FROM CONCEPTS TO

IMPLEMENTATION
A HANDBOOK FOR
NATIONAL QUALIFICATIONS
FRAMEWORKS DEVELOPERS
(with special reference to India)

Edited by Jean Marc Castejon

This Handbook has been produced with the

assistance of the European Union
Edited by Jean Marc Castejon

Freely based on the Capacity Building Training Programme held in Delhi from February
to May 2015, delivered by John Hart, Belinda Smith, Paul Farelly, Isabel Sutcliffe, Karen
Adams, Alexander Siboni, Vishishta Sam, Shawn Runacres, Jean Marc Castejon and invited
Speakers, for key Indian stakeholders in the area of skills development

This Handbook has been produced with the

assistance of the European Union
 This report is printed on CyclusPrint based on 100% recycled fibres

“This Handbook has been produced with the assistance of the European Union. The contents of
this Handbook are the sole responsibility of Mott MacDonald and can in no way be taken to reflect
the views of the European Union.”
Acknowledgment

The capacity building programme, and therefore this Handbook, would not have been possible
without an active support from Anupama Tripathi and her Colleagues from the National Skills
Development Agency and from Pankaj Johri, Akanksha Saluja and Laveesh Sharma from the
India-EU Skills Development Project.

iii
Preface

It is our pleasure to launch this Handbook on National Qualifications Frameworks as one of the
outcomes of the India EU Skills Development project, whose team of experts have been co-
operating closely with the National Skill Development Agency since June 2014. We believe the
Handbook will contribute to better understanding of the National Skill Qualification Framework
and how it needs to be developed with a view to international experience with NQFs across the
globe. This experience from many other countries must not be copied, but learned from, so that
the NSQF becomes a modern and practical tool fully embedded in the Indian skill development
eco-system. Building that is the country’s priority for its economic and social growth and a huge
responsibility for NSDA as the apex body. The Handbook you are opening is not a step by step
manual to follow, but a collection of reflective chapters on different aspects of qualifications
frameworks and their functions within the systems of education and training. The authors and
editors of the Handbook are international experts in the field who all had the opportunity to work
with the NSQF stakeholders in India. They facilitated the training workshops in the NSDA on
which the Handbook is based and got extensive feedback from rich discussions with the Indian
participants during those twelve one-day modules. That helped to take account of Indian reali-
ties in summarizing the rich material from the training into this Handbook. We would like to thank
the leading author and modular programme designer Jean Marc Castejon, NQF expert in the EU
project, as well as the other experts and training participants who contributed to the Handbook.
We wish you an inspiring reading.

JYOTSNA SITLING VACLAV KLENHA

Director General NSDA and Joint Secretary Team Leader

of the Ministry of Skill Development and of the India EU Skill Development Project
Entrepreneurship

v
Table of Contents
PREFACE iii
INTRODUCTION 1

MODULE 1: UNDERSTANDING QUALIFICATIONS FRAMEWORKS 3

1 What are National Qualifications Frameworks? 4
2 Main Purposes for Recent Qualification Reforms 5
3 Types of Qualifications Frameworks 6
4 Convergence and National Adjustment 9
5. Skype Session: The Development of Qualifications: Theory and Practice (Arjen Deij) 11

MODULE 2: LEARNING OUTCOMES AND LEVEL DESCRIPTORS 17

1. Learning Outcomes 18
2 Identifying Levels and Domains of Learning 20
3. How Levels can be Explained 22
4. Skype Session: The Writing of Learning Outcomes Jens Bjornavold (CEDEFOP)* 25

MODULE 3: GOVERNANCE OF NATIONAL QUALIFICATIONS FRAMEWORK 27

1. Implementation of National Qualifications Framework and models of governance 28
2. Changing Institutional Arrangements 30
3. Skype Session: On the French Register of Qualifications (Brigitte Bouquet) 33

MODULE 4: THE EUROPEAN QUALIFICATIONS FRAMEWORK 37

1. The Trends Towards Regional Frameworks 38
2. European Qualification Framework: Overview 38
3. EQF Referencing Criteria and Procedures for Referencing National Qualifications Levels to the EQF 41
4. Irish Referencing Report 43
5. Building on the Referencing Process 44
6. Skype Session: The European Qualifications Framework Experience (Aileen Ponton) 45

MODULE 5: NATIONAL QUALIFICATIONS FRAMEWORK AND CREDIT SYSTEMS 49

1. Credit Systems 50
2. The European Credit System for Vocational Education and Training ECVET 52
3. Skype Session: Developing a Policy on Credit Systems (James Keevy) 55

vii
MODULE 6: UNDERSTANDING QUALITY ASSURANCE 59
1. Approach 60
2. What is Quality Assurance? 60
3. The Quality Cycle and the Components of the Quality Assurance Framework 63
4. Key Requirements of TVET QA Systems 64
5. Quality Assurance in the Indian Context 66
6. Skype Session: The Success Story of the Dual System (Helena Sebag) 67

MODULE 7: QUALITY ASSURANCE OF ASSESSMENT CERTIFICATION 69

1. Relation Between Quality Assurance and Certification 70
2. Assessment Unpacked 73
3. Current Practice and Proposed Actions in India 76
4. Regulation of Qualifications in the UK: A Briefing Note 76
5. Skype Session: The Role of OfQUAL (Julie Swan) 78

MODULE 8: QUALITY ASSURANCE OF QUALIFICATIONS 81

1. The Idea of Standard 82
2. Quality Assurance of Qualifications 83
3. Registers of Qualifications 86
4. Skype Session: Compares QA Systems between Scotland, England and Germany (Mike Cole) 88

MODULE 9: QUALITY ASSURANCE FOR TRAINERS AND TEACHERS 91

1. Trainers as Stakeholders 92
2. Teachers as Professionals 95
3. Community of Practice 96

MODULE 10: QUALITY ASSURANCE OF TRAINING PROVIDERS 99

1. Registering Training Providers (TP) 100
2. Self Assessment: Key component of a Quality Management System to determine achievement of
objectives on effectiveness/efficiency 103
3. Audits 103
4. Skype Session: The VET Regulatory Journey in Australia (Stephen Auburn) 104

MODULE 11: RECOGNITION OF PRIOR LEARNING 109

1. Key Concepts 110
2. Recognition of Prior Learning & Education 110
3. Guidelines 111

MODULE 12: PILOT PROJECT IN RECOGNITION OF PRIOR LEARNING FOR DOMESTIC WORKERS 123
1. Summary & Observations on the Recognition of Prior Learning – Pilot for Domestic Workers 124
2. Key Challenges 126

ACRONYMS 131

FROM CONCEPTS TO IMPLEMENTATION

viii A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
List of Figures

Figure 1: Features of qualifications frameworks 10

Figure 2: Qualifications take their roots in the labour market 13

Figure 3: Qualification types reflect the level of responsibility in the Labour Market (LM) 14

Figure 4: Professional standards are translated into educational standards 14

Figure 5: Educational standards are reflected in curricula 15

Figure 6: Qualifications take their roots in the labour market 20

Figure 7: Writing learning outcomes – the essential role of action verbs 26

Figure 8: Composition of CNCP 33

Figure 9: The Registration of qualifications 35

Figure 10: Tools supporting the ET 20120 strategy 39

Figure 11: EQF as reference system 42

Figure 12: Requirements for credit rating 52

Figure 14: Allocating ECVET points 53

Figure 13: ECVET Model 53

Figure 15: Translation of credit system between countries. 54

Figure 16: A question of balance 55

Figure 17: Layer of Consultation 55

Figure 18: Core principles 56

Figure 19: Features of a Quality Framework 61

Figure 20: The quality cycle 64

Figure 21: Stages in assessment (the assessment life cycle) 74

Figure 22: The general conditions of recognition 78

Figure 23: The qualification file (draft) 86

Figure 24: Audit of Training Providers 103

Figure 25: The national Regulatory journey so far 107

Figure 26: Recognition model for RPL within the NSQF concept 110

Figure 27: RPL Practitioners 113

Figure 28: RPL Advisory process 115

Figure 29: RPL Assessment process 117

Figure 30: Verification process 119

Figure 31: RPL Model 120

Figure 32: Accreditation model 121

ix
List of Boxes
Box 1: The Case of India 6

Box 2: Origins of the outcome approach 18

Box 3: Learning outcomes & competences 20

Box 4: Stakeholders involved in the NSQF in India as mentioned in the 2013 Notification 28

Box 5: Transnational frameworks 38

Box 6: The debate on learning outcomes and European descriptors 42

Box 7: Structure of the Irish referencing report 44

Box 8: The Scottish and Indian levels descriptors 45

Box 9: Units or Modules 50

Box 10: NSQF Notification on credit transfer 52

Box 11: What is Quality 60

Box 12: NSQF curriculum package 84

Box 13: Questions from the Qualifications File 84

Box 14: NSQF Register 87

Box 15: A modern approach: Training of trainers in Denmark 95

Box 16: Qualifications Framework of training providers in selected countries 102

Box 17: The Advisor as a professional 115

Box 18: The Assessor as a professional 117

List of Tables

Table 1: Countries arrangements in scope and governance 8

Table 2: Comparison of national and regional frameworks 9

Table 3: Descriptors in selected countries 21

Table 4: Functions and tasks of qualifications agencies and authorities 32

Table 5: Examples of EQF levels 41

Table 6: Levels of CAT scheme 51

Table 7: Qualifications Framework and credit systems 51

Table 8: The South African Qualifications Framework 56

Table 9: Key requirements for a functioning QA system 64

Table 10: Current practice and proposed intervention in India 76

Table 11: EQF and the Qualifications and credit framework 79

Table 12: Examples from European Countries (Source CEDEFOP) 82

Table 13: Summary of the German qualification file 85

Table 14: Countries with Qualification Registers 87

Table 15: Examples of countries’ use of national standards for training providers: 102

FROM CONCEPTS TO IMPLEMENTATION

x A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Introduction

Many countries which have developed a national quali- The purpose of the training programme and Handbook
fications framework would agree that the framework is is not to replace old notions with new ones. A fully trans-
not easy or straightforward to implement and that the formative approach of qualifications starting from a blank
framework should not be set in stone. Implementation sheet rather than from the existing provision, history and
has proved to be a lengthy, even continual, process. culture in a country has always failed. Expertise in the
It should be an outcome of the implementation of the field of qualifications is everywhere among practitioners
national qualifications framework that the framework in any country. But clarify in common notions currently
becomes part of the country’s language. Perhaps in- used, and populate the TVET area with a common lan-
evitably the community of purpose that need to exist to guage is what it is about, starting with the notion of quali-
create a national qualifications framework will largely in- fication. It is a language which needs to be built, shared
volve national and regional agencies and stakeholders and understood. All countries which have experienced
organisations. But a much wider community of purpose the development of NQF have experienced essentially
is required if the national qualifications framework is to new forms of cooperation and coordination. More easily
make the move from a pretty diagram and elegant policy said than done.
papers to becoming part of the language of learning for
The training programme was conceived as a three–
learners, teachers and employers. For national qualifi-
pronged approach of the NQF:
cations framework to become part of the language of
learning, rather than another passing fad, the benefits five days cycle on qualifications,
experienced by learners, employers and learning provid- five days cycle on quality assurance, and
ers need to be researched and communicated widely.
two days cycle on RPL.
This is one of the purposes of this handbook.
The first cycle shows the multiple dimensions of quali-
This Handbook is one of the outcomes of a capacity-
fication frameworks, spanning a continuum from clas-
building programme which was delivered between 18th
sifications of qualifications to instruments of policy plan-
February and 15th May, 2015 at the NSDA premises in
ning and of international comparability. NQF are basically
Delhi, as part of the India-EU Skills Development project,
standards-based system offering greater flexibility and
to a group of key Indian Stakeholders actively involved
choice to learners, greater openness about the stan-
in the current implementation of the NSQF in India. In-
dards that a learner has to achieve to receive credit to
deed, rarely has a country committed so much time and
their knowledge and skills and greater clarity of path-
energy to the unfolding of a TVET reform around a na-
ways.
tional qualification framework. The training programme
was meant as a global introduction to the topic of de- The second cycle develops the notion of standards in
velopment of qualification frameworks through a com- action as trust-building mechanisms (related to trainers,
mon understanding of the issues at stake, so that the training providers, assessors and assessment bodies,
Participants, as practitioners and as stakeholders, could certifications) which give value to the qualifications.
gain new insights and use them on their own practice.

