characteristics of the profession, and according to international benchmarking. Give different levels of accreditation to CPE providers, and then allow institutions with higher levels of accreditation to reward correspondingly higher CPE credits. For example, the credit units to be earned in completing the graduate program of the UP College of Nursing should be more than what could be earned in completing an ordinary graduate program with a lower accreditation level. The body granting accreditation should establish standards based on internationally competitive levels.
3. Adoption of graduated / progressive model of CPE programs.
CPE programs should be designed to include several certification levels (e.g. basic, intermediate, advanced, and expert levels) which could be achieved by satisfying certain qualification standards determined by the different professional associations, using international benchmarks. This will make CPE programs more relevant, promote constant improvement in the skills of professionals, and minimize the occurrence of attendance in seminars and conferences for the sake of accumulating credit units.
4. Improve the Monitoring of CPEs. If the CPE will continue to be the
primary responsibility of PRC and CHED, it is imperative that an improved monitoring system be implemented to ensure that the primary objectives of the CPE is achieved, that there is consistency in granting equivalent credit units across professions, and that
21
commercialization of trainings does not occur. This could be done in close coordination with the recognized professional associations.
5. Greater access to education, training, and retraining. As part of
government policy toward technological change, education, training, and retraining must be available to all during any period of significant technological change (Myers, 1980). Given the scarcity of resources, priority should be given to individuals without skills or with lower-level skills to enable them to escape low-pay, poor working conditions, and lack of growth prospects. This can be done through TESDA’s network of TVET schools, and through the formal educational system, whether private or public.
6. Incentives for professionals and technical workers. Encourage
professionals and technical workers to return to formal education and training programs to update or hone their skills. This can be done by firms through incentives such as scholarships, promotion, reduction in the hours of work, time-off to study (study leaves) and opportunities to share their learning to others.
7. Tax incentives to firms. The government can provide tax deduction
as incentive to firms that will actually provide continuing education through training and retraining of their professionals and technical employees.
8. Needs identification and assessment. It is important to identify the
needs of professionals and technical workers based on technological developments, labor market trends, and other economic factors. These will be used as inputs for the types of programs and institutions, which will implement the programs. This needs assessment can be done through regular surveys, interviews, and data of firms on the performance level of their professional and technical employees. Data can also come from professional agencies or organizations on national or local levels.
9. Effective integration of education and employment. Emphasis
should be given by the education provider on the quality of learning, which is basically measured in terms of applying the theories and skills learned in the actual workplace or responding to the needs of the industry. This also necessitates that proper needs assessment of the firms in the industry and the individuals level of competency must be done by the education provider before any curricular or training design will be developed for implementation. This also requires the conduct of training evaluation based on the feedback of the participants and the firms which sent the trainees to determine if there are positive contributions afforded to the companies such as higher productivity.
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10. Active tripartite cooperation. Employers and unions, with the support of government, must work together in the spirit of mutual interest to achieve their respective goals. Labor and management should agree to integrate provisions on continuing education in their collective bargaining agreements to promote greater employment security and labor productivity.
11. Financing schemes. The following options can be considered in
financing continuing education programs: 11.1. Government subsidy – allocation of financial grants directly to
educational institutions and accredited training organizations; the provision of education assistance either through scholarships or loans directly to those disadvantaged groups (the disabled, unemployed, and youth) who had minimal income but are very interested to avail of continuing education programs; and financing government priority training programs for which no industry is responsible, which can be done through TESDA and DOLE.
11.2. Employers support – allocation of budget for training and retooling; allowing employees to go on study leave without losing career opportunities when they come back; giving scholarships or educational loans; allowing employees on a flexitime schedule when they are on training; and requiring employers to contribute a certain percentage of their profits into a fund to finance continuing education of their employees and those who are interested to acquire vocational education and training particularly the unemployed.
11.3. Private sector funding – donations through corporate foundations which can be accredited as CPE providers.
12. Aggressive marketing campaign. Government agencies, such as
TESDA and DOLE, must actively promote their training programs (and their costs) meant for professionals and technical workers. These agencies must coordinate closely with firms, especially small and medium enterprises, which have less resource for continuing education. Their information system must take into consideration the different situations of the various industries where these professionals and technical workers are employed all over the country.
