Ines Funk, Birte Nienaber, H. Peter Dörrenbächer
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Ines Funk, Birte Nienaber, H. Peter Dörrenbächer: Cross-border vocational training as processes of cross-border learning
Cross-border vocational training as processes of cross-border
learning
Ines Funk, Birte Nienaber, H. Peter Dörrenbächer
Abstract Zusammenfassung
In recent years cross-border vocational educational training Grenzüberschreitende Berufsausbildung als ein
(VET) in cross-border regions has gained more and more im- Prozess des grenzüberschreitenden Lernens
portance. The overall research question is how regional learn- In den letzten Jahren hat die grenzüberschreitende Berufsaus-
ing processes are shaped by bilateral cross-border formal learn- bildung zunehmend an Bedeutung gewonnen. Die übergeordne-
ing agreements in a border region. Therefore, we build our own te Forschungsfrage beschäftigt sich damit, wie regionale Lern-
model of regional learning in border regions on Wellbrock et prozesse in einer Grenzregion durch bilaterale grenzüberschrei-
al. (2012) following an integrated conceptual perspective and fo- tende formale Bildungsabkommen entwickeln. Dafür wurde ein
cusing on the actor’s perspective. The development of this trans- Modell regionalen Lernens in Grenzregionen basierend auf dem
boundary VET by a variety of actors can be considered to form Modell von Wellbrock et al. (2012) entwickelt, das sich auf eine
an intra- und interregional learning process. The interpretation ganzheitliche Begrifflichkeit stützt und die Akteursperspektive
of the structures regarding the conceptual findings reveals that in den Fokus stellt. Die Entwicklung der grenzüberschreitenden
the learning processes in the Saarland-Lorraine border region beruflichen Ausbildung unter Beteiligung verschiedener Akteure
are dynamic and depend on key actors with expert knowledge kann als intra- und interregionaler Lernprozess verstanden wer-
as well as advantageous regional characteristics. den, der zu einer „grenzüberschreitenden Lernregion“ führt. Die
Analyse der untersuchten Strukturen unter Berücksichtigung der
Cross-border; VET vocational and educational training; France; Ger- konzeptionellen Annahmen zeigt, dass die Lernprozesse in der
many; qualitative interviews saarländisch-lothringischen Grenzregion dynamisch sind und
von Schlüsselpersonen mit Expertenwissen abhängen, genauso
wie von vorteilhaften regionalen Gegebenheiten.
Grenzüberschreitend; Berufsausbildung; Frankreich; Deutschland;
qualitative Interviews
17Europa Regional 26, 2018 (2021) | 4
Introduction regions and how it needs to be adapt- (1) as a theoretical-structural
In June 2018, the four-year experimen- ed to the characteristics of border re- perspective in which learning re-
tation period for integrated cross-border gions. At an empirical level, this paper gions are the result of global de-
vocational training in the Saarland-Lor- explores the strengths and weaknesses velopments (cf. above all; Flori-
raine1 border region ended. German and of the existing forms of cross-border vo- da 1995),
French politicians underlined the inno- cational training and of the cross-border (2) as the relationship between
vative character of the project and their networks which are the results of the business, innovation and geograph-
will to develop it further in the future learning processes. The overall research ical proximity at the heart of the
(Région Grand Est 2018; Staatskanzlei question is thus how regional learning learning region, and
2018). This example shows that in recent processes are shaped by bilateral cross- (3) as a theoretically-led concept of
years cross-border vocational education- border formal learning agreements in a regional development.
al training (abbreviated below as VET) border region.
in the Saarland-Lorraine border region In the first part, concepts of region- Both authors question, however, wheth-
as well as in other cross-border regions al learning are discussed regarding the er the concept is still tenable. They state
has gained more and more importance analysis of the development of cross-bor- that it is not regions but players that
(cf. Dörrenbächer 2018). The main rea- der vocational training. After a short de- learn, and that the concept is norma-
sons for this are on the one hand social scriptive overview of the development of tive, vague and cannot be clearly dis-
(especially demographic) and econom- cross-border vocational training in the tinguished from others. Moreover, lo-
ic disparities between the subregions of Saarland-Lorraine border region, ap- cal developments are increasingly over-
the cross-border cooperation areas, but proaches of cross-border VET as a re- shadowed and controlled by global
on the other hand also the increasing sig- gional learning process are analysed and developments. Rutten and Boekema
nificance of education and knowledge in reconstructed. (2013) also doubt whether both region-
the knowledge and information society. al learning and “learning regions“ are
The approaches of cross-border VET de- An integrated perspective of re- learning regional at all. Furthermore,
veloped in the Saarland-Lorraine border gional learning in cross-border the unit “region” is not uniform, which
region as well as the Rahmenvereinba- contexts makes comparisons more difficult. They
rung für die Kooperation in der grenzüber- For this article, the term regional learn- also underline the normative nature of
schreitenden beruflichen Aus- und Weiter- ing and the related concepts – unless the approach. The two authors also ques-
bildung Saarland-Lothringen (hereinaf- learning region is used in articles quoted tion how learning can be connected with
ter referred to as Rahmenvereinbarung) – is preferred, as the actor’s perspective space at all, and to what extent social
concluded in 2014 (RVSL 2014) – in- thus comes more to the fore whereas the contexts, processes and dynamics influ-
cluding the agreement based on Abkom- notion of learning Region has been crit- ence learning (cf. also Rutten a. Boeke-
men über grenzüberschreitende Berufs icized by various scholars (Cooke 2007, ma 2012). Clear delineations cannot be
ausbildung Saarland-Lothringen (here- Hassink 2007) because of its fuzziness discerned.