1
The third cycle describes Recognition of Prior Learning While the Handbook is meant as support to the future
as a lever to release the potential of NQF for recognizing sessions of the programme which will be carried out by
achievements beyond that which arise in formal, aca- the Central Staff Training and Research Institute (CS-
demic classrooms situations and to be seen as steps to TARI) attached to the Ministry of Skills Development and
a bigger lifelong journey, rather than being ends in them- Entrepreneurship, and the National Institute of Open
selves. Schooling attached to the Ministry of Human Resources
Development, it strives to be a self-standing document
The three cycles are obviously closely interrelated: the
whose purpose is didactical and hopefully inspirational.
understanding of the organic linkages between them is
the main learning outcome of the programme, along with The Handbook structure is as follows (in brackets the
a critical perception of the advantages and disadvantag- facilitators, followed by the Skype speakers).
es of NQFs, an assessment of the role of NQF in TVET
NQF cycle:
reforms and a sense of NQF as a roadmap showing how
qualifications relate to each other. Understanding national qualifications frameworks
(Jean Marc Castejon, Arjen Deij and Michael Gra-
The Handbook is aiming at all qualification stakehold- ham)
ers, seeking to make the NQF part of the language of
Components of the national qualifications frame-
learning. Learners have to see the NQF as supporting
works (John Hart, Jens Bjornavold)
their ambitions of progressing in employment and further
learning. Individual employers need to see the benefit of The governance of national qualifications frame-
improved retention, productivity and customer service works (John Hart, Brigitte Bouquet)
when they use the NQF in their recruitment and selection Regional frameworks (John Hart, Aileen Ponton)
practice and in their employees training. Trainers need
Credit systems (John Hart, James Keevy)
to see the flexibility of NQF in improving their capacity to
make judgments about entry to courses and progress Quality assurance cycle:
through courses, including giving proper recognition to
Understanding quality assurance (Belinda Smith,
learners’ prior knowledge and skills. And government
Helena Sebag)
officials need to see the benefit of the national qualifica-
tions framework as the cornerstone of an education and Quality assurance of training providers and accred-
training system that will lead to vibrant national and lo- ited courses (Belinda Smith, Stephen Auburn)
cal economies, strong and sustainable communities and Quality assurance of assessment and certifications
skilled, educated and fulfilled people. (Belinda Smith, Isabel Sutcliffe, Julie Swan)

This Handbook is as much as possible based on the Quality assurance of qualifications (Jean marc
presentations made by the experts during the sessions, Castejon, Mike Coles)
but it does not restore the richness of exchanges and Quality assurance for Trainers (Alexander Siboni)
debates which have taken place during the sessions,
both in the “live” morning sessions and in the afternoon Recognition of prior learning cycle:
Skype sessions in which experts from another part of Understanding RPL (Paul Farrelly, Vishishta Sam,
the world brought an additional light to the topic of the Karen Adams)
day. The project team wishes to express again its warm
Tools and Practice of RPL (Paul Farrelly, Shawn
thanks to the Skype speakers and their organisations
Runacres)
who, in the afternoons of almost all sessions, have gra-
ciously given their time and expertise to the programme,
contributing to make it a global event. The friendly in-
ternational organisations are ETF, the CEDEFOP, SCQF,
Ofqual, CNCP and DEQA-VET.

FROM CONCEPTS TO IMPLEMENTATION

2 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
MODULE 1
UNDERSTANDING
Q U A L I F I C AT I O N S
FRAMEWORKS

1. WHAT ARE NATIONAL QUALIFICATIONS FRAMEWORKS? 4

2. MAIN PURPOSES FOR RECENT QUALIFICATIONS REFORMS 5
3. TYPES OF QUALIFICATIONS FRAMEWORKS 6
4. CONVERGENCE AND NATIONAL ADJUSTMENTs 9
5. Skype session: : THE DEVELOPMENT OF QUALIFICATIONS - ARJEN DEIJ (ETF)* 11

* The European Training Foundation is an agency of the European union that helps transition and developing countries
to harness the potential of their human capital through the reform of education, training and labour market systems
in the context of the EU’s external relations policy.

3
It is easy to forget that the current standard-based model ample, in principle, qualifications as part of an NQF are
of qualifications is a relatively recent invention. Full credit designed:
to New Zealand for setting up the first national qualifi-
to be achieved by accumulation over time;
cation authority and developing the first fully functioning
national qualification frameworks in 1990/1. The emer- to be transportable – units of one qualification can
gence of broadly similar national qualification develop- be used for other qualifications;
ments in many different countries during the 1990s re- to be transparent – learners know precisely what
flected the extent to which experience was being shared learning outcomes they are required to demonstrate
through exchange of information and expertise in publi- to achieve a qualification.
cations. Since then many more countries developed or
are developing national qualification frameworks- and Qualifications Frameworks are flourishing all over the
many have established national qualifications authorities world. Many authors are wondering why so many policy
for their frameworks. International collaboration contin- makers are finding them such a good idea everywhere.
ues to these days and has been formalised, in a number The first frameworks (1984) came as an idea that things
of regions, in the more recent development of transna- could not continue as before, and therefore had a trans-
tional qualification frameworks reflecting the growing formational edge, like in New Zealand, Australia, South
importance of learners and labour mobility but also, per- Africa and England. This is understandable since the
haps, as a means by which to encourage cross-border competence-based approach of training was also grow-
policy convergence. ing fast at the time and the productive sector could right-
fully claim they had to share the driving seat of TVET sys-
tems. International experts criss-crossing the world with
1 What are National this new talisman in hand might be partly responsible for

Qualifications this wave of optimism.

Frameworks? Before 2000, only a handful of countries had NQFs.

These first frameworks were developed to address spe-
The main features of NQFs are as follow: cific challenges for linking, regulating or developing quali-
Qualifications are described in terms of a single set fications. A second generation of frameworks developed
of criteria or a single definition of what is to count as in the early 2000s has been able to draw upon the dif-
a qualification. ferent national experiences, but it is really over the very
recent years that we have seen a huge surge in develop-
Qualifications are ranked on a single hierarchy ex-
ments of QFs which aim to link qualifications within and
pressed as a single set of levels – each with its dis-
between countries.
tinct level descriptors
Qualifications are classified (in the case of vocational The majority of countries developing national qualifica-
qualifications) in terms of comprehensive set of oc- tion frameworks today are also involved in ‘regional’ (that
cupational fields. is a cluster of neighbouring countries) or transnational
frameworks. However, as most countries are at an early
Qualifications are described in terms of learning out-
stage of conceptualisation and design, their relation to a
comes that are independent of the site, the form of
regional framework vary considerably.
provision and the type of pedagogy and curriculum
through which they may be achieved. NQFs can take many forms across the many countries
A national framework of qualifications provides a set where they are developing. What they have in common is
of benchmarks against which any learning can be that they are an instrument for the classification of quali-
assessed in terms of its potential contribution to a fications according to a set of criteria for specific levels
qualification. of learning achieved. Qualifications frameworks aim to
bring coherence and clarity to qualifications systems.
All qualifications are defined in terms of elements
When qualifications are placed in a classification sys-
(sometimes referred to as units expressed as quan-
tem, they can be more easily compared by individuals,
tifiable credit. A learner has to achieve a given num-
employers and institutions. But NQFs go beyond other
ber of credit to gain a qualification.
classification systems by bringing together qualifications
It is these features that, in principle, allow qualifications issued by different bodies and on the basis of levels of
to be the basis of the goals they claim for them. For ex- learning outcomes.

FROM CONCEPTS TO IMPLEMENTATION

4 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
When different countries’ NQF are linked to each other, learning routes –formal or informal- which recognise and
directly or via a common reference, qualification from dif- encourage lifelong learning.
ferent countries can be compared, which supports in-
But outcomes do not stop with the frameworks of quali-
dividuals’ mobility across borders. But the purpose of
fications –they are also being applied to curricula, teach-
establishing an NQF – and the implications of doing so
ing and learning, assessment and standards. Countries
– are much wider than classification and comparison.
adopting NQFs are seeking to move to outcomes-based
Contrarily to qualification systems, national qualifications curricula in their schools and colleges. Outcomes can be
frameworks are social constructs. This means that the used to identify appropriate assessment criteria. Most of
framework is the result of a consensus between con- the times, learning outcomes are based on occupational
cerned stakeholders. In Europe, the word qualification standards which specify the required work-related com-
has been agreed to mean a formal outcome of an as- petences for an occupation.
sessment and validation process which is obtained
While NQFs are tentatively outcomes-based or out-
when a competent body determines that an individual
comes-oriented, we should not picture the move to out-
has achieved learning outcomes to given standards.
come as a radical switch but rather as a gradual tilting
This definition has been adopted in India through the No-
of the balance. Indeed, we see countries take a more
tification of the National Skills Qualification Framework
pragmatic approach, taking account of inputs such as
(23rd December, 2013).
institutional provision and structure and duration of a
NQF are part of wider qualification systems. Qualification programme.
systems include all aspects of a country’s activity related
to the recognition of learning and other mechanisms that
link education and training to the labour market and civil 2 Main Purposes for
society. This includes the development and implementa- Recent Qualification
tion of institutional arrangements and processes relat-
ing to quality assurance, assessment and the award of
Reforms
qualifications. It is not always clear whether the development of a NQF
is evidence-based or the result of an intuitive approach
The levels of a framework indicate different degrees of
from the belief that quick results are possible. Although,
complexity of the learning outcomes. The lowest level
NQFs are usually seen as tools for reforms, they are not
often define the basic generic or vocational skills for
neutral tools. It seems likely that one reason why govern-
people who can work effectively under supervision, the
ments have become so enthusiastic about qualifications
central levels typically define the expected requirements
in recent decades is that not only are they assumed to
for professionals who can act independently, whilst the
motivate learners and potential learners, but they can
highest levels emphasize the capacity to analyse and in-
serve other roles that are just as important, but frequent-
novate, create new knowledge and may include the abil-
ly less explicit aspects of governments’ policy. Among
ity to lead and manage people and processes. In some
the most frequent objectives are
QFs the highest levels are reserved for holders of higher
education degrees, but this is increasingly challenged by To establish national standards for the outcomes of
lifelong learning frameworks with a strong labour market learning and improve the social and/or economic
dimension, so that increasingly the highest levels are be- value of qualifications
ing opened up to vocational qualifications too. To improve the quality of qualifications and assess-
ment, increase trust in qualifications and gain nation-
In order to understand a qualification as the outcome of
al / international recognition for workers’ skills
an assessment, it is useful to understand learning out-
comes. Learning outcomes say what a learner is expect- To relate qualifications to each other and improve
ed to know, understand and be able to do at the end of access, progression routes and the possibilities of
a course of learning. Outcomes tell us what is inside a transferring learning (sometimes summarised as “im-
qualification –so creating readability. At the same time, proving learners’ journeys”)
by defining a qualification by what the learner needs to To provide a basis for co-operation between stake-
achieve rather than by the traditional inputs such as du- holders in education and training in pursuit of some
ration of programme, learning outcomes facilitate diverse aspect(s) of national policy on social or economic
development

5
 Make education more responsive to demand (incl. Box 1: The Case of India
from labour market)
Enhance quality of learning Objectives of the NSQF

Recognise existing skills (incl. in-/non-formal learn- • Accommodate the diversity of the Indian education
ing) and training systems

Promote international mobility of workers and learners • Allow the development of a let of qualifications for
each level, based on outcomes which are accepted
Reference qualifications to trans-national framework
across the nation
Promote parity of esteem for vocational learning
• Provide structure for development and maintenance
Make education system more transparent of progression pathways which provide access to
Provide instrument of accountability and control qualifications and assist people to move easily and
readily between different education and training
Promote access, transfer and progression
sectors and between those sectors and the labour
Increase coherence/coordination of education sys- market.
tem
• Give individuals an option to progress through educa-
Such purposes are over ambitious if they do not come tion and training and gain recognition for their prior
with a range of actions, including appropriate laws and learning and experiences.
policies, institutions, budget allocation, infrastructure • Underpins national regulatory and quality assurance
development, personal development for teachers and arrangements for education and training;
trainers and provision of learning resources materials.
• Support and enhances the national and international
The goals above cannot be achieved by the NQF alone.
mobility of persons with NSQF-compliant qualifica-
Policy breadth is required, which is defined as the extent
tions through increased recognition of the value and
to which the establishment of the framework is directly
comparability of Indian qualifications.
and explicitly linked with other measures to influence
how the framework is used, such as the availability of (NSQF Notification, December 23rd, 2013)
assessment systems, the adequate retraining of trainers,
the existence of well developed sectoral organisations
and the new partnership without which, a NQF can nev-
er be more than a ‘map’. Among less explicit aspects of tices applied in other countries, and the need to take full
government policy, a greater emphasis on qualifications account of national history and a culture. This tension
enables central government to: has produced different results in countries depending
on how predominantly context-bound or predominantly
Increase their control of education in areas where it
context-free the frameworks set out to be. David Raffe
is relatively weak.
refers to this difference the NQF having an institutional
Provide simple measurable criteria for allocating logic in the first case and an intrinsic logic in the second.
funds to institutions.
Hence the NQF differ according to their
Make local and regional education and training or-
ganisations more accountable. Scope: sector or comprehensive

Provide quantitative measures of the success of Aims: communication, reform or transformation

public policies. Governance: regulatory or voluntary
Design: tight or loose

3 Types of Qualifications Associated functions, such as progression pathways.

Frameworks Type: national or regional.