13. Closer Cooperation between academe and other providers of
continuing education. Higher education institutions (HEIs) must streamline and improve their methods and forms of cooperation with different agencies and organizations involved in continuing education. This should include a clear definition of functions, rights and responsibilities, extent of support and incentives, and the development of a mechanism responsible for continuing education inside the
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institution of higher learning, in accordance with the whole system of higher education. A possible cooperative arrangement would be for accredited HEIs to grant a master’s degree to professionals who have accumulated a certain number of credit units from CPE programs leading to a certain specialization.
14. Restructuring of schools and HEIs. Major reforms in higher
education institutions will have to be done to promote continuing education among adults. This will involve the realignment of institutional objectives, as well as changes in the organizational structure, curricula, academic services, faculty hiring policies, faculty development programs, and the budget. Curricula should embrace and reflect social, economic, technological, and cultural issues. Alternative methods of delivery, such as distance learning, must be made considered to provide more education and skills training opportunities for more people.
15. Review of the law and guidelines concerning CPE. Certain sectors
are lobbying for the removal of the CPE requirement from the law even as others caution against such a move. While the intent of E.O. No. 266 is laudable, the experience of the PRC concerning continuing education during the past three years ought to be evaluated to determine whether the intent of the law has been realized.
16. Areas for further research. To gain a deeper understanding of the
phenomenon of continuing education in the country, more in-depth studies could be undertaken in the following areas: (a) the level of education/skills of the local labor force vis-à-vis the emerging demands for levels of education/skills by the globalizing labor markets; (b) the individual and institutional motivations to pursue continuing education; (c) the differing orientations of providers and receivers of continuing education. Further inquiry could also be undertaken on the following: (d) the specific profession and its unique requirements in terms of individual competencies and proficiency levels in each of the competency areas and how these change and are affected by the obtaining developments brought about by globalization; (e) the professional himself or herself and his/he professional practice, and how these practices affect his/her interests and motivations as a practicing professional; and (f) the institution where the professional is allowed to practice his/her profession and the institution’s particular level of competitiveness (Rivera, 1999).
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6. Conclusion Relevance and excellence are the two most over-used words in the jargon
of this globalization era. However, the primary goal of continuing professional/ technical education in the Philippines is to develop meaningful and satisfying learning experiences that produce the desired level of professional proficiency which emphasizes high levels of competence, adeptness, and confident control, based on expertise, skill, and knowledge. A proficient professional or technical worker must, therefore, have the capability and potential power to perform well in a specific situation and to meet the demands or requirements of a situation or work demand in the local or global markets.
This goal can only be achieved if major reforms in the school and
university systems will be done, if all resources both in the public and private sectors will be properly allocated and utilized, if needs assessment of target beneficiaries of these programs will be properly done, and, more importantly, if the government, in close coordination with the private sector, through their association and industry representatives, will have the political will to implement the proposed multi-pronged suggestions to ensure the viability and effectiveness of continuing education programs in the country.
Education and training are very potent tools in the development of the
country’s human resources. Aside from ensuring the employability of Filipino professional and technical workers, continuing education addresses the mismatch between the knowledge and skills of the labor force and the expectations of industry. More importantly, continuing education ultimately leads to the upliftment of the country’s overall quality of life, providing impetus for a sustained effort towards becoming a learning society.