inafter referred to as Abkommen über and normative character. Apart from that, A good starting point for research on
grenzüberschreitende Berufsausbildung) its connotation is essentialist. Although, cross-border vocational training seems
(AGBSL 2014) – can be understood as a it has been increasingly used in academ- to be the linking of the learning concepts
tool for inter- and intraregional learning ia since the 1990s in the context of re- of Rutten and Boekema (2013) and of
processes. gional capacity building – especially in Adger et al. (2005). The former under-
The aim of this paper is to compre- form of knowledge transfer from science stand learning “as the process that re-
hend what kind of learning processes to the industry (e.g. Florida 1995; Stor- sults in innovations such as new prod-
led to the existing forms of cross-bor- per 2007). ucts and services.” (Rutten a. Boekema
der vocational training in the Saarland- Studies of this kind mostly focus on 2013, p. 722), while Adger et al. (2005,
Lorraine border region and what role industry and sector-oriented approach- p. 1038) emphasise the collective di-
regional conditions and regional actors es in urban, economically prosperous mension of learning by understanding it
play. At a conceptual level, the following and innovative contexts (e.g. Asheim as “the diversity of adaptations, and the
article analyses which approach of re- 2007; Storper 2007). Hassink (2005) promotion of strong local social cohesion
gional learning could be used for recon- however tries to break down wheth- and mechanisms for collective action.”
structing learning processes in border er structurally weak regions can also In addition to the more economic or
use the concept to leave negative tradi- economic-geographical studies on re-
tional path dependencies. Hassink and gional learning, there are also studies
1 Since 2016, Lorraine has been part of the newly esta-
blished Région Grand Est that comprises the former Klaerding (2012) sum up the different that look into governance structures
regions Lorraine, Alsace and Champagne-Ardenne.
research concepts in three categories: apart from science and industry/econ-
18Ines Funk, Birte Nienaber, H. Peter Dörrenbächer: Cross-border vocational training as processes of cross-border learning
omy (e.g. Etzkowitz a. Leydesdorff
Regional learning in rural areas
2000; Wellbrock et al. 2012; Well-
brock et al. 2013b) and that raise the
question of to what extent and in what
rural
form regional learning can be support- region
ed, and how this can be made usable (e.g.
Wellbrock et al. 2013a). Cultural as-
pects are also taken into account in the grassroots
development
concepts of regional learning. initiatives
region
“By stressing the cultural perspective, b c
learning in space is strongly related
to the underlying attitudes, norms
learning
and values about learning. Moreover, rural
the often territorially bounded, lo- region
cal and regional, understanding of facilitating
cultural influences […] should give supporting agents and
policies agencies
way to a relational view of learning knowledge
public support
processes in space […]” (Hassink administration structure
a. Klaerding 2012, p. 1062). This a
approach can be essential for the
cross-border perspective chosen in
this article. IfL 2021
Authors: I. Funk, B. Nienaber, H. P. Dörrenbächer
Source: WELLBROCK et al. (2012, p.10) Graphic: A. Kurth
Wellbrock et al. (2012) have combined
two different concepts to respond more Fig. 1: Regional learning in rural areas
strongly to the needs of regional learn-
L:\20_Reihen\ER\_ER18\ER4_2018\Nienaber
ing in the context of rural areas, and to arranged and how and by whom it is tional frameworks in the cross-bor-
expand the concept of regional learn- mediated, thus how interfaces are op-
Nienaber_1.ai
der region, which differ on either side
ing both theoretically and empirically. erating“ (Wellbrock et al. 2012, p. 7).
Redak.: ofDu
the border; these form the (national)
Through this extension, they also tried to bearb.: arena
AK for 29.6.2020
regional learning from the re-
korr.: Du 6.4.21 (Autorenkorrektur)
respond to existing criticism of the con- The integrated model of regional learning spective national “facilitating agents and
cept of learning region/regional learning. should help to identify, analyse, evaluate, agencies” (as part of the “knowledge sup-
In the sense of a stronger focus on ac- redesign and establish new connections port structure“) and the supporting pol-
tors and on the consideration of the re- between policies, initiatives and struc- icies (as part of the “public administra-
lationship between institutional, politi- tures (cf. Wellbrock et al. 2012; Well- tion”) in connection with the respective
cal, social, economic context and regional brock et al. 2013a; Wellbrock a. Roep (non-cross-border sub-) region. Here, the
development initiatives, the considera- 2014). The model assumes that there can national border also initially appears to
tion of the synthetic concept of regional be several types of governance for a suc- be an educational border. Only by em-
learning developed by Wellbrock et al. cessful “place-based” implementation bedding both national into cross-border
(2012), using the example of rural areas, of the model, which, however, strongly settings with cross-border institutions
seems to be interesting (cf. Fig. 1). The depend on the respective political, eco- and the supporting policies, it becomes
model which was created by integrating nomic and demographic contexts and a a cross-border arena of regional learn-
the “triple helix thesis” of Etzkowitz and “shared sense of place” (Wellbrock et al. ing (with “grassroots initiatives”) (ibid.).
Leydesdorff (2000) with the concept 2013b, p. 428). Based on this integrated This will be analysed in more detail be-
of the “learning region“ of Rutten and model of regional learning, which was de- low using the Saarland-Lorraine border
Boekema (2007) veloped for rural areas, the question now region as an example.
arises as to what special features cross-
“… does not focus on what learning border regions have and how this model Development of the cross-border
and innovation is supported or what can be applied to border regions. vocational training in the Saar-
type of support is given. Instead it To this end, we have developed the land-Lorraine border region
focuses on how support for region- model of Wellbrock et al. (2012) fur- Saarland and Lorraine are both charac-
al learning and innovation is actually ther (cf. Fig. 2): first, there are the na- terised by a stagnation or even decrease
19Europa Regional 26, 2018 (2021) | 4
nels) with the exception of short compa-
Regional learning in border regions
ny internship periods, Germany applies
the so-called dual VET system. Practi-
country B
cal training in Germany is performed
on the company shop floor whereas the
facilitating theoretical training is conducted at vo-
supporting agents and
policies agencies cational schools. The French equivalent,
Formation professionnelle en alternance,
consisting of alternating training at a vo-
cational school called Centre de formation
des apprentis (CFA) and in a company is
not very widespread. Most young people
regional actors prefer the three-year Baccalauréat pro-
fessionnel that can be attained at a Lycée
professionnel.