While NQFs are a global trend and appear to share com- Scope | Sector NQF (usually TVET) are envisaged in
mon characteristics, in practice the development, and countries which developed the first generation of frame-
especially the implementation, of frameworks vary mark- works (New Zealand, Australia, England) as the world of
edly by country. There is a tension between the need to work was the first to alarm the institutions to the grow-
comply with internationally admitted practices and prac- ing mismatch between the outcome of traditional sys-

FROM CONCEPTS TO IMPLEMENTATION

6 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
tems and the skill needs. There is a trend now for the European frameworks can mostly be described as loose
new generation of framework to be comprehensive, that as the inclusion of qualifications is based on sector leg-
is inclusive of various needs for learning at all and for islation, not on uniform rules covering the entire frame-
corresponding recognition and validation. This trend fol- work. Most countries operate with different principles for
lows the shift to lifelong learning which requires inclusive the inclusion of qualification from general, vocational and
frameworks in terms of target groups but also in terms academic sectors. This approach is well illustrated by
of modes of learning. the proposed Polish framework where generic, national
descriptors are supplemented by more detailed descrip-
Design – Tight or loose | comprehensive NQFs need
tors for the sub-sectors of general, vocational and higher
to embrace the full range of concepts, values and tradi-
education. While not so explicitly addressed by other
tions in the different parts of education and training cov-
frameworks, the basic principle applies across the Eu-
ered by the framework. This leaves two options:
ropean continent.
Try to reform the system according to the one-fit-all
principles of the framework (in line with outcome- Governance | In the case of comprehensive frame-
driven model), or works, four set of functions must be carried out as part
of the governance.
Introduce a “looser’ framework accepting and re-
specting existing diversity but insisting on a common Management of the framework
core of principles to be introduced and shared. Standards and qualification development

Tight frameworks are normally regulatory frameworks Quality assurance of education and training providers
and define uniform specifications for qualifications to be Assessment and certification.
applied across sectors. They seek to improve the rel-
Clear consistent roles of different ministries and public
evance and quality of qualifications and the coherence of
authorities need to be distinguished from the role of the
the qualifications system. They are typically found in ei-
“Qualification Authority” and from other players such as
ther the newer Member States of the EU, for example, or
the private sector and NGOs. NQFs are voluntary or reg-
in transition and developing countries. Tight frameworks,
ulatory according to the obligation made to the training
as exemplified by the early South African and New Zea-
providers to comply to national standards of delivery as a
land frameworks, generated resistance and undermined
condition of access to public funding. There are no clear
support for the initiatives. These experiences have led to
cut difference between the two. The table 1 summarizes
general reassessment of the role of frameworks, pointing
some countries’ arrangements in terms of scope and
to the need to protect diversity.
governance.
Loose frameworks introduce a set of comprehensive
Aims of frameworks – Communication frameworks
level descriptors to be applied across sub-systems, but
| aim to coordinate different subsectors of a national
allow substantial variation across sub-frameworks.
education and training system, and make the national
Whether a framework is tight or loose depends on the qualifications system more transparent. They are pre-
stringency of conditions a qualification must meet to be dominant when the national system is long settled and
included in the framework. A possible example is the dif- sustained by a national consensus. The changes to the
ference between the English and Scottish frameworks. national system tend to be adjustments rather than ma-
The SCQF makes simple demands on qualifications to jor overhaul. These frameworks essentially add value to
be admitted to its hierarchy, the requirement for a mini- the system.
mum size, quality assurance and a learning outcomes
Reforming frameworks are more ambitious: they seek
format are seen as minimum requirements to support
to actively improve the national education and training
the integrity of the SCQF. This might be contrasted with
system in terms of relevance, coherence and quality of
the English QCF which makes demands in terms of
qualifications. They are typically found either in the newer
structure, for example, qualification titles, size, unit for-
member States of the EU or in transition and develop-
mat, form of assessment criteria, classification of units
ing countries. They are therefore much more influenced
as mandatory or optional, and rules of combination of
by external factors and tend to resemble each others in
units to form a qualification. The effect of the framework
structure (e.g. numbers of levels) and scope. Tight re-
on qualifications therefore differs markedly.
forming frameworks, as exemplified by the early south
African and New Zealand frameworks, generated resis-

7
 Table 1: Countries arrangements in scope and governance (Source ETF)
Country Scope Governance

Australia All sectors Ministry

Denmark All sectors Co-ordinating Committee (4 ministries)
England and Northern Vocational Government sponsored agency
Ireland (separate HE framework)
France VET Government sponsored agency
Germany All sectors National and regional ministries
Ireland All sectors Government sponsored agency + separate schools authority.
Kosovo All sectors National qualification authority + separate school VET and HE
authorities
Malaysia VET and HE National qualification authority
Morocco All sectors Possibly a commission of representative of most important ministries
and social partners
New Zealand All sectors National qualification authorities + separate HE authority.
Scotland All sectors Independent Partnership Organisation (Ministry, National qualification
authority, VET and HE bodies)
South Africa All sectors National qualification authority + schools & colleges, VET and HE
authorities
UAE All sectors National qualification authority + VET and HE authorities
Wales All sectors Ministry

tance and undermined support for the initiatives. These as reference point for national validation systems poten-
experiences have led to general reassessment of the role tially open to all.
of frameworks, pointing to the need to protect diversity.
Associated functions | Some of the established frame-
The further implementation of NQFs in the coming years works have invested much effort in creating better con-
will show the extent to which countries move from the ditions for progression. Scotland for instance has made
relatively modest ambition of communication frame- significant progress in defining progression routes for
works towards the more challenging role of reforming learners in selected areas. Universities are obliged to
frameworks. In particular areas, for example related to reserve some of their places to those coming through
the introduction of recognition of non-formal and infor- non-traditional routes, e.g. without a school leaving cer-
mal learning, NQF take the role of reference point for tificate from general education. While this strategy goes
reforms in this field. This is exemplified by the German beyond the remit and role of the framework, the Scottish
and Polish qualification frameworks which see the devel- Credit Qualifications Framework levels are used to posi-
opment of recognition as an integrated and important of tion people (and their prior learning) and to map possible
framework developments. A third example is the French- learning pathways. A key challenge faced by countries
speaking region of Belgium where the development of wanting to go beyond strictly regulated formal educa-
validation and framework goes hand in hand, and where tion and training is to ensure that the new qualifications
significant progress has been made in the last few years. included in the framework can be trusted and that ap-
Given the adoption of the European Council recommen- propriate quality assurance criteria and procedures are
dation on validation of non-formal and informal learning put in place.
in December 2012, the link between framework and rec-
National or Regional | Regional frameworks cover
ognition will receive increased attention. This is already
qualifications in a number of countries in a particular geo-
the case in India, where the Official Notification of the
graphical region. Table 2 lists the most prominent. The
National Skills Qualification Framework (NSQF) foresees
difference between national and regional frameworks is
a close co-development of the NSQF and the recogni-
summarized in the following table (source Mike Coles).
tion of prior learning. NQFs have therefore a role to play

FROM CONCEPTS TO IMPLEMENTATION

8 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 Table 2: Comparison of national and regional frameworks
Areas of comparison Types of qualification frameworks
National Regional
Main functions To act as a benchmark for the level of learning To act as a translation device to enable comparison
recognised in the NQS of levels of qualifications across member countries
Developed by National governments in many cases through Countries in a region acting jointly, mostly facilitated
national agencies set up for this purpose by a regional body or a regional association.
Sensitive to Local national priorities, e.g. level of literacy of Collective priorities across member countries (e.g.
LM needs enabling mobility of learners and workers across
borders).
Currency/value de- The extent of regulatory compliance required, The level of trust between member countries: the
pends on… the level of buy in from the key role players transparency of the national quality assurance sys-
(such as industry, learning institutions and tems, mutually agreed national priorities.
professional association), the perceived or real
value to the broad population.
Quality is guaranteed Adherence to nationally agreed quality assur- The common application of referencing criteria and
by ance systems, exemplified in the practices of guidelines as well as the robustness and transpar-
national bodies and learning institutions. ency of the national referencing process, and the
national QA systems.
The levels are defined National benchmarks which may be embed- General progression of learning across all contexts
by reference to… ded in different learning contexts, e.g. school that is applicable to all countries.
education, work or higher education.

4 Convergence and The countries that have tried to make a radical break with
their previous qualifications systems have had the most
National Adjustment acute difficulties. A radical break gives neither practitio-
ners nor those involved in design any benchmarks to test
In Europe, NQFs have mostly been designed as com-
the new ideas against their experience. Incremental ap-
prehensive frameworks, covering all levels and types of
proaches minimize the likelihood that ideologies will in-
qualification; most countries have introduced eight-level
tervene, and as a result are more likely to avoid polarized
frameworks where learning outcomes are described ac-
positions. The problem with an incrementalist approach
cording to the knowledge, skills and competence (KSC)
is that it is unlikely to appeal to governments who feel the
categories; convergence in structure underlines the
situation of their country is one of great urgency, as in the
countries giving priority to international comparability;
case of South Africa. The point to remember, however, is
NQFs are frequently seen as a part of national lifelong
that even if a more radical break is attempted, the struc-
learning strategies, in many cases acknowledging quali-
tural constraints on implementation may well extend the
fications awarded outside the formal, public system as
implementation period anyway.
well as promoting validation of non-formal and informal
learning. Consensus or agreement is the bedrock of trust and all
qualifications depend on trust. Qualifications inevitably
New concepts appear as part of the need to quality as-
claim to represent more than they can demonstrate and
sure Lifelong Learning, in a context where the supply of
therefore can only work on the basis of trust. Genuine
qualification shift from a monopolistic offer (public sys-
consultation processes such as those that have been a
tems aiming one category of beneficiaries) to a competi-
feature of the Irish NQF are crucial and principled com-
tive offer targeting all types of beneficiaries. The training
promises such as that reached over the relations be-
providers bear the load of delivering training programmes
tween the schools and universities and the NQF in New
leading to real qualification and of getting people to
Zealand are important. The alternative which is typified
employment. More importance is given to assessment
by the rigid assertions followed by forced compromises
and certification and to pathways. Many countries see
over NVQs in England has meant that the whole idea
dialogue and cooperation across education and training
of an NQF has tended to lose public and professional
subsystems and with stakeholders outside education as
credibility.
a first step.

9
Scotland demonstrates very well the importance of par-
tial frameworks as building blocks for an NQF. Only when Conclusion
a range of partial frameworks – Higher Still, SCOTCAT,
In many countries, the NQF has still to become visible
Higher National Diplomas and NVQs was in place, was
to ordinary citizens and be part of the language of learn-
the comprehensive Scottish Credit and Qualifications
ing. Experience shows that a NQF does not have to be
Framework introduced. It was the existence of the .build-
perfect before entering a real world. It is preferable to
ing blocks that established both the confidence in, and
be pragmatic, to test out, to build support of a wide va-
the practicality of, a broader more comprehensive quali-
riety of potential users – rather than to try to launch a
fications framework (the SCQF). Here the term building
framework which is perfect in every detail. Seeking per-
block refers to specific levels (upper secondary or higher
fection before going public is understandable but the
education) and sectors (vocational or academic or an in-
time it takes to achieve this may well build frustration
dustrial sector like engineering). It does not refer to the
amongst users rather than demand. Demand is built by
elements of a framework such as modules, units, stan-
having learners, teachers and employers as advocates
dards, levels, and credits, although these may well form
of the national qualification framework because they
elements of partial frameworks.
have experienced its benefits. Such advocates will be far
The combination of the various features of NQFs can more effective in pushing forward implementation than a
be summarised in Figure 1. Quality assurance tends to roomful of beautifully written policy papers.
take the central role and the way it is implemented deter-
mines the features of the framework.

Figure 1: Features of qualifications frameworks

Exclusive framework Centralised Concentrated Top-down based regulation of systems

covering only qualifications coordination/management Harmonisation oriented (normative
regulated by the public authorities arrangements approach)

Comprehensive framework
• levels
• design of qualifications
• defining/writing learning
outcomes
Classification tool • design of progmrammes
QUALITY
based on levels • assessment
ASSURANCE
• validation
• credits
• accreditation (providers...)
• learning pathways
• Recognition

Bottom-up based self-regulation Decentralised/ Inclusive framework

of systems transparency-oriented interinstitutional covering all categories
(collaborative approach) coordination/management of qualifications
arrangements

FROM CONCEPTS TO IMPLEMENTATION

10 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 1. The difference between qualification frameworks and qualification systems
• Levels are implicit in NQS but explicit in NQFs.
• NQSs are based on learning inputs / NQFs are based on learning outcomes.
• NQSs are based on institutional logic / NQFs on intrinsic logic.
• an NQS is a real system / an NQF is a social construct.