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Bibliography Abrahamsson, K. (1993) Lifelong education in Sweden reconsidered: concepts, organization and current trends, in Atchoarena, D. (ed), Lifelong education in selected industrialized countries, International Institute for Educational Planning / National Institute for Educational Research (Paris: IIEP) Atchoarena, D. (ed) (1993) Lifelong education in selected industrialized countries, International Institute for Educational Planning / National Institute for Educational Research (Paris: IIEP) Brookfield, S. (1993) Lifelong education in the United States in Atchoarena, D. (ed), Lifelong education in selected industrialized countries, International Institute for Educational Planning / National Institute for Educational Research (Paris: IIEP) Caspar, P. (1993) Lifelong education in France, in Atchoarena, D. (ed), Lifelong education in selected industrialized countries, International Institute for Educational Planning / National Institute for Educational Research (Paris: IIEP) Cervero, R.M. (1988) Effective continuing education for professionals. San Francisco: Jossey-Bass. Cervero, R.M. (1989) “Continuing professional education”, in S. Merriam and P. Cunningham (eds.), Handbook of adult and continuing education, San Francisco: Jossey-Bass. Conferido R.D. (1998) Building-blocks towards lifelong learning in the Philippines. Manila: Institute of Labor Studies-Department of Labor and Employment. Duke C. (1976) Australian perspectives on lifelong education (Australian education review; no. 6) (Melbourne, Victoria: ACER) Dumazedier, J. (1972) Continuing education and the educational system in France, in The school and continuing education: Four studies (Paris: UNESCO) Erestain, T. and Concepcion P.G. (1984) ASAIHL Thirteenth General Conference and Seminar on “Lifelong education and the role of ASAIHL” (Manila: UST Press) Kitaev, I.V. (1993) Education in transition: transformation of labour market, attitudes of youth and changes in higher and lifelong education in the former Soviet Union, in Atchoarena, D. (ed), Lifelong education in selected industrialized countries, International Institute for Educational Planning / National Institute for Educational Research (Paris: IIEP)
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Knox, A.B. (ed) (1979) Enhancing proficiencies of continuint educators: New directions for continuing education (San Francisco, Washington, London: Jossey-Bass Inc.) Kunzel, K. (1993) Lifelong education in Germany, in Atchoarena, D. (ed), Lifelong education in selected industrialized countries, International Institute for Educational Planning / National Institute for Educational Research (Paris: IIEP) McKenzie, P. (1983) Recurrent education: Economic and equity issues in Australia (Australian Education Review No. 20) (Hawthorn, Victoria: ACER) OECD/CERI. (1993) The lifelong learner in the 1990s, in Atchoarena, D. (ed), Lifelong education in selected industrialized countries, International Institute for Educational Planning / National Institute for Educational Research (Paris: IIEP) Onushkin, V.G. (1977) The role of universities in post-experience higher education, International Institute for Educational Planning (Paris: Louis-Jean)) Parry, G. (1993) Lifelong education and training in the United Kingdom: policies, patterns and trends, in Atchoarena, D. (ed), Lifelong education in selected industrialized countries, International Institute for Educational Planning / National Institute for Educational Research (Paris: IIEP) Peterson R.E. and Associates (1979) Lifelong learning in America: An overview of current practices, available resources, and future prospects (San Francisco, Washington, London: Jossey-Bass, Inc.) Phillips, L.E. (1987) “Is mandatory continuing education working?”, MOBIUS, 7, 57-64. Raggatt, P. and Unwin, L. (1991) ‘Introduction: A Collection of Pipers’ in P Raggatt and L Unwin (eds) Change and Intervention: Vocational Education and Training (London: Falmer Press). Research Department of Lifelong Learning (NIER). (1993) Lifelong education in Japan in Atchoarena, D. (ed), Lifelong education in selected industrialized countries, International Institute for Educational Planning / National Institute for Educational Research (Paris: IIEP) Richardson, M. (1999) Singapore blazes a trail in retraining workers retraining workers; raising skills to be stressed to fight recession, International Herald Tribune, April 8, 1999, p. 1, 14