Short-term internships
This is why most of the hitherto existing
supporting facilitating cooperations are not regular basic and/
policies agents and
agencies or integrated VET programmes which
lead to a national, let alone a joint bi-na-
tional qualification, but to short-term of-
country A
fers – mostly company internships in the
IfL 2021 neigbouring country. The most important
Source: Own, further development according Authors: I. Funk, B. Nienaber, H. P. Dörrenbächer
to WELLBROCK et al. (2012, p.10) Graphic: A. Kurth actor in this field of cross-border work
placements is FagA (Fachstelle für grenz
Fig. 2: Regional learning in border regions überschreitende Ausbildung (Specialised
body for cross-border training)). This in-
L:\20_Reihen\ER\_ER18\ER4_2018\Nienaber
in their populations, as well as ageing gion (Wirtschafts- und Sozialausschuss stitution, which is supported, among oth-
of their populations. This demograph-
Nienaber_2.ai
der Großregion, WSAGR), the Interregion- ers, by the Saarland Chamber of Industry
ic change has a high impact on compa-
Redak.: alDu
Labour Market Observatory (Interre- and Commerce and the Saarland Metal
bearb.:
nies in their efforts to find and recruit AK 29.6.2020
gionale Arbeitsmarktbeobachtungsstelle) and Electrical Industry Association, ar-
qualified employees. While the unem-
korr.: AK 29.6.2020
(IBA/OIE 2014) lists – without claiming ranges internship work placements of
Du 6.4.21 (Autorenkorr)
ployment rate for young people aged un- completeness for the Greater Region2 – several weeks for Saarland and Lorraine
der 25 was only 10.1 % in Saarland in over 50 different measures and projects vocational students in companies in the
2016, it was 25.5 % in Lorraine. More- of cross-border collaboration in the field neighbouring country.
over, the employment rate for all peo- of vocational training, well over half of With the project PontSaarLor (Robi-
ple aged between 15 and 64 is higher in them concern the Saarland-Lorraine bor- chon a. Schwarz 2011), implemented
Saarland (68.5 % in 2015) than in Lor- der region. within the framework of the JOB-START-
raine (62.0 %) (Statistische Ämter der ER Programm of the Federal Ministry of
Grossregion 2018; cf. Belkacem et al. Different VET approaches in Germany Training and Research (BMBF) and the
2018). and France European Social Fund (ESF) and with the
In view of long-term intensive eco- Cross-border VET between France and FagA, more than 200 French and some
nomic interrelations (cf. Dörrenbächer Germany is difficult because of the fact German interns have been placed be-
2015; Belkacem et al. 2018), it is not sur- that both countries practice different ap- tween 2013 and 2017 (VAUS 2012).
prising that there have been a large num- proaches of VET which are hardly com-
ber of very different types of cross-bor- patible. Whereas VET in France is more Agreements on integrated cross-
der cooperations in the field of vocational academic as it is performed completely border VET
training in the Saarland-Lorraine border at vocational schools (lycées profession- Important experience was gained with
region. Thus, in its Report on the eco- the implementation of two agreements
nomic and social situation of the Great- 2 The Greater Region is a cross-border region. It com- between Saarland and Lorraine; the
prises the two German federal states of Saarland and
er Region 2013/2014 to the Economic Rhineland-Palatinate, the French subregion Lorraine, Framework Agreement on VET (Rahmen-
the state of Luxembourg, Wallonia and the German
and Social Committee of the Greater Re- and French-speaking communities of Belgium. vereinbarung) (RVSL 2014) and the
20Ines Funk, Birte Nienaber, H. Peter Dörrenbächer: Cross-border vocational training as processes of cross-border learning
Agreement on VET (Abkommen über already well advanced negotiations of the ditions for this are fulfilled. A total of 15
grenzüberschreitende Berufsausbildung) Framework Agreement on VET in the Up- recognised apprenticeship trades can be
(AGBSL 2014). Both contractual docu- per Rhine region (Rahmenvereinbarung learned across borders (IBA/OIE 2014).
ments signed in 2014 were milestones über die grenzüberschreitende Berufsaus- Both agreements enable an integrat-
for the development of cross-border VET, bildung am Oberrhein) (RVOR 2013), con- ed dual cross-border apprenticeship and
not only in the Saarland-Lorraine bor- ducted by the French state, the German provide legal certainty. This is particu-
der region, but also in the entire Great- federal states of Baden-Württemberg and larly important for those companies in
er Region. It is not possible to define one Rhineland-Palatinate as well as the Ger- Saarland which, due to their high pro-
single reason that leaded to the negotia- man and French actors involved in VET portion of French customers, have a
tion of the Rahmenvereinbarung; it was in the Upper Rhine region on the initia- great interest in recruiting French em-
a coincidence of several developments. tive of the Upper Rhine Conference. This ployees and in retaining them through
The Saarland-Lorraine cooperation was agreement, based on many years of ex- their VET in the company.
prompted by the 50th anniversary of the perience of cross-border collaboration in
Elysée Treaty in 2013, the Year of France the field of VET in this region and signed Examples of integrated cross-border
and the so-called Frankreich-Strategie on 12th September 2013, was the blue- VET
(Strategy France) initiated by the Saar- print for the framework agreement ne- Immediately after the two documents
land government. The objective of this gotiated between Saarland and the Lor- had been signed, two Saarland compa-
strategy is to strengthen the special re- raine region. nies (operators of DIY stores and hy-
lationships between the Saarland and The subtitle “Strategische Ziele” (stra- permarkets, together with the school
France and bilingualism among the Saa- tegic objectives) of the framework agree- Lycée professionnel Henri-Nominé in
rland population within one generation. ment makes it clear that this document is Sarreguemines (Lorraine), set up an
The chambers were also interested in a flexible framework offering conditions alternating school and company train-
the institutionalisation of transborder for creative and varied ways of cooper- ing course (“formation en alternance“),
VET, as they were looking for ways to ation. That is what the contracting par- which is completed with the French pro-
deal with high youth unemployment on ties agreed on, that “it will be possible fessional certificate BTS-NRC (Brevet de
the one side of the border and impend- to develop a whole set of creative mod- technicien supérieur – Négociation et re-
ing shortages of apprentices on the oth- els. Therefore, the partners agree on the lation client). The trainees have a train-
er side (Dorka a. Frisch 2016). The first objective to implement a large number ing contract with the German compa-
school and training under these condi- of cooperations.” (RVSL 2014, p. 4). The nies and complete their practical train-
tions started in 2014/2015 (RVSL 2014). Rahmenvereinbarung is intended to cre- ing there. The theoretical training and
The agreement was intended to give ate an experimental field – one could also the final examination take place in a sep-
young Germans and French people the call it a learning field – in which differ- arate BTS en alternance project class at
opportunity to complete the practical ent ways of cross-border cooperation in the CFA (Centre de formation d’apprentis
part of their training on the basis of a VET and further education are developed. (vocational school)) in Sarreguemines. If
training contract in a company in the The Abkommen über grenzüberschrei they have the appropriate language skills,
neighbouring country (ibid.). A key ob- tende Berufsausbildung (AGBSL 2014) they can also take the German Chamber
jective was to make a contribution to which regulates the operational imple- of Industry and Commerce qualification
dovetailing the different training sys- mentation of the framework agreement, as an option after the two-year training.