2. The primary objectives of National Qualification Frameworks

• establish national standards for the outcomes of learning and improve the social and/or economic value of
qualifications.
• improve the quality of qualifications and assessment, increase trust in qualifications and gain national / interna-
tional recognition for workers’ skills - relate qualifications to each other and improve access, progression routes
and the possibilities of transferring learning (sometimes summarised as “improving learners’ journeys”).
• provide a basis for co-operation between stakeholders in education and training in pursuit of some aspect(s) of
national policy on social or economic development.

3. The added value of qualification frameworks as policy tools

• Encouraging people to see qualifying as a process that starts in initial education and training and continues
throughout their adult lives.
• Improving opportunities for people to move between different types of qualifications (especially general and
vocational) and between vocational qualifications for different occupational sectors.
• Promoting informal learning and the links between informal and formal learning and improving opportunities for
people to use their informal learning to gain recognized qualifications.

ployers now consider what a person has learned to be

5. Skype Session more important than what they have been taught. The
The Development of EQF definition is now favoured in ETF partner countries.
Qualifications: Theory and That said, many partner countries, while developing
NQFs based on learning outcomes, have not yet rede-
Practice (Arjen Deij) fined what ‘qualification’ means. Most use definitions
(Arjen focuses on the 29 countries1 which are which would not comply with the EQF one. In most cas-
in the mandate of the ETF as partners of the es, this is simply a practical matter. Reform is under way
European union) but not every part of the system will be reformed at the
same time or systematically. Change is, in reality, piece-
‘Qualification’ means different things in different coun- meal. Revising or introducing legislation is a cumber-
tries, or even within them. There is no universal definition, some process, so we should not be surprised if practice
or understanding, of ‘qualification’. Linguistic differences is ahead of theory, especially where this is employer-led,
apart, how qualifications are perceived and defined var- as it is, for example, in Ukraine. Let us now look at some
ies. The term ‘vocational’ is also open to interpretation, country examples.
and in practice has quite different usage and meaning
across countries. The International Standard Classifica- EU instruments are central to shaping and channeling
tion Of Education (ISCED) definition links qualifications to this policy and to driving substantial change. As well
completion of a programme; By contrast, the EQF defini- as the EQF, the European Credit System for Vocational
tion defines a qualification as ‘the formal outcome of an Education and Training (ECVET), Europass, Education
Assessment and validation process, which is obtained and Training 2020 (ET 2020), the Copenhagen Process
when a competent body determines that an individual and the Bruges Communique all exercise their influence
has achieved learning outcomes to given standards’. In on countries’ discussions and decisions. Learning out-
many parts of the world, governments, schools and em- comes are the conceptual common denominator of all
these tools and policies. What we have found, is that
1 Albania, Algeria, Armenia, Azerbaijan, Belarus, Bosnia and Hervegovina, definitions are often out of date in their intention, and
Egypt, Former Yugoslav Republic of Macedonia, Georgia, Iceland, israel,
jordan, Kazakhstan, Kosova, Kyrgystan, Lebanon, Moldova, Montenegro, sometimes, where reform is more advanced, in their
Morocco, Palestine, Russia, Serbia, Syria, Tajikistan, Tunisia, Turkey, practice. Some countries are reordering the relationship
Turkmenistan, Ukraine, Uzbekistan.

11
of curricula to qualifications, so that qualifications are of methodology and derives from the functional analy-
designed by learning outcomes and curricula are devel- sis that was common to much occupational psychology
oped to facilitate achievement of these. in the United States (Callaghan, 1961). Step 1 involves
breaking down the skill and knowledge demands asso-
Countries vary in the levels at which their VET qualifica-
ciated with a qualification into its smallest parts (units).
tions are available. In some cases a ceiling is applied,
Each unit is then assigned to a level and given a credit
so that such countries do not, or do not yet, offer VET
rating in terms of the notional hours needed to acquire
qualifications beyond the equivalent of EQF levels 4
the necessary skills and knowledge. Step 2 involves
and 5. In other cases, such as Turkey, or in the sectoral
specifying the minimum constraints 5 on the ways in
frameworks in Russia, VET qualifications are available at
which the units can be combined together, as well as the
the upper levels. In others, the new NQF upper levels are
number of units needed to gain a qualification. Step 3
equally open to VET qualifications but no qualifications
then assumes that the user (employer and/or employee/
in VET beyond levels 4 or 5 have yet been developed.
trainee) chooses his or her set of units and accumulates
enough credit to gain a qualification.
New Types of Qualifications are
Emerging This approach to qualification design maximizes flex-
ibility and choice for learners and employers to put to-
NQFs are behind another key trend in the conceptual gether units in ways that suit their interests. In practice
development and implementation of new or revised the unitisation model has created as many problems as it
qualifications. Traditionally, vocational qualifications and solves. Employers and employees (or students) invariably
programmes in most partner countries were almost ex- have different interests and the latter frequently lack the
clusively offered in initial or secondary school. Adults, knowledge to make reliable choices. As a result the NQFs
whether in work and retraining or not in employment and in both New Zealand and South Africa have moved away
seeking to re-enter the workforce, were not catered for. from registering units and the NQF is increasingly based
But a more complex economy requires a wider range on whole qualifications (like in France) with only limited
of qualification types to meet learner needs. Types are opportunities for learners to choose individual units.
clusters or categories of qualifications, which share char-
acteristics such as the sub-system they belong to (for However, despite the trend to whole qualifications-based
example higher education or VET), their objectives, pur- frameworks, the idea of unitisation remains extremely at-
pose, and the learner group they cater to. We can also tractive to policy-makers.
think of types, in everyday language, as a way of indicat-
ing how qualifications can be like each other and how The Lifelong learning paradigm has also encouraged
they can be different from each other, in duration, profile, a restructuring of qualifications, building on the new
content and so on. When countries define types of quali- thinking about learning outcomes which has been in-
fications, this is integrated into the NQF, so that qualifica- fluencing partner countries for six or seven years. More
tions inserted in the NQF are first defined by type. countries now look to build their qualifications on units.
Of course, when qualifications were indistinguishable
A variety of types of qualification is therefore essential.
from curricula, there were no unit-based qualifications.
Partner countries are paying more attention to this issue
Unitized qualifications can be offered to learners either
now, recognizing that clear definitions and categories
in combinations or singly. We should not think of ‘par-
aid the design of qualifications and establish the relation-
tial’ qualifications, which implies something less than a
ships and pathways between them.
full qualification. Instead, it is important to appreciate
how units offer flexible options to learners. For example,
Unit-Based and Qualifications comprehensive, unitized qualifications can be delivered
Based Frameworks via a regular, full programme in initial VET, while adult
learners and those in retraining may prefer more readily
NQFs vary in terms of how qualifications are registered in
manageable unit-by-unit learning, allowing for flexible
the framework. The starting assumption, shared by most
and accessible assessment. In this way, units support
initial proposals for NQFs, is that qualifications should
a more adaptable workforce, and crucially are by their
be unit-based; in other words the learning outcomes
nature sympathetic to LLL. Countries usually specify
assumed to be necessary for a particular qualification
criteria for qualifications design, including units, in their
are divided up into their basic elements or units. This
NQF requirements or guidance.
process of unitisation draws on a familiar analytical type

FROM CONCEPTS TO IMPLEMENTATION

12 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Occupational Standards – Ensuring Occupational standards in ETF partner countries are of-
Labour Market Relevance ten developed by sector skills councils (SSCs), chambers
of commerce or international donors. In Turkey, tripartite
Vocational qualifications should be developed from iden- sector committees develop the standards, supporting
tified labour market needs. In ETF partner countries in the labour market relevance of the derived qualifications.
Eastern Europe and the Balkans, this often means re- Moldova has devised its occupational standards via its
establishing links with labour markets that have been SSCs.
broken during the transition and upheaval of the past 25
years. Or, to be more accurate, it means building new Non-EU countries use occupational standards in differ-
links with today’s greater diversity of enterprises and ent ways, of course, just as EU countries do. Turkey’s
employers. In the past, VET systems in countries neigh- NVQs are derived directly from occupational standards,
bouring the EU would often (to simplify) funnel gradu- so one standard leads to one qualification while infor-
ates directly to assigned employers in a heavily regulated mation from several standards can be used to develop
labour market; or, rather, demand and supply were so broader-based qualifications more suited to prepare
strictly regulated that there was not much of a labour secondary VET learners for several related occupations.
market. Training was curricula driven and tended to be Or units from occupational standards can be used to de-
narrow and specialized, with little space for career plan- velop units of vocational qualifications for specific skills,
ning or core skills. The transition to an open market end- especially in retraining. While the spread of occupational
ed many of these jobs and broke the VET–employer link. standards is welcome, too often many remain outside
Curricula and qualifications have been slow to match national qualifications systems, so that standards cre-
these changes. ated or led by donors remain unused by qualifications
developers in the country. Indeed, some countries have
Three out of four of ETF’s partner countries now use scores of occupational standards but only a handful of
occupational standards to develop vocational qualifi- approved qualifications, as bureaucratic bottlenecks
cations. Both DACUM (developing a curriculum) and prevent the validation of more standards. Countries
functional analysis approaches are in use: for example, might seek to harness standards to national qualifica-
Moldova, Serbia and Jordan use DACUM, while Russia, tions more efficiently by streamlining the approved de-
Ukraine and Egypt use functional analysis. The princi- velopment processes.
pal value of standards is in seeking to incorporate labour
market needs. A standard is a measurable indicator of Figures 2 to 4 show how frameworks usually build on the
achievement. An occupational standard is a document skill demand (occupational standards). Figure 2 shows
which specifies the performance requirements in an how qualifications have their roots in the labour market.
occupation, and so links qualifications to employment. Figure 3 shows how occupational standards diversify
Most partner countries have traditionally used education into qualification types with specific qualification stan-
standards to define qualifications. Education standards dards and figure 4 how educational standards develop
measure the quality of the education process and the out of qualification standards.
outputs of an education system.

Process of development of qualifications

Figure 2: Qualifications take their roots in the labour market

Labour Market

Anticipation of skill needs

OS1 OS2 OS3

*OS = Occupational standards

13
Figure 3: Qualification types reflect the level of responsibility in the Labour Market (LM)

Education policy Labour Market

objectives
Anticipation of skill needs

Access and progression

OS1 OS2 OS3

Qualification types

CBQ OS = Occupational standards

CBQ = Competence-Based Qualifications

Figure 4: Professional standards are translated into educational standards

Education policy Labour Market

objectives
Anticipation of skill needs

Access and progression OS1 OS2 OS3

Qualification types

Secondary VET CBQ

qualifications

OS = Occupational standards
Qualification Standard CBQ = Competence-Based Qualifications

FROM CONCEPTS TO IMPLEMENTATION

14 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Figure 5: Educational standards are reflected in curricula

Education policy Labour Market

objectives
Anticipation of skill needs

Access and progression OS1 OS2 OS3

Qualification types

2ndary VET CBQ

qualification

Qualification Standard Final Assessment

Educational Standard
Core Curriculum
Taught Curriculum

School Curriculum OS = Occupational standards

CBQ = Competence-Based Qualifications

The figure above are indicative maps of how qualifications involving representatives from the world of work and from
develop. On the ground, dialogue between stakeholders providers, co-ownership of proposed reforms and shared
remains one of the most important factors in the imple- vision can empower stakeholders to act for a successful
mentation of frameworks. Where an active dialogue exists implementation of the framework.

FURTHER READINGS
• Bjørnåvold, J., Coles, M., Cedefop and European Commission. 2010. Note 2, European Qualifications Framework series. Lux-
embourg, EC Publications Office. http://ec.europa.eu/education/lifelong-learning-policy/doc/eqf/note2_en.pdf (Accessed 26
November 2012.)
• Bohlinger, S. 2012. Qualifications frameworks and learning outcomes: challenges for Europe’s lifelong learning area. Journal of
Education and Work, Vol. 25, No. 3, pp. 279–97.
• Callaghan, R, Education and the Cult of Efficiency, 1961.
• Cedefop, 2009. The Shift to Learning Outcomes: Policies and Practices in Europe, Reference series 72. Luxembourg, EC Publica-
tions Office. www.cedefop.europa.eu/EN/publications/12900.aspx (Accessed 16 April 2015.)
• Global inventory of Regional and National Qualifications frameworks, vol 1 Thematic Chapters,UNESCO, IUL, ETF, CEDEFOP, 2015.
• Young, M, National Qualifications : Their Feasibility for Effective Implementation in Developing Countries, Working paper N° 22,
ILO, Geneva, 2005.

15
 FROM CONCEPTS TO IMPLEMENTATION
16 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
MODULE 2
LEARNING
OUTCOMES
AND LEVEL
DESCRIPTORS

1. THE ORIGINS AND USES OF LEARNING OUTCOMES 18

2. IDENTIFYING LEVELS – INTERNATIONAL PRACTICE – LEVEL DESCRIPTORS AND
DOMAINS OF LEARNING 20
3. HOW LEVELS CAN BE EXPLAINED 22
4. Skype Session: THE WRITING OF LEARNING OUTCOMES JENS BJORNAVOLD (CEDEFOP)* 25

* The Cedefop is the European Union Agency that helps policy makers improve vocational training systems and
provides expertise on skills and qualifications.