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Rivera, C. (1999) Reaction paper presented during the symposium on Continuing Professional / Technical Education in the Philippines, held June 28, 1999 at De La Salle University. Tight, M. (1996) Key concepts in adult education and training (New York: Routledge) Tullao Jr. T. (1998) Ang Continuing Professional Education sa Harap ng Liberalisasyon. Vladislavlev, A.P. (1987) A conceptual framework for the development of lifelong education in the USSR (Belgium: UNESCO)
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Appendix 1
Number of Registrants Per Year Across Professions
Number of Registrants Per Year (1994 to 1998) Profession 1994 1995 1996 1997 1998
TOTAL 63,875 64,971 50,045 48,470 42,781 1,175,386 Source: Professional Regulatory Commission
Prepared by: Linda D. Macorol, OIC, Registration Division
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Appendix 2. Number of accredited CPE providers Regulated profession No. of accredited providers Accountancy 67 Aeronautical engineering 1 Agricultural engineering 13 Architecture 21 Chemical engineering 16 Chemistry 30 Civil engineering 17 Custom broker 17 Criminology 10 Dentistry 121 Electronics and communication engineering 9 (and 50 other multidisciplinary
providers) Electrical engineering
22 (and 4 other multidisciplinary providers)
Environmental planning 5 Foresters 5 Geodetic engineering 8 Geology 4 Interior design 5 Landscape architecture Not available Librarian 30 Marine deck officer 53 Marine engine officer 53 Master plumbing 3 Mechanical engineering 28 Medicine 230 Metallurgical engineering 7 Midwifery 63 Mining engineering 19 Naval architecture and marine engineering 6 Nursing 360 Nutrition and dietetics 26 Optometry 8 Pharmacy 34 Physical therapy / Occupational therapy 52 Professional teachers 116 Medical technology 77 Radiologic and x-ray technology 25 Sanitary engineering 2 Social work 33 Veterinary medicine 15 TOTAL 1611 Source: Aggregated based on the raw data provided by the Continuing Professional Education Office, Professional Regulation Commission (as of April 1999)
31
Appendix 3. Summary of certificates of compliance, exemption, and undertaking issued (January-December 1998)* Regulated profession Compliance Exemption Undertaking Total Accountancy 1,226 371 5,163 6,760 Aeronautical engineering 36 5 37 78 Agricultural engineering 76 6 162 244 Architecture NA NA NA NA Chemical engineering 346 104 722 1,172 Chemistry 127 9 123 259 Civil engineering NA NA NA NA Custom broker 169 12 332 513 Criminology 122 7 480 609 Dentistry 1,217 489 3,640 5,346 Electronics and communication eng’g
570 255 984 1,809
235 161 283 679 550 16 409 975 6 8 0 14
258 810 575 1643 16 72 116 204
Electrical engineering Prof. EE Reg. EE Reg. Master electrician Master electrician Associate EE Assistant EE
311 736 954 2001 Environmental planning 60 13 84 157 Foresters 424 16 300 740 Geodetic engineering NA NA NA NA Geology 66 12 26 104 Interior design NA NA NA NA Landscape architecture NA NA NA NA Librarian 216 8 69 293 Marine deck officer 2,483 5,248 1,005 8,736 Marine engine officer 1,880 6,437 1,339 9,656 Master plumbing 73 27 111 211
Sanitary engineering 67 34 149 250 Social work NA NA NA NA Veterinary medicine 246 179 234 659 TOTAL 43,153 29,278 48,929 121,360 Source: Aggregated based on the raw data provided by the Continuing Professional Education Office, Professional Regulation Commission * Certificates of compliance are issued to those who have earned the required credit units. Registered professionals who have reached the age of 65 years are given permanent exemption, while registered professionals while working or practicing their professions, or furthering their studies abroad are given temporary exemption. Certificates of undertaking are given to those who are in the process of earning their credit units.