tems, whereby the principle of dual VET allows young people from Lorraine and Since the 2015/2016 school year, the
practised in Germany played a special Saarland to conclude a training con- tyre manufacturer Michelin has been run-
role, by giving trainees the opportunity tract with a company in the neighbour- ning a similar programme for its industri-
to complete theoretical training in their ing country and to complete the practi- al training at the company’s production
home country and practical (in-compa- cal part of the training there. Theoretical site in Homburg (Saarland). Two train-
ny) training in the neighbouring country. knowledge is acquired at the vocation- ees attend the vocational school in Sar-
This was intended to tackle both the pre- al school in their home country. At the reguemines (Lorraine) and do the man-
vious incompatibility of the German and end of the training, the young people datory work placement at Michelin in or-
French training systems and the prob- then take the final examination and ob- der to obtain a French qualification as an
lem of the language skills of the trainees, tain their vocational qualification in electrician. The Chamber of Industry and
which were usually insufficient for com- their home country in which they have Commerce and the corresponding French
pleting theoretical training in the neigh- completed vocational school. In addi- offices compare the syllabus with the
bouring country. tion, they have the opportunity to take training course for an energy electron-
Particularly important for the cre- the final examination in the respective ics technician. The three-year training in
ation of the Rahmenvereinbarung were partner country, provided that the con- France is followed by a six-month work
21Europa Regional 26, 2018 (2021) | 4 placement, with the possibility of taking Other agreements in the Greater place in the development and implemen- the practical examination for the German Region tation of tangible cross-border training training occupation (Nagel 2015). In ad- It can be assumed that the experiences courses in the Saarland-Lorraine border dition, Michelin in Homburg has signed gained in the Upper Rhine region and the region. The model adapted to border re- an agreement with the CFAI (Centre de Saarland-Lorraine border region have gions, following Wellbrock et al. (2012), formation d’apprentis de l’industrie (vo- been incorporated into the framework is suitable for investigating these learn- cational school of the industry)) in Yutz agreement for the Greater Region signed ing processes. (Lorraine) for other apprenticeships. on 5th November 2014. This is a frame- Experience has shown that the long work for corresponding agreements be- Regional Learning using the distance between the company’s loca- tween other subregions of the Greater example of cross-border vocatio- tion and the vocational school is a great Region. nal training in the Saarland-Lor- burden for the trainees. Therefore, when Following this framework agreement raine border area starting a new project class in the field of for the Greater Region (RVGR 2014) and Methodology electrical engineering in 2018, the aim the Saarland-Lorraine framework agree- In the following, these processes and was to find a school near the border (in- ment, Lorraine and the Grand Duchy of their results will be analysed on the ba- terview with Arbeitsagentur/Regionaldi- Luxembourg declared their intention to sis of 20 interviews (cited below as inter- rektion 2018). “experiment in learning in the field of vo- views 1 to 20). They have been conduct- In contrast to these two models, in cational training” (authors’ translation) ed in 2015 with trainees and members of which employment is handled accord- in May 2015 (Conseil Régional Lor- the public administration, the chambers ing to German law in Germany and (the- raine 2015, slide 1). An agreement was and advisory and placement institutions, oretical) training according to French law signed in October 2017 (Grossregion as well as with business representatives (in France), the car manufacturer Smart 2018). For their part, the Lorraine region and educational providers. The chosen in Hambach (Lorraine) trains a trainee and the federal state of Rhineland-Palati- interview partners have been found by under German law. nate carried out an assessment to formu- contacting the main actors of cross-bor- In the training year 2015, a total of 12 late common targets for an Accord-cad- der VET and their networks. They rep- trainees took up a cross-border forma- re project between the two regions. An resent all forms of cross-border train- tion en alternance on the basis of both exchange of experience is currently tak- ing existing in the region, ranging from contractual documents (Dorka a. Frisch ing place with the Walloon region in con- short work placements to three-year dual 2016). The number of these formation en nection with negotiations to be prepared training courses, and discussed the de- alternance contracts, which combine VET on an agreement to be defined (Conseil velopment, documentation and exchange at school and on the shopfloor, fell to six Régional Lorraine 2015; ibid.). On 29th of knowledge in relation to cross-border in the year 2016. In 2017, ten trainees in February 2016, the German Community training. Thereby, an inventory of all ex- seven professions started a cross-border of Belgium, the Federal State of Rhine- isting forms has been taken. apprenticeship. For 2018, the numbers land-Palatinate as well as important ac- Due to the explorative character of the are comparable and new companies de- tors in vocational training in both re- study and the small number of cases, a cided to offer a cross-border formation en gions finally concluded an agreement to qualitative methodology was the most alternance. The numbers show a strong implement the Accord-cadre on cross- adequate research design. The chosen imbalance: in total, only four Germans border VET in the Greater Region (VDG- problem-oriented interviews (Witzel made use of the possibility of a cross-bor- BRLP 2016). In 2018, the Federal State and Reiter 2012) were based on flexi- der apprenticeship in a company in Lor- of Rhineland-Palatinate and the Grand ble, strictly qualitative interview guide- raine, and all the others were French. In Duchy of Luxembourg replaced their lines including the following topics: indi- the period 2014–2018, the dropout rate agreement of 2016 and opened it up to vidual involvement of the interview part- was not higher than for other forms of more professions (Grossregion 2018). ner in cross-border VET and strategies to apprenticeships. Since 2017, the number This brief overview of the develop- deal with the regional conditions; posi- of professions chosen for cross-border ment of cross-border vocational train- tive and negative effects of cross-border training strongly increased (interview ing should have made clear that this is VET; evaluation of cross-border VET on with Arbeitsagentur/Regionaldirektion an inter- and intraregional learning and an individual and general level. 