17
1. Learning Outcomes They are used:
at a policy level (e.g. national curriculum policy)
While the EQF definition of a qualification framework (QF)
at a systems level (e.g. in qualification frameworks)
insists on the use of learning outcome as a way to clas-
sify qualifications, at the level of qualifications (e.g. qualification stan-
dards)
“… a mechanism for classifying the qualifications which
at the level of specific curricula and learning pro-
are awarded within a qualification system … according to
grammes
a set of criteria for specified levels of learning achieved.”
Example of policy-level outcomes
other definitions focus on the QF as a lever for quality
The Kosovo Curriculum Framework specifies six com-
“All qualifications frameworks, establish a basis for im-
petences to be mastered during compulsory education:
proving the quality, accessibility, linkages and public or
labour market recognition of qualifications within a coun- Communication and expression competence
try and internationally.” Thinking competence

or even as a lever for more radical transformation Learning competence

Life, work and environment-related competence
“Modern NQFs can be described as ‘instruments with a
vision’ questioning current education and training prac- Personal competence
tices and challenging existing professional and sectoral Civic competence
interests.”
Example of sector-level outcomes
Box 2: Origins of the outcome approach
The Scottish Qualifications Authority’s Administration
and IT qualifications provide practical opportunities to
Educational influences
1950s Skinner – programmed instructional materials apply and develop organisational, administrative and IT
– Bloom – domains of learning (Cognitive, skills. Learners develop IT skills and use technologies as
Psychomotor, Affective) tools to achieve organisational and administrative tasks.
1960s Mager – learning objectives
– Glaser – criterion-referenced assessment Example of qualification/curriculum-level
1970s Bloom – mastery learning
outcomes (SCQF)
1980s Gardner, Sternberg, etc – theories of differentiated
intelligence Learning outcomes are similar to learning objectives.
Learners will be able to:
HR/Training influences
1950s Hay – job evaluation factors (know-how, problem- work co-operatively and collaboratively and assume
solving and accountability) shared responsibility
1960s McLelland (McBer) – competence based on the
performance of successful individuals operate within an administrative context
1970s Spencer – soft skill competences
prioritise tasks and work within deadlines
1980s Mansfield & Mathews (UK) – the job competence
model (skills, management skills & context- acquire, extend and apply administration – and IT-
related skills) related skills, knowledge and understanding
– Dreyfus & Dreyfus – model of skill acquisition
(novice, competence, proficiency, expertise, and create and present business documents to an ap-
mastery) propriate and professional standard
be involved in self- and peer assessment
Learning outcomes [Cedefop 2009: p. 141] are de-
Example of unit-level outcomes in the UK model.
fined as statements of what a learner knows, under-
stands and is able to do after completion of learning. [cf Use a spreadsheet application to interpret a given
Official NSQF Notification]. The learning may take place brief
formally or informally (through experience gained in the Use advanced functions of a relational database to
community or workplace). interpret a given brief

FROM CONCEPTS TO IMPLEMENTATION

18 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 Use advanced functions of word processing to inter- encing teaching, training and assessment methods. By
pret a given brief bringing transparency to training programmes, learning
Each outcome will be accompanied by performance outcomes should make it easier to select the best pro-
criteria, which sets the standard for assessment. gramme for their need and, if possible to seek recogni-
tion of experience and prior learning. Also, as outcomes
In qualification frameworks, learning outcomes are clas- provide a basis for credit accumulation and staged learn-
sified in a hierarchical, way to form levels. They are not ing, it shifts the focus away from time-serving. Learn-
sector-specific and therefore provide a common lan- ing outcomes approach adds a new important element
guage across sectors, and can apply to different kind to the ‘old picture’, making it possible to have a fresh
of learning. They provide a link between curricula and look at the ordering and valuing of qualifications. This
social and employment requirement. Learning outcomes pragmatic use of learning outcomes – combining it with
should not be treated as merely technical constructs, careful consideration of input elements – has been im-
but need to reflect and respect the social and institu- portant for redefining the relationship between vocational
tional contexts they are operating within. and academic qualifications. Reviewing this relationship
in terms of what a candidate is expected to know, be
The NQFs developed after 2005 differ in important re-
able to do or understand – instead of looking at type of
spects from some of the first generation frameworks
institutions – has challenged accepted ways of valuing
developed e.g. in England or South Africa. While differ-
qualifications.
ences in the number of levels and coverage immediately
catch the eye, the main difference seems rather to lie in In the world of work, learning outcomes are a good basis
the interpretation and application of learning outcomes. for planning workforce development and for recruitment
Some of the early frameworks were based on what may and selection for admissions or recruitment or for pro-
be described as a radical learning outcomes based ap- motion.
proach. Inspired by the English system of national voca-
tional qualifications (NVQ) introduced in the late 1980s, Lastly, by making education and training systems com-
these frameworks tended to specify learning outcomes parable by creating a common language across sectors,
independently from curriculum and pedagogy and tried which they were not under fully institution-based sys-
to define qualifications in isolation from delivery mode, tems, learning outcomes allow for intra-national and in-
learning approach and provider. The countries in ques- ternational cooperation provide a basis for comparisons
tion have partly moved away from this radical approach. and benchmarking: “ using learning outcomes as a com-
mon reference point, the Framework will facilitate com-
Developments of national qualifications frameworks in parison and transfer of qualifications between countries,
Europe show that countries have adopted a more prag- systems and institutions and will therefore be relevant to
matic and diversified approach to learning outcomes. a wide range of users at European as well as national
While the principle is seen as crucial for increasing level.” (EQF Recommendations). Outcomes of learning
transparency and comparability, there is general un- are the basis for credit transfer systems.
derstanding that learning outcomes must be put into a
wider context of education and training inputs to make In the less positive side, the critics are insisting on the
sense. When placing existing qualifications into a new narrowness and over-specification of outcomes. If learn-
framework structure, the focus on learning outcomes is ing outcomes are formulated in too narrow and restrict-
frequently combined with consideration of national insti- ed ways, they can limit rather than broaden expectations
tutions and programme structures, accepting that mode towards learners; if learning outcomes are used differ-
and volume of learning vary and matter. The use of learn- ently between institutions, sectors and countries, their
ing is an approach that is applied in diverse ways in dif- ability to strengthen transparency and aid comparison is
ferent policy, teaching and learning settings. Learning weakened. The extensive discussion of the third, ‘com-
outcomes are like a set of tools or keys, useful in different petence’ pillar of the EQF illustrates the need to reflect
ways according to the context. There are therefore differ- on the expectations signalled by the descriptors and the
ent kinds of qualification frameworks and different some- frameworks they are embedded in; are we broadening
times conflicting approaches to outcomes and domains or narrowing down our education and training and life-
long learning strategies? The focus on comparability of
In the positive side, practitioners insist that they rep- learning outcomes weakens the national relevance, as it
resent a shift of focus from what is taught to what is weakness the social dimension of learning and the focus
learned, a shift towards learner-centered method influ- on quality of teaching and learning. There is also a risk of

19
fragmentation – lack of understanding of how outcomes to do or understand. A pragmatic use of learning out-
reinforce each other. comes –combining it with careful consideration of input
element- has been important for redefining the relation-
Box 3: Learning outcomes and competences ship between vocational and academic qualifications.

These terms are used in a number of different ways by Level descriptors are statements of generic out-
different countries and authorities. comes which characterise the level. Level descrip-
tors are intrinsically about the depth and complexity of
A learning outcome is a standardised statement of the
knowledge, the range and sophistication of application/
knowledge and/or skills which has been/will be achieved
by an individual who completes an education/training practice, the degrees of integration, independence and
programme/qualification. creativity and the degrees of supervision/independence
and responsibility for others’ work. The level descriptors
A competence is a specialised kind of learning outcome.
It is a standardised statement of the knowledge, skills and are not about the size of the qualification, the age of the
behaviours required to operate successfully in a specific learner, stages of education, where learning took place
work role. or wages/salaries.

The term “competency” seems to be used (i) as an alterna- All qualifications frameworks use level descriptors to peg
tive to “learning outcome”, (ii) as an alternative to “compe-
qualifications on a hierarchical set of levels that number
tence”, and (iii) to describe a component of a competence.
between 4 and 12, but mostly between 8 and 10.

Levels relate to factors such as:

2 Identifying Levels and complexity and depth of knowledge and under-
Domains of Learning standing

Each level in a framework is defined by a set of descrip- range and sophistication of practical and intellectual
tors (domains) indicating the learning outcomes relevant skills
to qualifications at that level. Levels are usually defined degree of integration, independence and creativity
by reference to structure of the labour market (e.g. from required
unskilled worker – helper- operative- skilled worker – su- degree of complication and predictability of the context
pervisor- trainer- specialist- manager levels), by refer-
role(s) taken in relation to colleagues/fellow workers
ence to the structure of Education and Training system
(secondary-post secondary-higher education levels) , or
Typical outcomes of learning at the level – i.e.
both. In the latter case, national arrangements state the
someone with a qualification at this level should be
correspondence between of learning achievements and
able to … capable of …
occupations. Level descriptors for national qualifications
frameworks have been derived from existing curricular But
requirements, training regulations and other inputs. They
a. a qualification need not match all aspects of the
are really a combination of input and output-based ap-
level descriptors
proach. The learning outcomes approach adds an im-
portant element to the “old picture”, making it possible b. some aspects of the qualification may be at higher
to have a fresh look at the ordering and valuing of qualifi- or lower levels
cations–not on the basis of the type of institution but on
the basis of what a learner is expected to know, be able

Figure 6: Qualifications take their roots in the labour market

NQF LEVELS

Education and training Work roles

entry levels and exit and profiles
qualifications

FROM CONCEPTS TO IMPLEMENTATION

20 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Level descriptors have to apply to all the types of Strategically, level descriptors can support:
qualification in the framework: highly academic, the creation of linkages between higher education
general, pre-vocational, workplace, etc and VET

Operationally, level descriptors can be used: strengthening links between IVET/CVET and the la-
bour market
in designing qualifications
making the system more accessible
to allocate learning programmes and qualifications
to levels in the QF establishing systems to validate non-formal prior
learning
in validating qualifications and programmes
establishing systems to give credit, exemptions, etc.
in communicating with learners and other users
about qualifications actions to improve curricula (teaching and learning)

to map progression routes within and across the the recruitment and workforce development by em-
education and training sectors ployers

to set entry requirements/recommendations for pro- a shared and systematic approach to the quality of
grammes qualifications and certificates

Level descriptors need to be sufficiently detailed and Level descriptors

multifaceted to capture the complexities of the national
Most sets of level descriptors refer to knowledge, skills,
qualification system and to be of relevance to the labour
applications, contexts and responsibilities but under dif-
market; they must be able to distinguish systematically
ferent domain headings and with different linkages. The
between levels and to reflect how knowledge, skills and
most common domains are Knowledge, Skills and Com-
competences increase in breadth, depth and complexity
petence (influence of the EQF).
as learners progress. And they must (increasingly) act as
a reference point for international comparison. In the table below, a few examples of descriptors:

Table 3: Descriptors in selected countries

EQF
Factual and theoretical knowledge
Cognitive and practical skills
- logical, intuitive and creative thinking
- manual dexterity and the use of methods, materials, tools and instruments
Responsibility and autonomy (‘competence’)
Some countries add ‘attitudes’, usually relating to work roles.
IRELAND
Knowledge
breadth of knowledge/kind of knowledge know-how & skill range/know-how & skill selectivity
Competence
Context/role/learning to learn/insight
SCOTLAND
Knowledge and understanding
Practice: applied knowledge, skills and understanding
Generic cognitive skills
Communication, ICT and Numeracy skills
Autonomy, accountability and working with others
GERMANY
Professional competence – knowledge
Professional competence – skills
Personal competence – social competence
Personal competence – self-competence

21
 ASEAN FRAMEWORK
“Level descriptors based on the notion of competence” which includes:
• Cognitive competence (the use of theory and concepts)
• Functional competence (skills or know-how)
• Personal competence (knowing how to conduct oneself)
• Ethical competence (personal and professional values).

The level descriptors include three domains:

• Knowledge and skills
• Application
• Responsibility and accountability
INDIA
Process (a general summary of the other four domains)
Professional knowledge,
Professional skill,
Core skill, and
Responsibility.