2.1 Master’s Degree 1 CU Per Academic Unit 30 CU Additional Upon Completion of Degree
UNIVERSITY CERTIFICATION DIPLOMA & TRANSCRIPT OF RECORDS
2.2 Doctoral Degree 2 CU Per Academic Unit 450 CU Additional Upon Completion of Degree
UNIVERSITY CERTIFICATION DIPLOMA & TRANSCRIPT OF RECORDS
2.3 Residency/ Externship 10 CU Per Year HOSPITAL CERTIFICATION CERTIFICATE OF COMPLETION
2.4 Fellowship 15 CU Per Year CERTIFICATION FROM THE GRANTING INSTITUTION, CERTIFICATE OF FELLOWSHIP
3. SELF-DIRECTED LEARNING PACKAGE
3.1 Module 10 CU Per Complete Set of Module
COPY OF DULY-ACCOMPLISHED MODULE AND EVALUATION
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3.2 Technical Paper/
Professional Journal Article
1 CU/Professional/ Technical Article
COPY OF DULY ACCOMPLISHED ARTICLE AND EVALUATION
4. AUTHORSHIP 4.1 Research/ Innovative
Programs/ Creative Projects
10 Credit Units DULY CERTIFIED/ PUBLISHED ARTICLE AND EVALUATION
4.2 Book/Monograph Single Author
2 Authors 3 or More
[25-50Pp.] [51-100Pp.] [101 or more Pp.] 20 CU 30 CU 40 CU 10 CU 20 CU 30 CU 5 CU 10 CU 20 CU
PUBLISHED BOOK WITH PROOF OF COPYRIGHT
4.3 Editor ½ OF THE CU OF AUTHORSHIP CATEGORY
PUBLISHED BOOK WITH PROOF OF AUTHORSHIP
4.4 Article Single Author 2 Authors 3 or More
[1-3 Pp.] [ 4-6Pp.] [7 or more Pp.] 4 CU 6 CU 8 CU 3 CU 4 CU 6 CU 2 CU 3 CU 4 CU
PROOF OF PUBLICATION OF ARTICLE
4.5 Professional Journal Editor
5 CU Per Issue COPY OF PUBLISHED JOURNAL
4.6 Peer Reviewer 2 CU/Article DULY CERTIFIED COPY OF PUBLISHED ARTICLE/ BOOK
5. INVENTIONS 10-30 Credit Units per Invention
CERTIFIED COPY OF PATENT CERTIFICATE
6. POSTGRADUATE/ IN-SERVICE TRAINING
0.25 CU Per Hour (Maximum of 40 CU/Training)
CERTIFIED OF TRAINING & TRAINING DESCRIPTION
7. STUDY/OBSERVATION TOUR
2 CU/Day (Maximum of 30 CU/Tour?
CERTIFIED FROM SPONSORING INSTITUTION
8. PROFESSIONAL CHAIR 10 CU PER/CHAIR CERTIFIED OF GRANT OR APPOINTMENT PAPER
9. SUCH OTHER ACTIVITIES PRE-APPROVED BY THE COUNCIL WHICH ARE IN COMPLIANCE WITH THE OBJECTIVES AS EMBODIED IN E.O. 266.
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(Don’t include anymore) Definitions 1. Adult education
a. denotes the entire body of organised educational processes, whatever the content, level, and method, whether formal or otherwise, whether they prolong or replace initial education in schools, colleges, and universities, as well as in apprenticeship, whereby persons regarded as adult by the society to which they belong develop their abilities, enrich their knowledge, improve their technical or professional qualifications, or turn them in a new direction and bring about changes in their attitudes and behaviour in the two-fold perspective of full personal development and participation in balanced and independent social, economic and cultural development (UNESCO, as quoted in Kidd and Titmus 1989, p. xxvii).
b. refers to any learning activity or programme deliberately designed by a providing agent to satisfy any learning need or interest that may be experienced at any stage in his or her life by a person who is over the statutory school leaving age and whose principal activity is no longer in education. Its ambit, thus, spans non-vocational, vocational, general, formal and non-formal studies as well as education with a collective social purpose. (OECD 1977, p. 11)
2. Continuing education 3. Lifelong education – the function of education as being: the preparation of
individuals for the management of their adult lives, the distribution of education throughout individual lifespans, the educative function of the whole of one’s life experience, and the identification of education with the whole of life (Bagnall 1990, p. 1)
4. Higher education a. refers to education oriented toward academic degrees or broad
occupational certificates. It takes place on college or university campuses or through campus-substitute institutions, such as the ‘open university’ with its ‘external degrees’. (Carnegie Commission on Higher Education 1973, p.3)
b. taken generally to refer to advanced courses provided mainly though not exclusively by the universities, polytechnics, colleges or institutes of higher education. (Squires 1987, p. 128)
c. essentially a matter of the development of the mind of the individual student. It is not just any kind of development that the idea points to. An educational process cam be termed higher education when the student is carried on to levels of reasoning which make possible critical reflection on his or her experiences, whether consisting of propositional knowledge or of knowledge through action. These levels of reasoning and reflection are ‘higher’, because they enable the student to take a view (from above, as it were) of what has been learned. Simply, ‘higher education’ resides in the higher-order states of mind. (Barnett 1990, p. 202)
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5. Further education – refers to education oriented toward more specific occupational or life skills, rather than academic degrees. It takes place in many noncampus environments—industry, trade unions, the military, proprietary vocational schools, among others. (Carnegie Commission on Higher Education 1973, p.3)