2018). adaptation process of cross-border coop- In 2018, a second research phase was As all partners came to a positive con- eration. Apart from the learning process carried out to evaluate in-depth the de- clusion at the end of the experimenta- controlled by the public administration velopments since 2015. It included only tion period, the agreements were trans- during the development of the Accord- the new form of apprenticeships accord- formed into permanent contracts in cadre, individual, collective and cross- ing to the Accord-cadre and consisted in June 2018. border learning processes take and took analysing the reports on the progress of 22
Ines Funk, Birte Nienaber, H. Peter Dörrenbächer: Cross-border vocational training as processes of cross-border learning
cross-border vocational training (cf. Dor-
Saarland-Lorraine border region
ka a. Frisch 2016; Grossregion 2018) Regional actors in the field of cross-border
and the statements of the partners at vocational training
the end of the experimentation period
Saarland
(cf. Région Grand-Est 2018; Staats
kanzlei 2018). Additionally, an in-depth supporting facilitating
policies agents and
interview with one of the cross-border agencies
Framework agreement
career officers and a responsible repre- Hambacher Erklärung Arbeitskreis
New Élysée Treaty Wirtschaft, ALWIS
sentative of the Regionaldirektion Saar- financial support
land/Rheinland-Pfalz of the German Fed-
eral Employment Agency (cited as inter-
view Arbeitsagentur/Regionaldirektion) regional actors
has been conducted. This step focused on chambers (IHK, HWK)
companies
how knowledge about cross-border VET institutions providing VET
has been generated since 2015. apprentices
advisory and
employment services
For the analysis and following the steps
proposed by Witzel and Reiter (2012),
the evaluation of the interviews was pre- supporting facilitating
policies agents and
pared by transcribing the interviews, Framework agreement agencies
coding them in MaxQDA, and writing in- Hambacher Erklärung ?
New Élysée Treaty
dividual case analyses.The subsequent financial support
comparative horizontal evaluation of the
Lorraine
interviews is based on the four-stage ap-
proach proposed by Wellbrock et al. IfL 2021
Authors: I. Funk, B. Nienaber, H. P. Dörrenbächer
(2012, p. 8): (1) Identification of “sup- Source: Own presentation based on WELLBROCK et al. (2012, p.10) Graphic: A. Kurth
porting policies” of the public adminis-
tration, regional actors and “knowledge Fig. 3: Regional actors in the field of cross-border vocational training in the Saarland-Lor-
raine border region
support structures”, (2) identification L:\20_Reihen\ER\_ER18\ER4_2018\Nienaber
and analysis of existing connections be-
tween the actors, (3) evaluation of ex- Regional actors
Nienaber_3.ai
advisory and placement institutions (in-
isting structures and connections, (4) On both sides of the border, many Redak.:
‘re- Du
terview 11, 12). Through regular cross-
search for causes of the strengths and bearb.:
gional’ actors are involved in cross-bor- AK 29.6.2020
border meetings, the border between
korr.: AK 29.6.2020
weaknesses of existing structures and der training (cf. Fig. 3). First of all, the nationally-oriented administration and
Du 6.4.21 (Autorenkorr)
connections, as well as drawing up sug- chambers have to be mentioned (In- governance structures is overcome and
gestions for improvement. For step (1) dustrie- und Handelskammer (IHK), cross-border learning processes are
and (2), it was checked which organisa- Handwerks- und Landwirtschaftskam- made possible. Since 2017, the IHK has
tions and actors named in the case ana mer on the Saarland side, the Chambre employed a mobility advisor for cross-
lyses correspond to the institutions in- de Métiers et de l‘artisanat, the Cham- border apprenticeships to foster this
troduced in figure 2. Step (3) consisted bre de Commerce et de l’Industrie, the Di- form of training.
in a SWOT analysis basing on the case rection régionale de l‘alimentation, de Among companies, in 2015 a dis-
l‘agriculture et de la forêt on the French
studies. In step (4) the reality of cross- tinction could be made between pio-
border VET has been compared with the side), which were largely involved in the neers that experiment with new types
aims fixed in the agreements and our elaboration of the Rahmenvereinbarung of cross-border training and are known
model of regional learning introduced and which are points of contact for ques- for it across borders, and companies that
in figure 2. tions about the organisation of cross- first wait to adopt proven concepts. The
border training and vocational qualifi- extent to which companies are involved
Results cations. Cross-border training contracts in cross-border processes of knowledge
This section summarises the evalua- are deposited with the IHK in accord- transfer depends on available human re-
tion steps (1) and (2) and describes the ance with the Rahmenvereinbarung. The sources, cross-border contacts and lan-
structures and processes of learning chambers on both sides of the border guage skills. The in-house learning pro-
about cross-border vocational training constantly exchange information on va- cesses are based on experience of differ-
in the two regions involved. cancies and applicants, and also with the ent types of cross-border training, e.g.
23Europa Regional 26, 2018 (2021) | 4
work placements or normal training of the trainees, learning processes regard- operate with the career officers in Saar-
French trainees in the German system. ing the course and conditions of cross- brücken.
With each trainee or intern, cross-border border training as well as cultural differ-
training becomes less “exotic” because ences imply the greatest effort (interview Supporting policies
strategies for dealing with problems 2, 4, 7). The poor French or German skills The regional actors benefit from the “sup-
are already known. Possible solutions of the young people in the border region porting policies” of the European Union,
are also worked out through exchange are therefore an important limiting fac- the nation states and the regions for
with other companies (interview 1, 2, 9). tor for cross-border dual apprenticeships. cross-border training projects (cf. Fig.