3. How Levels can be NSQF LEVEL 2

Explained Summary
The Case of India - NSQF Levels by
Work at level 2 will also be routine and repetitive and
Level Summary and Examples tasks will be carried out under close supervision. The
individuals will not be expected to deal independently
NSQF LEVEL 1 with variables which affect the carrying out of the work.
People carrying out these work roles may be described
Summary
as ‘assistants’ and the range of tasks they carry out will
This is the most basic level of employment in the frame- be limited.
work.
Individuals employed to carry out these job roles will nor-
Work at level 1 will be routine, repetitive, and focused mally be expected to be able to read and write, add and
on limited tasks carried out under close supervision. subtract. Their work may involve taking and passing on
People carrying out these job roles may be described messages.
as ‘helpers’.
They may also be expected to have some previous ex-
Individuals employed to carry out these job roles may perience, knowledge and skills in the occupation. When
be expected to be able to read, write, add and subtract, employed, they will be instructed in their tasks and ex-
but will not normally be required to have any previous pected to acquire the practical skills necessary to assist
knowledge or skills relating to the work.2 skilled workers and/or give a limited service to custom-
ers. They will learn about, and use, the materials, tools
When employed, they will be instructed in their tasks and and applications required to carry out basic tasks in an
expected to learn and use the common terminology of the occupation. They may have to select the appropriate
trade and acquire the basic skills necessary for the work. materials, tools and/or applications to carry out tasks.

Job holders at this level will be expected to carry out the They will be expected to understand what constitutes
tasks they are given safely and securely and to use hy- quality in their job role and distinguish between good and
gienic and environmentally friendly practices. This means bad quality in the context of the tasks they are given.
that they will be expected to take some responsibility for Job holders at this level will be expected to carry out the
their own health and safety and that of fellow workers. tasks they are given safely and securely and to use hy-
gienic and environmentally friendly practices. This means
In working with others, they will be expected to respect
that they will be expected to take some responsibility for
the different social and religious backgrounds of their fel-
their own health and safety and that of fellow workers
low workers.
and, where appropriate, customers.
2 In practice many workers at this level will have limited literacy and NOS and
qualifications at this levels should reflect this – e.g. in relation to assessment.

FROM CONCEPTS TO IMPLEMENTATION

22 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
In working with others, they will be expected to respect Individuals employed to carry out these jobs will be ex-
the different social and religious backgrounds of their fel- pected to be able to communicate clearly in speech and
low workers, but their contribution to team work may be writing and may be required to use arithmetic and alge-
limited. braic processes. They will be expected to have previous
knowledge and skills in the occupation in which they are
NSQF LEVEL 3 employed, to appreciate the nature of the occupation
and to understand and apply the rules which govern
Summary good practice. They will be able to make choices about
the best way to carry out routine jobs where the choices
Work at level 3 will be routine and predictable. Job hold-
are clear.
ers will be responsible for carrying out a limited range of
jobs under close supervision. Their work may require the They will be expected to understand what constitutes
completion of a number of related tasks. People carrying quality in the occupation and will distinguish between
out these job roles may be described as ‘partly-skilled good and bad quality in the context of their job roles.
workers’. Job holders at this level will be expected to carry out
their work safely and securely and take full account of
Individuals employed to carry out these job roles will be
the health and safety on colleagues and customers.
expected to be able to communicate clearly in speech
They will work hygienically and in ways which show an
and writing and may be required to use arithmetic and
understanding of environmental issues.
algebraic processes. They will be expected to have pre-
vious knowledge and skills in the occupation and should In working with others, they will be expected to conduct
know the basic facts, processes and principles applied themselves in ways which show a basic understanding of
in the trade for which they are qualified and be able to the social and political environment. They should be able
apply the basic skills of the trade to a limited range of to guide or lead teams on work within their capability.
straightforward jobs in the occupation.

They will be expected to understand what constitutes NSQF LEVEL 5

quality in their job role and more widely in the sector or
Summary
sub-sector and to distinguish between good and bad
quality in the context of the jobs they are given. Job hold- Work at level 5 will also be carried out in familiar situ-
ers at this level will be expected to carry out the jobs they ations, but also ones where problems may arise. Job
are given safely and securely. They will work hygienically holders will be able to make choices about the best
and in ways which show an understanding of environ- procedures to adopt to address problems where the
mental issues. This means that they will be expected to choices are clear.
take responsibility for their own health and safety and
Job holders will be responsible for the completion of
that of fellow workers and, where appropriate, custom-
their own work and expected to learn and improve their
ers and/or clients.
performance on the job. They will require well developed
In working with others, they will be expected to conduct practical and cognitive skills to complete their work.
themselves in ways which show a basic understanding They may also have some responsibility for others’ work
of the social environment. They should be able to make and learning. People carrying out these jobs may be de-
a good contribution to team work. scribed as ‘fully skilled workers’ or ‘supervisors’.

Individuals employed to carry out these jobs will be ex-

NSQF LEVEL 4 pected to be able to communicate clearly in speech and
Summary writing and may be required to apply mathematical pro-
cesses. They should also be able to collect and organ-
Work at level 4 will be carried out in familiar, predictable ise information to communicate about the work. They
and routine situations. Job holders will be responsible will solve problems by selecting and applying methods,
for carrying out a range of jobs, some of which will re- tools, materials and information.
quire them to make choices about the approaches they
adopt. They will be expected to learn and improve their They will be expected to have previous knowledge and
practice on the job. People carrying out these jobs may skills in the occupation, and to know and apply facts, prin-
be described as ‘skilled workers’. ciples, processes and general concepts in the occupation.

23
They will be expected to understand what constitutes NSQF LEVEL 7
quality in the occupation and will distinguish between
good and bad quality in the context of their work. They Summary
will be expected to operate hygienically and in ways
Work at level 7 will take place in contexts which combine
which show an understanding of environmental issues.
the routine and the non-routine and are subject to varia-
They will take account of health and safety issues as they
tions. Job holders will carry out a broad range of work
affect the work they carry out or supervise.
which require wide-ranging specialised theoretical and
In working with others, they will be expected to conduct practical skills.
themselves in ways which show an understanding of the
Job holders will be responsible for the output and devel-
social and political environment.
opment of a work group within and organisation. People
carrying out these job roles are likely to be graduates. They
NSQF LEVEL 6 may be described as ‘managers’ or ‘senior technicians’.

Summary Individuals employed to carry out these job roles will be

expected to be able to communicate clearly in speech
Work at level 6 will require the use of both standard and
and writing and are likely to be required to carry out
non-standard practices. Job holders will carry out a
mathematical calculations as part of their work. They
broad range of work which will require a wide range of
should also be skilful in collecting and organising infor-
specialised technical skills backed by clear factual and
mation to communicate logically about the work.
theoretical knowledge.
They will be expected to have wide-ranging factual and
Job holders will be responsible for the completion of
theoretical knowledge of practice within the occupation,
their own work and expected to learn and improve their
and a wide range of specialised practical and cognitive
performance on the job. They are likely to have full re-
skills. They will be able to generate solutions to problems
sponsibility for others’ work and learning. People carry-
which arise in their work.
ing out these jobs may be described as ‘master techni-
cians’ and ‘trainers’. They will be expected to understand what constitutes
quality in the occupation and distinguish between good
Individuals employed to carry out these job roles will be
and bad quality in all aspects of their work. They will be
expected to be able to communicate clearly in speech
expected to work in ways which show a good under-
and writing and may be required to carry out mathemati-
standing of environmental issues. They will take account
cal calculations. They should also be able to collect data,
of health and safety issues as they affect the work they
organise information, and communicate logically about
carry out and manage.
the work. They will solve problems by selecting and ap-
plying methods, tools, materials and information. In working with others, they will be expected to conduct
themselves in ways which show a good understanding
They will be expected to have broad factual and theoreti-
of the social and political environment.
cal knowledge applying to practice within the occupa-
tion, and a range of practical and cognitive skills. They
will be able to generate solutions to problems which NSQF LEVEL 8
arise in their practice.
Summary
They will be expected to understand what constitutes
Job holders who are qualified at level 8 will normally be
quality in the occupation and to distinguish between
responsible for managing the work of a team and devel-
good and bad quality in the context of all aspects of their
oping the team. The work will involve dealing with unpre-
work. They will be expected to work in ways which show
dictable circumstances affecting the work.
an understanding of environmental issues. They will take
account of health and safety issues as they affect the Their work will require the use of comprehensive knowl-
work they carry out or manage. edge and understanding of the occupational field and a
commitment to self-development.
In working with others, they will be expected to conduct
themselves in ways which show an understanding of the They will normally need an ability to develop creative
social and political environment. solutions to problems requiring abstract thought. They
will be required to show intellectual independence and

FROM CONCEPTS TO IMPLEMENTATION

24 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
a rigorous analytical ability. They will need to be good having completed a learning process.
communicators.
Cedefop’s 2009 publication on learning outcomes
showed a geographical difference and an institutional
NSQF LEVEL 9 difference in the actual use of learning outcomes. Our
Summary (ongoing) study 2013-2015 demonstrates that the shift
to learning outcomes is now gathering speed in nation-
Job holders who are qualified at level 9 will normally be al qualifications frameworks, for curricula and to orient
responsible for complex decision-making in unpredict- teaching and training and for assessment.
able contexts.
The learning outcomes principle is – explicitly since 2004
They will have to exercise senior responsibility in an or- – systematically promoted in the EU policy agenda for
ganisation and show mastery of the issues in the occu- education, training and employment. It can be seen as
pation and the ability to innovate. the ‘glue’ binding together a wide range of initiatives
taken during recent years, such as Europass, the EQF,
Their work will require the use of advanced knowledge
ECTS, ECVET and ESCO… While the specific term may
and skill. They may make contributions to knowledge in
not have been used, learning outcomes are not new.
their field through research.
What is new, however, is the high priority given to learn-
ing outcomes at European, national and local level.
NSQF LEVEL 10
At policy level, learning outcomes serve the purpose
Summary of transparency, of increased relevance and quality
of qualifications, of accountability and it is seen as
Job holders who are qualified at level 10 will normally be
a way to open up to non-formal and informal learn-
responsible for strategic decision-making. The context
ing. But there are concerns: are learning outcomes
of their work will be complex and unpredictable.
a policy hype? Are they monitored and reviewed?
They are likely to be responsible for an organisation or a Are they not a way to impose objectives top down,
significant division of an organisation. They will have to reducing local and institutional autonomy? Are they
provide leadership. not mainly unnecessary bureaucracy?

Their work will require highly specialised knowledge and At the level of practitioners, LO sets clear targets for
problem-solving skills. They may make original contribu- the learner which is a way to motivates to learning
tions to knowledge in their field through research, schol- and to encourages flexible learning pathways: they
arship or innovative practice. are a guiding tool for teachers and for assessors.
But there are concerns: Do we risk to reduce the
The strongest evidence for allocating a qualification to a scope and richness of learning? Do we undermine
level of the NSQF will be direct evidence of a match be- the vision of open and active learning? Do we de-
tween the outcomes of the qualification and the descrip- crease rather than increase transparency.
tor for one NSQF level. Where a qualification is made up
of clearly distinguished parts or components (such as A Cedefop study 2014 – addressed the writing and prac-
modules, units or courses), the individual parts of the tical application of learning outcomes. It was an analysis
qualification can be at different levels. This means that it of learning outcomes based VET standards and Higher
will be necessary to use indirect evidence and weighting. Education study programmes in 10 countries and of
guidelines for writing learning outcomes in VET and HE
in the 10 countries. The study founds that the definition
4. Skype Session of learning outcomes varies between institutions, educa-
The Writing of Learning tion and training sectors and countries: the approach to
Outcomes: main Challenges learning outcomes in VET seems to be more harmonized
than in HE.
and Opportunities (Jens
Bjornavold) The study also found that the structuring of learning out-
comes descriptions vary, both as regards the horizontal
A learning outcome is a statement of what a learner is description of domains of learning and as regards the
expected to know, be able to do and understand after vertical dimension, expressing the increasing complexity

25
 of learning. There is no common format for describing Can learning outcomes facilitate recognition/validation of
learning outcomes, which reduces comparability. The prior learning?
level of detail (granularity) varies dramatically, reducing
A 2012 EU Recommendation stresses that validation of
transparency and comparability.
non formal learning should build on the same learning
Learning outcomes must be fit for purpose: The pur- outcomes based standards as those used for traditional
pose of the LO description will influence the level of detail qualifications.
(granularity) of the description, moving from the general
How can LO descriptions be written to capture the
to the more specific that is from full qualifications/pro-
diversity of non-formal and informal learning? How
grammes to programme or qualification units and to as-
can we balance generality and specificity?
sessment criteria. All have to use ACTION VERBS, iden-
tify the relevant OBJECT and describe the CONTEXT of How can LO descriptions be written to capture the
the learning process. relevant learning domains? How can we balance re-
quirements to, for example, knowledge and skills?
Figure 7: Writing learning outcomes – the essential role How can overview and a holistic approach be ex-
of action verbs pressed?

Create, estimate, interpret, How can performance requirements and criteria

justify, rearrange, reconstruct be written in a way which appreciates non-stan-
dardised learning?
Apply, choose, distinguish, Can learning outcomes facilitate validation/recognition of
explain, employ, Illustrate,
Action verbs practise, produce, use prior learning?
are used to
express growing The experiences from writing assessment criteria are rel-
complexity and Memorize, recall, repeat. evant. What is key is the lack of ambiguity, the reflected
help to distinguish reproduce, duplicate
choice of action verbs (Brief statements - one action verb)
between learning
domains and the focus on observable learning and explicit mani-
festations of learning. There is a risk that statements be-
come too detailed and prescriptive and not open to non-
standardised learning and a risk that ‘observable’ learning
be defined too narrowly – failing to capture the richness
and diversity of non-formal and informal learning?