6. Recurrent education was sponsored as a concept in the 1970s by the OECD (Center for Educational Research and Innovation 1973, 1975). Lifelong education appears to express a general ideal, which may then be interpreted in varied fashions. Recurrent education, on the other hand, suggests an alternating pattern for practice, which some have seen as a means for implementing lifelong education: The essence of the recurrent education proposition...is the distribution of education over the lifespan of the individual in a recurring way. This means a break with the present practice of a long, uninterrupted pre-work period of full-time schooling, which has been described as a ‘front-end’ model. It also implies the alternation of education with other activities, of which the principal would be work, but which might also include leisure and retirement. One of its essential potential outcomes is to make it possible for the individual to abandon the unalterable education-work-leisure-retirement sequence and to enable him [sic] to mix and alternate these activities within the limits of what is socially possible and in accordance with his own desires and aspirations (Council of Europe 1973, p. 7) On of the early members of the Association for Recurrent Education (recently renamed the Association for Lifelong Learning!) identified twelve ‘features which might be deemed essential for a recurrent education system’ (Houghton 1974, p. 7). These were ordered under the headings of availability, access and relevance. His analysis, which has been labelled ‘radical’ by some commentators (jarvis 1995; Lawson 1977), argued for the greatest possible choice, variety and flexibility. It also stressed the aim of producing autonomous learners or groups of learners. The concept of recurrent education has been used as the basis for a range of both empirical studies (e.g. Jourdan 1981; Tuijnman 1989) and theoretical analyses (e.g. Rubenson 1977, 1987). It has also, in contrast to lifelong education, been the focus for much discussion regarding how such a system might be financed (e.g. Levin and Schutze 1983). This is perhaps not surprising, given the implications embedded within the concept for employment policy. Much practical attention has thus been given to the introduction and evaluation of different schemes of paid education leave, which enable those in employment to have time off for studying (Bengtsson 1989). With such a focus, the concept has obvious links with that of the learning organization. (Malcolm Tight, 1996 in Key Concepts in Adult Education and Training, p. 39) For recurrent education and training to be widely perceived as relevant by young people would depend upon at least three basic conditions being met.
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First, there would have to be employment opportunities readily available for those who complete compulsory schools and who do not wish immediately to pursue further education and training. Second, career ladders and training opportunities would have to be provided in conjunction with such jobs. Third, participation in, and completion of, education and training programmes at a later point would have to provide occupational advancement and income commensurate with degrees or professional qualifications acquired in the traditional fashion, i.e. prior to entry to the labour force. These conditions are still far from being met. (Schutze and Istance 1987, pp. 18-19 in Malcolm Tight 1996, Key Concepts in Adult Education and Training, p. 39-40). The problems seem obvious: many economies remain in recession, many employers can see little advantage in enabling their employees to engage in more general education or training, many states have moved away from the interventionist policies which characterised the 1960s and 1970s. Few individuals are in the position to be able to afford the risk of engaging in a personal recurrent education strategy, while the benefits to them of doing so remain unproven. (Malcolm Tight 1996, Key Concepts in Adult Education and Training, p. 40)
7. Learning society – one in which all citizens acquire a high quality general education, appropriate vocational training and a job (or series of jobs) worthy of a human being while continuing to participate in education and training throughout their lives. A learning society would combine excellence with equity and would equip all its citizens with the knowledge, understanding and skills to ensure national economic prosperity and much more besides.... Citizens of a learning society would, by means of their continuing education and training, be able to engage in critical dialogue and action to improve the quality of live for the whole community and to ensure social integration as well as economic success. (ESRC 1994, p.2).
This definition suggests the potentially all-encompassing nature of the learning society, which spans both vocational concerns (the link between education and economy) and quality of life issues (the link between education and personal and social development). Others might, of course, define the learning society rather more narrowly, focusing on just one of these poles of interest. As defined her, the concept clearly builds upon the notions of lifelong learning and the learning organization, and makes use of the ideas of productivity and change.