The decision against cross-border train- Knowledge about cross-border train- 3). Many of the projects have been fund-
ing or to discontinue such training can ing is difficult to access for pupils and ed by the European Union, e.g. the Fach
also be understood as a learning pro- trainees. Exploring information is often stelle für grenzüberschreitende Ausbil-
cess. In return, we were able to observe only possible through personal initiative, dung (FagA) or language training courses
in 2018 that more and more companies, private contacts with actors in the neigh- for some apprentices (interview Arbeits
and even small companies, were offer- bouring country and very good language agentur/Regionaldirektion). The na-
ing cross-border apprenticeships. These skills, with which boundaries between tional foreign and education ministries
companies were monitoring the first ex- national educational and advisory sys- make the cross-border training possible
amples of cross-border apprenticeships tems can be overcome. The experiences by shaping the legal framework, such
on the basis of the existing agreements, of other young people and their implic- as the German Vocational Training Act,
and now hope to benefit from this form it knowledge are an important factor in which allows trainees to spend a part of
of training to meet their specific needs, deciding on cross-border training. Events the dual vocational training abroad (BBiG
such as the support of French customers like the ceremony for the first apprentic- 2005). At the regional level, in the Saar-
(CFACI 2018/Interview Arbeitsagentur/ es to finish cross-border dual training are land Ministry for Economic Affairs, Em-
Regionaldirektion). a possibility to show interested pupils ployment, Energy and Transport as well
that this form of apprenticeship succeeds as the Ministry of Finance and Europe
For vocational schools and other edu- (Staatskanzlei des Saarlandes 2018). and in the Conseil Régional in Lorraine,
cational providers, cross-border work political interest is more strongly linked
placements and exchange programmes In both regions there are public institu- to tangible problematic situations and
are particularly suitable. The necessary tions for careers advice and training as objectives and to specific regional frame-
knowledge and cross-border contacts can well as for job placement which also deal work conditions. Activities involve the
usually be built up by highly motivated with cross-border topics. In Saarland completion of the Rahmenvereinbarung
teachers with appropriate language skills. there are the Regionaldirektion Saarland/ and support for projects on cross-border
The permit of French trainees in accord- Rheinland-Pfalz of the Federal Employ- VET. The reasons for the activities have
ance with the Rahmenvereinbarung is not ment Agency and the local employment been mentioned above. Since 2017, the
necessarily associated with additional ex- offices. Due to the decreasing number of Conseil Régional has borne the full costs
penditure for Saarland schools, or is not applicants for apprenticeships in Saar- of the taxe d’apprentissage for cross-bor-
perceived as cross-border training since land, the topic of cross-border VET has der apprenticeships to support compa-
the trainees do not benefit from any spe- gained in importance there and found its nies in Saarland (MFE 2017). This sym-
cial treatment (interview 4, 6). On the way into existing structures, e.g. through bolic act shows the political support of
French side, the CFA Henri-Nominé in Sar- the employment of a coordinator for in- the region Grand Est for cross-border
reguemines, situated less than 500 me- ternational affairs at the management of- VET.3
tres from the German border, has gained fice of the Regionaldirektion Saarland/ “Facilitating agents and agencies” (cf.
a lot of experience by hosting several Rheinland-Pfalz of the Federal Employ- Fig. 3) such as the Arbeitskreis Wirtschaft
project classes. At the same time, new ment Agency (interview 10, 12). On the and the association ArbeitsLeben
CFAs such as in Forbach are involved Lorraine side, Pôle Emploi and the Cen- Wirtschaft Schule could only be identi-
because of the rising number of profes- tres d‘information et d’orientation (CIO) fied in Saarland. They are not directly in-
sions (Levillain 2017). The apprentic- provide advice, while schools also play volved in cross-border training, but they
es hope to have better career opportuni- a major role in career orientation. Since disseminate information and contribute
ties if they choose cross-border training. 2017, the développeurs d’apprentissage
It is remarkable that most of the first ap- have provided support to young peo-
prentices have strong relationships to the ple in the region Grand Est who are in- 3 After the finalization of this article, the situation
neighbouring region and have excellent terested in dual vocational training. The changed due to a reform of vocational training in
France. The regions are no longer responsable for
skills in the language of the neighbour- développeurs are aware of the possibility cross-border apprenticeships and stopped bearing
the costs. As a result, the number of new contracts
ing country. For these pioneers among of cross-border apprenticeships and co- for cross-border apprenticeships collapsed in 2020.
24Ines Funk, Birte Nienaber, H. Peter Dörrenbächer: Cross-border vocational training as processes of cross-border learning
to intraregional and cross-border net-
Saarland-Lorraine border region
working (interview 1, 9). Cross-border VET
To conclude, the activities of the re-
nge
gional actors in the field of cross-border excha inf
al orm
vocational training heavily depend on rm al
fo ex
individual people who are willing and c
Saarland
ha
able to overcome administrative, lan-
ng
guage and cultural borders. These key
e
actors have obtained expert knowledge
and are important drivers of the learn-
ing processes.