FURTHER READINGS

• CEDEFOP, 2009 The shift to learning outcomes - Policies and practices in Europe
• Méhaut, P. and Winch, C. 2012. The European qualifications framework: skills, competences or knowledge? European
Educational Research Journal, Vol. 11, No 3. http://dx.doi.org/10.2304/eerj.2012 November 3.369 (Accessed 26 November
2012.)
• Raffe, D. 2009a. National qualifications frameworks in Ireland and Scotland: a comparative analysis. Presentation at
European Conference on Educational Research, Vienna, 28–30 September 2009. www.ces.ed.ac.uk/PDF%20 Files/NQF_
ECER_2009.pdf (Accessed 26 November 2012.)
• —. 2012b. What is the evidence for the impact of national qualifications frameworks? Comparative Education, Vol. 49, No.
2, pp. 143¬–62. www.tandfonline.com/doi/full/10.1080/03050068.2012.686260 (Accessed 26 November 2012.)
• Strathdee, R. 2011. The implementation and impact of the New Zealand national qualifications framework. Journal of
Education and Work, Vol. 24, No. 3–4, pp. 233–58.
• Tuck, R. 2007. An Introductory Guide to National Qualifications Frameworks: Conceptual and Practical Issues for Policy-
Makers. Geneva, ILO.
• Young, M. 2011. The educational implications of introducing an NQF for developing countries. Journal of Education and
Work, Vol. 24, No. 3–4, pp. 223–32.

FROM CONCEPTS TO IMPLEMENTATION

26 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
MODULE 3
GOVERNANCE
OF NATIONAL
QUALIFICATIONS
FRAMEWORK

1. LEVELS AND TYPES OF GOVERNANCE 28

2. CHANGING LEGAL ARRANGEMENTS 30
3. Skype Session: THE FRENCH REGISTER OF QUALIFICATIONS– BRIGITTE BOUQUET (CNCP)* 33

* National Committee For Professional Certification, Its mission is among others to list the offer of vocational certifications (national register
of vocational certifications), to inform people and companies about the certifications listed in the national register and the certifications
recognized in the member states of the European Union and to check the coherence, complementarity and renewal of diplomas and
qualification documents, together with their adaptation to evolution in qualifications and work organisation).
27
1. Implementation of - ensuring that the operational principles of the
framework are appropriate
National Qualifications Ensure that the operational principles of the frame-
Framework and models work are kept to

of governance Develop and maintain national and international

links
All countries implementing an NQF have faced prob-
lems. The issue of governance of the NQF is one of the
Operational level: Governance includes maintaining
most difficult areas to address because many stakehold-
an overview of the mechanisms required to meet the
ers are involved. See for example in Box 4, the list of
requirements for running the NQF and to keep these
stakeholders mentioned in the 2013 NSQF Notification.
in balance with the needs of government, society, the
Box 4: Stakeholders involved in the NSQF in India as economy and corporate and individual stakeholders.
mentioned in the 2013 Notification
The NQF Operational management functions are to

• Government Support change and build capacity

• National Skills Qualification Committee encourage the development and use of outcome-
based specifications for all qualifications
• National Skills Development Agency
support providers to modularise programmes
• Central Ministries
support practical and quality assured assessment
• State Skill Development Missions
support changes in record-keeping and certification
• Regulatory bodies (e.g., UGC, AICTE, NCVT, Technical
and School Boards) support the use of credit
• Sector Skills Councils identify and promote existing and new pathways
• Industry The governance of NQF can be centralised (Ireland),
• Institutions providing education and training co-ordinated (South Africa) or devolved (Scotland)

• State governments The implementation of NQF often creates a shift in the

• Public sector enterprises balance of power. Stakeholders from the provision side
have to surrender some control over the content of quali-
• Industry
fications and how they can be obtained, while stakehold-
• Learners ers from the world of work gain influence. The creation of
• Other stakeholders NQF brings new issues: how to balance strong central
controls and fast local responsiveness? How to balance
Governance concerns several effective risk management and the enduring need for in-
levels. novation. It also brings the question of the costs of com-
pliance with the value it brings.
Strategic level: Governance is the process/structure
which leads to the establishment of policies for the im- Dialogue and coordination are necessary over the
plementation and development of the NQF, and ensures following questions of governance:
the continuous monitoring of their proper implementa- Ministry or independent agency?
tion by the relevant agencies.
Coordination and management – together or sepa-
So the NQF Strategic Responsibilities and & High- rate?
level Co-ordination functions are to: One ministry/agency or multiple ministries/agen-
Ensure that the framework meets its stated aims cies?

Undertake strategic planning How to maintain transparency and avoid chicanery

Carry out monitoring and evaluation Rights and responsibilities of stakeholders?

- ensuring that the framework structure is suit- Maintain quality and avoid bureaucracy?
able

FROM CONCEPTS TO IMPLEMENTATION

28 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Three models of Organisational Structure

Centralised Structure - IRELAND

QUALITY AND QUALIFICATIONS IRELAND (QQI)

Incorporates previous operational bodies: Ministry of Education and Skills
- Higher and Further Education and Training
Awards Councils
- Universities Quality Board

Expert Committees of the QQI Board

State Examinations Commission

Statutory & Voluntary Scrutiny

Statutory & Voluntary Scrutiny

Co-ordinated Structure – SOUTH AFRICA

Ministry of Higher
Co-Ordinating Authority
Education & Training

NQF Forum & CEO Group National Consultative Processes

3 SECTORAL COUNCILS
• General & Further Edn & Trng Sectoral Consultative Processes
• Higher Education
• Trades & Occupations

Statutory & Voluntary Scrutiny

Devolved Structure - SCOTLAND

Co-Ordinating Authority Ministry for Education & Lifelong Learning

NQF Forum & CEO Group SCQF QUALITY COMMITTEE

Independent Experts

SECTORAL BODIES
• The Quality Assurance Agency (HE) SCQF FORUM
• Universities Scotland (Stakeholders)
• Colleges Scotland
• The Scottish Qualif’ns Authority

Statutory & Voluntary Scrutiny

29
Many stakeholders need to work together in the build- Union and Yougoslavia, qualifications were an integral
ing of a framework. With global development and de- part of the labour market regulatory system, determin-
mographic changes, lifelong learning systems are ing the jobs people were assigned to, as well as sala-
emerging, opening up what had been virtually states ries, pensions and opportunities for career development
monopoly on qualifications. There are more institutions, and mobility. These regulated labour market functions
and a greater range of providers have emerged such as of qualifications are again becoming an issue in current
professional bodies, municipalities, private companies, qualification system reforms, with the introduction of la-
employment services, non-governmental organisations, bour market specific qualifications to certify competent
private schools and international providers, offering dif- workers. In Estonia, more than 15 per cent of the labor
ferent kinds of qualifications. This makes it more impor- force has already obtained professional qualifications
tant to regulate that are offered by different bodies to dif- based on occupational standards by the time they leave
ferent target groups, in order to reduce the proliferation the education system. In Turkey, certification of unquali-
of qualifications, and to protect the interest of citizens fied workers in more than 100 occupations is currently
and employers by strengthening confidence in the value becoming compulsory.
of qualifications.
In practice, legal arrangements
2. Changing Institutional start from many angles
Arrangements They are often linked with making a specific body re-
sponsible for the implementation. The first relevant piece
To be successful, qualification-system reform require
of legislation in England was the act to establish the Na-
that all stakeholders are mobilized and involved and take
tional Council for Vocational Qualifications in 1986, al-
ownership of the changes. It is unlikely that all changes
though it took until 2000 before the NQF became a real-
happen voluntarily and though mutual agreement. Legis-
ity. The Education Act of 1989 in New Zealand defined
lation is often needed to create new conditions, stimulate
the responsibilities of the New Zealand Qualifications Au-
new developments and regulate roles and responsibili-
thority. The NQF in South Africa started with the South
ties, in particular in market-oriented or state-led systems
African Qualifications Authority Act (No. 58, 1995). In
where governance of such systems is not determined by
France, the Law on Social Modernization (2002) created
such dialogue.
the National Commission for Professional Certification
Legal traditions certainly influence how qualifications are under the authority of the ministry responsible for voca-
regulated. In the English speaking world, where common tional education, which established the NQF through a
law has been built incrementally around individual cases, national register (RNCP). In Montenegro, the Law on Na-
governments have been less inclined to legislate pre- tional Vocational Qualifications (2008) preceded the Law
scribe) what qualifications should look like. In countries on the NQF in 2010. In Turkey, a Law on the Vocational
that have a civil code, the tradition of state regulation Qualifications Authority (VQA) (5544/2006) was the start,
based on logical principles has facilitated the creation although only in the Amendment Law on VQA of 2011
of ruling principles for qualification rather than letting was there reference to developing the NQF. In Ukraine, a
qualification systems evolve around individual cases government decree on the NQF (2011) started the legis-
(Merryman, 1985). In Central European countries such lative process, as it did in Armenia (2011), while, in Croa-
as Germany and Austria, where social partners play an tia, a Law on the Croatian Qualifications Framework was
important role in setting the conditions for qualifications, adopted (2013). These first acts often set the objectives,
and the entitlements that can be obtained from holding indicate the NQF levels and reference special institutions
a qualifications, qualification standards for the dual vo- that may have a role in supporting the implementation
cational education system are compulsory and have the of the NQF.
power of law. Civil effect, the legal entitlements qualifica-
Legislation is important in many countries as the official
tion can provide once they are recognized as equiva-
authorisation to begin implementation of the framework.
lent to existing ones, is an important issue for countries
However, what really counts is not these single acts, but
where qualifications are subject to government regula-
how the NQF is starting to filter through in all relevant
tion.
legislation. Without reference to the NQF in other legisla-
Qualifications are not only important as formalized out- tion, its impact is limited. The NQF decree in Ukraine only
comes of education and training systems. In the Soviet sets the general objectives and the ten-level framework.

FROM CONCEPTS TO IMPLEMENTATION

30 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
In 2012, however, this was followed by legislation on the This division of coordinating, quality assurance and de-
validation of non-formal and informal learning, which was velopmental functions seems very logical. The coordi-
developed further in 2013 and 2014. A first step to iden- nating function is about bringing stakeholders together
tifying the qualifications to be part of the NQF was made on a common platform to agree how to develop and
in 2014 with a Law on Higher Education. Current discus- implement the framework. It is therefore separate from
sions on a new legislation on education (the Previous law a more technical ‘controlling’ quality-assurance function,
dates back to 1991) and on vocational education should ensuring the different actors follow the rules of the game.
complete this. The development of qualifications is a responsibility that
is best delegated to those actors that have an interest
Identification process in ensuring that these qualifications meet the identi-
When the NQF features in important legal documents fied needs of the future holders. Analysis of the formal
such as a new law on education questions as to its sta- functions of eighteen especially established institutions
tus and wider implications are raised. The NQF can affect that play a role in implementing qualifications systems
labour law as well as education legislation. In Kazakh- reform in a number of European Union member states
stan, the NQF has gained particular importance since it and neighbouring transition countries shows that these
has been adopted as a tool in the labour code. Another arrangements are complex.
indicator of the wider legal impact of the NQF can be the
Most of the institutions analyzed were established rela-
timeframe within which the legislation is reviewed and
tively recently. Eleven of the eighteen institutions were
improved. In Kazakhstan and Georgia, the original acts
established after 2010, although three of these are build-
to adopt NQFs are already under revision, though only a
ing on the experience of similar agencies. Only three
short time has passed since their introduction.
institutions were established before 2000 (during the
One area that is particularly important in legislation is the late 1990s). The institutions concerned are either pri-
institutional arrangements and the roles and responsi- vate initiatives (such as NARK, the National Agency for
bilities of stakeholders. Existing institutional capacities Qualifications Development of the Russian Union of In-
are often insufficient to put the ambitions of the national dustrialists and Entrepreneurs), established as tripartite
qualifications system reform policies into practice. This institutions (such As MYK, the vocational qualifications
applies to the coordination processes, to ensuring co- authority in Turkey) or governmental agencies (such as
herence in approaches, and to quality-assuring assess- ANC, the Romanian qualifications authority). Govern-
ment of qualifications, but, most of all, it applies to the mental executive agencies are in the majority.
lack of capacity to develop sufficient new occupational
Table 4 provides a comprehensive list of the functions
standards, qualifications and training programmes to in-
and task of these agencies.1
fluence delivery. These deficiencies can mean that NQFs
remain empty promises. Dedicated institutions with None of them carries out all the functions listed, but sev-
competent staff can speed up implementation. en agencies clearly deal with supporting the provision of
education and training as well as managing the qualifi-
Different institutions can steer the development of new
cations systems. Specialized bodies performing public
qualifications and the review of existing ones. Many
duties in the space between central government and the
countries have decided to develop sector skill coun-
implementing institutions are often more susceptible to
cils (SSCs) to support the identification of sectoral skill
change than ministries. This is also true of qualifications
needs, the development of occupational standards,
agencies or authorities. All the institutions involved in
developing and reviewing qualifications, the assess-
the first qualifications frameworks have undergone sig-
ment of candidates, the identification of companies for
nificant changes; indeed, with the exception of the SQA
work-based learning, funding arrangements and other
in Scotland, all of them have been restructured and, in
aspects. A number of countries in Eastern Europe and
many cases, replaced by completely new organisations.
Central Asia (the Russian Federation, Armenia, Kazakh-
In England, NCVQ was replaced by QCA in 1997, which
stan and Kyrgyzstan) have established sectoral qualifi-
in turn was replaced by Ofqual in 2010. In Australia,
cations frameworks under their NQFs, to identify occu-
the AQF Council was created in 2008 and abolished in
pational standards and sector-specific qualifications. In
Kazakhstan, each of these sectoral frameworks is legally 1 Albania (AK-AKP), Belgium Flanders (AKOV), Croatia (ASOO), Georgia
(NC EQE), Ireland (QQI), Kosovo (AKK-KS), England (OfQUAL), Estonia
established under the coordination of the line ministry (Kustekoda), Netherlands (SBB), Portugal (ANQEP), Russian Federation
dealing with that sector. (NARK), Scotland (SCQF, Partnership,SQA), Slovenia (CPI), Turkey (MYK),
France (CNCP), Romania (ANC), Ukraine (IPQ)