Seen as a set of practices, at least three interpretations have been placed on the concept of a learning society: (1) the learning society as an educated society, committed to active citizenship, liberal democracy and equal opportunities; (2) The learning society as a learning market, enabling institutions to provide services for individuals as a condition for supporting the competitiveness of the economy; (3) the learning society as learning networks, in which learners adopt a learning approach to life, drawing up on
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a wide range of resources to enable them to develop their interests and identities (Edwards 1995, p. 187).
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Hereunder are specific recommendations to improve continuing education in the country: A. Re-examination of CPE programs
1. Revision of CPE program matrix. This is needed to make the CPE program more responsive to international competition. Using international standards as a benchmark, emphasis should be given to research, publication in professional journals, and enrolment in graduate programs.
2. Limited credit for attendance in seminars. 3. Higher credit for earning a graduate degree.
B. Financing of continuing education 4. Government funding for continuing education ! Training of government employees
5. Corporate funding for continuing education ! Payroll tax for all companies with 10 workers or more. Companies can
avoid paying the tax if they provide training for their workers. (French model, as required 1971 Act providing for vocational training within the framework of lifelong education)
D. Increased role of higher education institutions
11. Accreditation of training institutions. 12. Constant revision of curricula. This must be done, in close consultation
with industry, to make education more relevant to the needs of industry, and to make graduate education the preferred mode of training of industry for their employees
13. Formulation of ad hoc training programs for companies, and their integration into broader consultancy services
14. Introduction of a multidisciplinary approach 15. Establishment of evaluation procedures (increasing involvement in
company training requires the preparation of new instruments to monitor training and assess its impact)
16. Individualization of training programs, the modularization of curricula and the use of distance teaching to facilitate the access of adults to higher education
D. Close coordination among government agencies
17. Accreditation of training institutions.
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E. Close coordination among government, industry, and academe 18. Closer linkage between training institutions and industry 19. Decentralization of continuing education. 20. Incentives for employers. 21. Training agreements with employers’ federations. 22. Legislation extending the mission of tertiary education institutions to
include adult education and inviting them to establish ad hoc delivery and administrative structures (French model)
Within this new framework, continuing education was no longer planned at
the central level but took place as a result of discussions between employers and workers at the company level. Each company become responsible for the preparation of its own training plan, resulting in a greater sense of democracy within companies.
In Europe, EuroPACE (European Programme for Advanced Continuing Education) represented an innovative effort to exploit the benefits of satellite broadcasting systems to promote company training. Bringing together universities and companies all over Europe, this network provided high-level continuing education programs for engineers. Cost-awareness and the search for more cost-effectiveness are key factors in the introduction of such technologies into learning systems.
Significantly, it was the Department of Employment, through the Manpower Services Commission (MSC), and not the Department of Education and Science and the schools which was given the leading role in devising and implementing a strategy for vocational preparation and youth training. The perceived failures of the school system to equip many young people with the basic skills of literacy and numeracy and positive attitudes to work and further learning argued against an extension of the period of compulsory schooling (Raggatt and Unwin, 1991).
In the United Kingdom, the emphasis on skills development and employment-related education—styled the ‘new vocationalism’—has been developed and delivered by two separate government departments. The Department of Employment has the overall responsibility for vocational education and training, while the Department of Education and Science has the responsibility for academic and general education in schools, further education and higher education (Parry, 1993).
Educational efforts of French companies, however, are extremely differentiated: 1.3 to 1.5 per cent of the total wage bill of some industries (building, civil and agricultural engineering, wood, furniture, leather, food, wholesale trade, textile and clothing) but up to 8 per cent and above of others
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(energy and high-tech industries) is spent on education and training (Caspar, 1993).