Cross-border Actors
Cross-border Cross-border
Cross-border actors and policies supporting facilitating agents
In the Saarland-Lorraine border region, policies and agencies
VET agreement GR, IBA*, TaskForce*,
besides the actors and supporting poli- Interreg V, GR Eures-T, DFS, other
cies with original regional or national ob- border regions
jectives and additionally operating in the
field of cross-border vocational training,
actors and policies with an explicit cross-
border focus can be found. The organisa-
Lorraine
e
tional structure and the field of activity of pr
g
ra
oj e
these actors can be defined as cross-bor- ec cov
ts
dia
der (cf. Fig. 4). An example is the afore- me
mentioned Fachstelle für grenzüberschrei- * Interregional Labour Market Observatory
tende Ausbildung (FagA) and the Lorraine (Interregionale Arbeitsmarktbeobachtungsstelle),
Taskforce Grenzgänger IfL 2021
Authors: I. Funk, B. Nienaber, H. P. Dörrenbächer
Formation SaarLor FSL. Since 2017, the Source: Own presentation based on WELLBROCK et al. (2012, p.10) Graphic: A. Kurth
cross-border character of the FagA has
been strengthened by transformation Fig. 4: The cross-border VET in the Saarland-Lorraine region
into an Interreg V A Greater Region pro- L:\20_Reihen\ER\_ER18\ER4_2018\Nienaber
ject with several French partners (VAUS ber still seems to be very low – but this Nienaber_4.ai
cal data and analyses of the labour mar-
2013; Saarland 2013; MWAEV 2017). perception changes when one bears in kets in the Greater Region. The Task Force
The expert knowledge acquired in nu- mind the great effort necessary forRedak.:
estab- Du
Grenzgänger supported the development
bearb.: AK 29.6.2020
merous projects is valuable beyond work lishing a single apprenticeship. korr.: ofAKthe Accord-cadre
29.6.2020 with legal expertise
placements due to common ground with These actors establish important DuTask6.4.21
(cf. (Autorenkorrektur)
Force 2012) (interview 17). The
other forms of cross-border training (in- connections between the two regions, Eures Greater Region network advises em-
terview 16). In 2017, two specialised ca- through which knowledge can be dis- ployers and employees on questions re-
reer officers dedicated to the cross-bor- seminated. garding the cross-border labour market.
der “formation en alternance” have been The Deutsch-Französische Sekretariat für
employed at the local employment office The main cross-border-oriented “support- den Austausch in der beruflichen Bildung
in Saarbrücken. Despite their location in ing policies” (cf. Fig. 4) are provided by the (German French Secretariat for VET ex-
the Saarland, they are jointly funded by Greater Region, especially the aforemen- change) (DFS) in Saarbrücken, although
the region Grand Est and the Agentur für tioned framework agreement for cross- not active in the border region, has valu-
Arbeit in Saarbrücken, and their work is border vocational training for the Greater able experience of cross-border exchange
characterised by an explicitly cross-bor- Region and the INTERREG V A Greater Re- during training. Interregional contacts and
der task: they support young people and gion programme identified. Although not knowledge transfers from other border
companies interested in a cross-border directly involved in the cross-border voca- regions have a considerable influence on
apprenticeship based on the Rahmen- tional training, the following institutions, the (inter-)regional learning processes.
vereinbarung on both sides of the bor- “facilitating agents and agencies” provide The contacts in the Upper Rhine Region
der (interview Arbeitsagentur/Regional- significant knowledge for the implemen- come about through the participation of
direktion 2018). The stabilisation of the tation of cross-border vocational educa- Saarland and Lorraine actors in supra-
numbers of contracts and the expansion tional training. regional professional events such as the
to new professions in the last two years The Interregional Labour Market Ob- Deutsch-französischen Dialog on “Cross-
is the result of their work. The total num- servatory (IBA) makes available statisti- border vocational training and mobility in
25Europa Regional 26, 2018 (2021) | 4 the labour market in the German-French greatest gain in knowledge for the actors portant for joint learning processes, be- border regions” in 2015. There are still derives from the joint concrete implemen- cause they transfer results of individual connections through institutions that are tation of cross-border training. Since ac- learning processes to other actors. The responsible for the two border regions, tors from both regions are involved, learn- various existing forms of exchange are of- such as the Regionaldirektion Rheinland- ing processes are transboundary. These ten a result of long-standing cross-border Pfalz-Saarland of the Federal Employment are learning-by-doing processes that are contacts and the trust developed through Agency. The advances in knowledge in the constantly given new impetus by special them. It becomes evident that learning Upper Rhine region has accelerated learn- cases that arise. about cross-border training is not a com- ing processes in the Saarland-Lorraine Experts with comprehensive implicit pleted process but constantly develops border region. At the same time, the ac- knowledge are key actors for the cross- through learning-by-doing. The pioneers tors in Saarland and Lorraine are aware border transfer of knowledge. These in- find out what is possible and what works of the fact that regional framework condi- clude employees of the chambers, the Bun- and set an example for other interest- tions and interests of the actors may dif- desagentur für Arbeit and the Fachstelle. ed companies and apprentices. Solutions fer and that their own individual solutions In order to ensure that tacit knowledge for several practical problems have been must therefore be developed and that spe- is not lost, it is increasingly codified in in- found. With the Accord-cadre, a complex cific learning processes take place in each ternal manuals and databases (interview and comprehensive framework was cre- border region. 10, 12, 16). The documents also simplify ated that will not replace existing forms The aforementioned actors come to- cross-border cooperation between the ac- of cross-border education that meet the gether in different formats in the cross- tors by defining standardised procedures. needs and resources of the actors. Low- border region (cf. Fig. 4), which contribute The cross-border aspect of the learn- threshold forms such as work placements to the spreading of knowledge. A distinc- ing processes imposes special require- can make it easier for those actors who, tion can be made between formal non- ments on the people involved. In addition despite their interest, refrain from cross- public bodies bringing together experts, to dealing with practical problems aris- border training according to the Accord- such as the monitoring committee for the ing from differences in training and leg- cadre because of legal and practical prob- Rahmenvereinbarung, and public events, islation, intercultural learning processes lems, in order to get started. It is there- such as the Interregionale Jobmesse (In- and special competences are necessary fore necessary to maintain the diversity terregional Job Fair) which has been or- as well. These include for example knowl- of cross-border training. ganised annually by the employment of- edge of the fact that the dual vocational The existing pool of experience in the fice in Saarbrücken since 2010. The fair training in France and Germany has a dif- border region and the tacit knowledge of supports cross-border exchange by means ferent meaning and therefore does not the experts are important resources for of reports of experiences and contribu- receive the same appreciation. This also the learning processes, which are also tions from acknowledged experts. It is a includes the discussion of interests and enriched by cross-border experiences door-opener for interested young peo- fears of those involved. It becomes clear in other areas. Key players, who are an- ple and employers. Joint projects in the that many structures are nationally ori- chored in several networks and across field of VET, such as the PontSaarLor, pro- ented and that flows of information are borders, are important initiators of learn- mote cross-border connections and help held up at the border. The cross-border ing processes. Further impetus comes to build trust. Informal contacts are based diffusion of knowledge is more strongly from the differences between Saarland on personal acquaintance and are closely linked to individuals than to public sup- and Lorraine and from encounters be- linked to concrete problems and individ- port structures, or structures become tween actors who did not know each oth- ual needs in cross-border education. Al- cross-border through individuals. How- er before. Interregional knowledge trans- though media coverage is not a form of ever, the newly established explicit cross- fer from other border regions also sup- direct contact, in some cases it has an in- border actors improve the situation. ports the processes. termediary function, e.g. by pointing out At the same time, the described advan- existing opportunities to companies. Evaluation of existing networks and tages of the networks in the border region These different ways of crossing the learning processes entail risks. Knowledge that is personal- border have different, complementary In steps (3) and (4) of the horizontal ised and not documented can only be ac- functions. The contacts allow collective evaluation (cf. Methodology), strengths cessed with difficulty by many actors. The regional and cross-border learning pro- and weaknesses of existing structures cross-border opening up and spreading cesses. The impetus for these arises from and processes are analysed to show po- of knowledge require knowledge of the chronologically shifted individual learn- tentials for improvement. The spatial neighbouring language and the differenc- ing processes, when e.g. pioneering com- proximity and the limited number of ac- es between the educational and adminis- panies and pioneers among the trainees tors in the border region promote infor- trative systems. Without them, sustaina- pass on their experiences to others. The mal contacts which have proven to be im- ble, systematic and cross-border diffusion 26
Ines Funk, Birte Nienaber, H. Peter Dörrenbächer: Cross-border vocational training as processes of cross-border learning
of knowledge does not always succeed. manent agreement. This means that the like the coexistence of regional and cross-
Establishing posts for two specialised ca- cross-border VET in the Saarland-Lor- border actors. Though, some questions
reer officers was therefore an important raine border region is still based on two like the influence of contacts to other bor-
decision for improving the programme. pillars: integrated cross-border appren- der regions or the development from re-
Today they are an essential node in the ticeships and cross-border internships. gional actors to cross-border actors need
network. The fact that many structures The preceding explanations make clear to be discussed once more. Analysing oth-
and activities becoming manifest in pro- that the approaches to cross-border VET er learning processes in other border re-
jects are limited in time exacerbates this developed recently in the Saarland-Lor- gions would help to still better adapt the
problematic situation. Intercultural mis- raine border area are learning process- model to the complexity and dynamics of
understandings, prejudice and the pur- es themselves. These affect different so- cross-border cooperation.
suit of one’s own interests make cooper- cial, temporal and spatial levels. They
ation more difficult. Therefore, the aim are not only inter- but also intraregion- References
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to make existing tacit knowledge acces- experience have been generated in oth- schreitende Berufsausbildung Saar-
sible and to preserve the diversity of the er regions, such as the Upper Rhine re- land- Lothringen gemäß Artikel 5 der
forms of exchange. gion, that then have been adopted inter- Rahmenvereinbarung für die Koope-
All three components – supporting pol- regionally. At the same time they have ration in der grenzüberschreitenden
icies, the facilitating agents and agencies, been adapted intraregionally to the spe- beruflichen Aus- und Weiterbildung /
as well as the regional actors which have cific conditions of the Saarland-Lorraine Accord relatif à l’apprentissage trans-
been mentioned in the model – contri border area. From the Saarland or Lor- frontalier Sarre-Lorraine of 20 June
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ment of “cross-border regional learning”. processes in the Saarland-Lorraine bor- files/live/sites/www/files/contribut-
A joint assessment of the cross-border ed- der area are nevertheless interregional ed/documents/PSPV/convention%20
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subregions of the border area would be pect of these learning processes, one has (23/03/2016).
an important framework condition for to distinguish their diachronic and syn- Adger, W.N., T.P. Hughes, C. Folke, S.R.
the extension of the cross-border educa- chronous dimensions. On the one hand, Carpenter and J. Rockstroem (2005):
tion. This requires further learning pro- they are embedded in long-term process- Social-Ecological Resilience to Coast-
cesses on both sides of the border in or- es such as European integration or the al Disasters. In: Science, (309)5737,
der to reduce fears and to develop com- German-French friendship; on the oth- pp. 1036–1039 (DOI: 10.1126/sci-
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and the promotion of exchange. volved in VET. The comparison of the situ- as ‘learning regions’: A condition for
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Conclusion These learning processes thus take place ma (eds.): The Learning Region: Foun-
The development of the cross-border at different social scale levels and can be dations, State of the Art, Future. Chel-
VET in the Saarland-Lorraine border re- considered as the manifestations of struc- tenham, p. 71–100.
gion is characterised by a slow increase turation processes that combine the spa- BBiG – Berufsbildungsgesetz of 23 March
in the number of contracts based on the tial, temporal and social macro and mi- 2005. In: Bundesgesetzblatt, 931. URL:
Rahmenvereinbarung and the Abkommen cro levels. Finally, they are contingent, i.e. https://www.gesetze-im-internet.de/
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the necessary support to conclude a sin- Therefore there is a need for more Belkacem, R., H.P. Dörrenbächer and
gle apprenticeship contract are still tre- research on the future development of I. Pigeron (2018): Beschäftigung
mendous. Between 2015 and 2018, the cross-border VET. Beyond that, more in- und wirtschaftliche Entwicklung in
cooperation structures have been consol- terviews on the French side would be es- der Großregion: Differenzierte Wirt-
idated and the number of involved actors sential if the cross-border VET also devel- schaftsentwicklung und Wirkungen der
has increased. Despite still existing prac- ops further on the French side. The actor- grenzüberschreitenden Beschäftigung/
tical problems and large-scale challeng- centred model of Wellbrock et al. was Emploi et développement économique
es such as unsatisfactory language skills, helpful to reveal that the regional learn- au sein de la Grande Région: dévelop-
the Abkommen über grenzüberschreiten- ing processes higly depend on individuals. pement économique différencié et im-
de Berufsausbildung Saarland-Lothrin- The adapted models allowed to involve pacts de l’emploi transfrontalier. (= Uni-
gen has been transformed into a per- the special characteristics border regions GR-CBS Working Paper, Vol. 3 (Territo-
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