Employment security. Job security is increasingly tied to retraining, or continual learning. While learning new skills is not a guarantee of continued employment, it becomes necessary in order for continued employment to be a viable option. Job security implies the ability to retain one’s current job; employment security implies that an employee may remain at the same company, but retraining and movement into a different job may be necessary. The difference between job security and employment security can also be understood in the context of the psychological contract. This term refers to the implicit understanding between the company and the individual about what each can expect of the other. In the past, especially in large organizations, the unstated psychological contract was that one could count on having a job as long as one showed up for work, performed satisfactorily, and did not do anything dishonest. The new psychological contract that has evolved in American companies in recent years is one in which the employee, in return for giving top performance, can expect continued opportunities for challenge, growth, and development. Offering retraining, instead of laying workers off, is an investment in the future, both for the company and for the workers. Advantages to the employee include enhanced probability of continued employment with the same employer or, if this is not possible over the long term, a better chance of finding suitable employment elsewhere with a new skills repertoire. Advantages to the company include lower hiring costs and the possibility of keeping employees who have proven track records and strong dedication to the company.
The Work in America Institute (1987) articulates how training and retraining benefit both employer and employees, as shown in the following conclusions:
! A stable, motivated, well-trained work force is critical to the long-term prosperity of an enterprise.
! Long-term prosperity enables the enterprise to fulfill its commitment to employment security.
! Employment security motivates employees to identify with the goals of the enterprise and to learn continuously.
! Continuous learning appeals to one of the most powerful drives among employees: the desire for self-development, growth, and career advancement.
! Continuous learning is feasible, because employees have unexplored capacities for education, and educated employees are capable of a surprising amount of adaptation to the changing needs of the enterprise.
Thus, continuous learning, in its connection with employment security, binds individual and corporate goals into a strong, resilient web.
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Are companies willing to give their employees time off from work to pursue graduate studies or other training programs? Doesn’t this eat up on their margins?
Corporate-sponsored training has shifted from preparing entry-level workers to ensuring that all employees have the skills they need to maintain the company’s competitiveness. Thus, investment in employees’ education becomes a strategic tool (Mandel, 1987; Work in America Institute, 1985 in Retraining Midcareer Workers for the Future Workplace by Manuel London and Emily Bassman, p. 348). Corporations are also recognizing that management training must extent beyond a select high-potential group to all managers, enhancing their abilities and their preparedness for change, uncertainty, and risk. The problems seem obvious: many economies remain in recession, many employers can see little advantage in enabling their employees to engage in more general education or training, many states have moved away from the interventionist policies which characterized the 1960s and 1970s. Few individuals are in the position to be able to afford the risk of engaging in a personal recurrent education strategy, while the benefits to them of doing so remain unproven (Malcolm Tight 1996, Key Concepts in Adult Education and Training, p.40).
How about relaxing the requirements for government employees to serve a certain number of years in exchange for scholarships offered by the agency? What will be role of government? Provide financing? Upgrade requirements for the renewal of licenses? Facilitate tripartite cooperation among government, industry, and schools? Provide training programs for those currently unemployed, as in other countries? Open up industries to liberalization? Identify key government agencies to spearhead the promotion of CP/TE-CHED, TESDA, DOLE, PRC, and coordinate efforts towards the goals to avoid fragmentation of efforts? Provide incentives for companies and schools providing continuing education? Or leave the private sector alone? The example of France shows how government intervention has helped companies realize the importance of continuing education/HRD in improving their own competitiveness as reflected in the spending patterns of companies for training. How about local governments? Shouldn’t there be decentralization as in the experience of the USA and France?
[Include comments of key respondents, namely Dr. Nadurata for PICPA, Dr. Oreta for PSME, regarding: (1) the most common type of CPE program in their profession, (2) the effectiveness of CPE programs in their respective fields, and (3) the areas of improvement they could suggest. Also include inputs of the following: CPE director of PRC, Deputy Secretary General of TESDA, Catalino Rivera of CHED, DOLE-ILS representative, regarding: (1) the role of their respective agencies in continuing education, (2) the assessment of continuing education in RP in terms of extent and effectiveness, (3) the issues concerning continuing education in RP, (4) suggestions to improve continuing education in RP.]
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She suggests that CPE programs be designed in such a way that takers would progress from one particular level to another based on a set of qualification standards determined by the nursing board. The nurses would then earn either a diploma or a master’s degree after accumulating equivalent units. This could, therefore, serve as a motivation for nurses to avail of CPE programs.