31
Table 4: Functions and tasks of qualifications agencies and authorities (Source ETF)

Functions Tasks
Further NQF Maintain NQF Structures
Development
Prepare Policy Decisions

Link NQF to Occupations in the Labour Market

Facilitate Cooperation & Formulate Agreed Positions
Coordination
Facilitate Debate

Address Transversal Competencies

Work with Regional and Sectoral Bodies

Identify Needs & Identify New Occupations
Prioritise
Organise Development/ Review of Occupational Standards

Identify Qualifications on Offer that could Enter the Qualifications Framework

Address Proliferation/ Overlaps of Qualifications

Invite Stakeholders to Develop Specific Standards /Qualifications

Communicate, Inform & NQF Info Dissemination at Home and Abroad & Website
Advocate
Use of Common Language

Navigation Tools
International Positioning Align with Qualifications Framework of European Higher Education Area (EHEA) and European Qualifications
Framework (EQF)

Act as Contact Point (EQF, EHEA, EUROPASS, National Academic Recognition Information Centre (NARIC))

Compare International Qualifications

Manage Registers/ Manage NQF Register of Qualifications, Units, Occupational Standards, Awarding Bodies, Assessment
Databases Centres, Experts, Graduates, Educational Programmes, Training Providers, Training Companies, Teachers
and Trainers, Students, Issued Certificates in order to Authenticate
Assistance, Capacity Support Sector Skills Councils/ Professional Bodies /Awarding Bodies with Standards & Qualifications
Building & Guidance Development

Guidance for Qualification Types, for Validation of Non-Formal and Informal Learning & for Training
Programmes
Assure & Enhance Accredit Awarding Bodies, Standards, Qualifications, Learners
Quality
Enhance Coherence and Relevance of Qualifications

Widen Access and Alternative Pathways

Enhance the Quality of Assessment/ Assessors/ Verifiers

Enhance the Quality of Providers

Monitor and Evaluate Different Actors

Research the What is the Impact and Effectiveness
Functioning System
Gather Systematic Feedback
Support Training Support Internal Quality Assurance Processes
Providers
Development of Curricula

Support Education and Training Provision

Training of Teachers and Trainers

FROM CONCEPTS TO IMPLEMENTATION

32 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
2014; in South Africa, after a review of the NQF, three the same value). Certifications recognised are registered
sub-frameworks were established under three qual- in the Répertoire National des Certifications Profes-
ity councils; while in Ireland the national qualifications sionnelles (RNCP) and classified:
authority, NQAI, and the awarding bodies, FETEC and
HETEC, merged into one organisation, QQI. by a 5 levels grid (Levels I, II, III, IV, V)
by learning domains (national nomenclature, linked
Conclusions with ISCO)

Legislation is often required to start NQF implementa- The certification have common features: standards
tion, but legislation is an unpredictable process, and is which are known and elaborated after the consultation
bound to change during implementation. of stakeholders, including the social partners. It is im-
portant that experts take part in the drafting of certifica-
In reality, the functions and tasks of these institutions
tions. It is compulsory that three types of stakeholders
vary and are difficult to predict. The functions and struc-
are involved: the public Authorities, the Social Partners
tures of these supporting bodies alter over time, de-
(employers) and the trade unions.
pending On the changing priorities for the implementa-
tion of the frameworks. Apart from enabling legislation What do we mean by qualifications? An individual is
and specialized institutions to support the implementa- considered as “qualified” when he or she has to show
tion of the qualifications frameworks, dialogue between (demonstrate) a set of knowledge, know-how and abili-
stakeholders remains one of the most important factors ties giving the insurance that he or she is able to achieve
in the implementation of frameworks. Where an active tasks and activities (expected in the “standard of activ-
dialogue exists involving representatives from the world ites”) by combining the three dimension of competences
of work and from providers, co-ownership of proposed (K,KH,A) in a large professional context with a level of
reforms and a shared vision can empower stakehold- responsibility and autonomy previously defined. Certifi-
ers to act without overly prescriptive guidance from the cation implies (i) a procedure to check and validate that
central level, reducing bureaucracy and strengthening learning outcomes are in accordance with the standards,
impact on learners and in the labour market. (ii) An authority attesting that the procedure is conform
to what was expected, and awarding quality assurance
is othe certification to the applicant and (iii) A standard
3. Skype Session describing the assessed learning outcomes.
On the French Register
The CNCP in plenary commission is composed as fol-
of Qualifications (Brigitte lows:
Bouquet)
Figure 8: Composition of CNCP
Are registered in the French Register (RNCP):
President and
Qualifications and not training courses Rapporteur General (2)
Qualifications and not personal awards
No partial qualifications Qualified
Personalities (11) Representatives
So the Register is not a quality assurance tool for of the state (16)
the courses. There are other ways to check the QA of
training courses, such as International labels (bachelors,
MBAs...) also exist. Some training courses are devel-
Regions (3)
opped after international norms (ISO...). What is regis-
tered is the result of some training courses expressed
in terms of learning outcomes and based on standards Chambers (3)
which can allow the recognition of prior learning. That Social Partners (10)
means Vocational certification after initial learning, also
continuing learning or after professional and personal ex-
perience through the VAE (validation of formal and infor-
mal learning-compulsory. It is the same certification, with

33
Members : Registration on demand
Representatives of the state (16) the ministry in charge of HE
belongs to the committee) For non-public certification, if social partners were not
consulted, the CNCP plays this role and becomes an
Social partners (5 employes, 5 employees)
accrediting body. The certification is analysed by a rap-
Economic Chambers (3)
porteur whose report is presented to an hoc commission
Regions (3) (half social partners-half state - before the advice of the
Experts (11) (do not vote) plenary commission). The report is about the following:
Chairman
What is the link between the certifications and the
General reporter and his or her assistant (do not vote) labour market
(A vice chairman chosen by the representatives of the employers,
another by the employees); can replace the chairman ) Why is it created?

There are 3 kinds of certifications Is it really fitted with the needs of the sector?

1) Vocational diplomas (degrees) and titles delivered Does it take into account the evolution of the certification
by public authorities “in behalf of the State”, under
Have possible former recommendations by the CNCP
the responsibility of the ministry – including all the
been taken into account?)
Higher education degrees from Universities
How is the certification quality-assured to keep the quali-
2) Vocational Qualification Certificates elaborated by
fication in line with the needs of the labour market?
economic sectors under the responsibility of social
partners: no level The certification is then presented to the “conseil de per-
fectionnement” (a commission of practionners and train-
3) Titles or certificates delivered by economic cham-
ers) for advice.
bers, public or private institutions in their own names
(ministry as well for example: Defense Ministry, min- The certification standards which all certifications must
istry of the Interior) meet concern:
Standards of activities
And two ways to allocate a certification to the Register Description of tasks and competencies associated
the registration “by law”, where there is no proto- to the activities
cols, only law and official texts . It concerns Diplo- Competences and tasks which will be evaluated
mas (or degrees) delivered by public authorities “in Standard and criteria of evaluation
behalf of the State” through different ministries in
What will be checked: grids for the evaluation,
charge of Education, Agriculture, Social affairs, Em-
sheets with the signature of applicants, report of
ployment, Youth and Sports, Health and Culture at
secondary and higher education levels, and elabo- Examination sessions…
rated by a ministry through a process that involves
social partners as well. The registration is done with-
out an instruction by the CNCP but the diploma was
checked and accredited by other officials authori-
ties, such as Commissions including social partners
were consulted.

FROM CONCEPTS TO IMPLEMENTATION

34 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Figure 9: The Registration of qualifications

PROCESS OF REGISTERING OF QUALIFICATION TO

THE FRENCH REGISTER
(Registration on request)

Regional Processing National Processing

Information and Guidance Information to the providers on the process

Orientation of the Registration request
Processing Body

Creation of the file by the Applying Provider

Drafting of the
qualification file
Regional Processing National Processing

Application to the CNCP Region • Relevant Ministry in the Vocational Field

Executive Concerned by certification or the Ministry of
Chief Vocational Education and Training
• CNCP with copy to the relevant Ministry

Processing Body:
Processing • Analyses the file
• Can ask for the expert advice or the state department
• Drafts the summary document of the file

Notification Coordination Committee

Regional Department of the Ministry of
Vocational Education and Training

Preparation of the CNCP Specialised Committee of the CNCP

Notification

Notification CNCP (as a whole)

Decision Ministry of Vocational Education and Training

Notification to the Official Gazette

35
Construction of FURTHER READINGS
qualifications ETF 2012, Qualifications Frameworks from concepts to
Quality of the standards, and especially of the assess- implementation, httep:www.etf.europa/webatt.nsf/o/
ment of competences is especially important to the Merryman J:H: 1985 The civil law tradition: an Introduc-
CNCP. If it is only a training course, without coherence tion to the legal system of western Europe and Latin
between all the elements, it is refused by the commis- America
sion. So the CNCP look at the analysis of statisitics co-
Geinert, W.D. Governance, Model of Training for Employ-
horts to check if they fit with the levels, with the kind of ment: a European perspective, Comparative and Interna-
jobs held, the salaries, whether the level of the job role tional Education, vol 5, N° 3, pp 251-60.
corresponds to the level of the qualification.
Raffe, D. Towards a dynamic model of national qualifica-
All certification in the Register must include validation of tion framework. S Allais, D. Raffe and Michael Young
(eds), Researching NQFs: sme conceptual issues, Em-
prior learning. The CNCP looks closely at the description
ployment Sector, Skills and Employability Department,
of the qualification and at the composition of the board International Labour Office, pp 23-42.
of examiners.
CEDEFOP, ETF, UNESCO and UIL, 2013, Global National
Qualifications Framework Inventory, prepared for ASEM
education ministers conference, Kuala Lumpur, 13-14
May 2013 (ASEMME 4)

FROM CONCEPTS TO IMPLEMENTATION

36 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
MODULE 4
THE EUROPEAN
QUALIFICATIONS
FRAMEWORK

1. TRENDS TOWARDS REGIONAL FRAMEWORKS 38

2. EUROPEAN QUALIFICATIONS FRAMEWORK; OVERVIEW 38
3. REFERENCING TO THE EUROPEAN QUALIFICATIONS FRAMEWORK 41
4. IRISH REFERENCING TO THE EUROPEAN QUALIFICATIONS REPORT 43
5. BUILDING ON THE REFERENCING PROCESS 44
6. Skype Session: THE EUROPEAN QUALIFICATION FRAMEWORK SCOTTISH EXPERIENCE
(AILEEN PONTON)* 45

* Chief Executive of the Scottish Credit Qualification Framework

37
1. The Trends Towards tional basis. The EQF is perhaps the best-known Trans-
national Qualifications Framework (“TQF”), or regional
Regional Frameworks framework, but not the only one, as illustrated by the list
in box 5:
In the EU Member States and in the European Neigh-
borhood, much of the impetus for developing national
Box 5: Transnational frameworks
frameworks has come from the European Qualifications
Framework (EQF) adopted by EU Member States in
- European Qualification Framework.
2008 and the Qualifications Framework for the European
Higher Education Area, part of the Bologna process, ad- - Qualification Framework for the Countries of the Gulf
Co-operation Council
opted in 2005. EU Member States and countries want-
- Southern African Development Community (SADC)
ing to join the Union see NQFs as a practicable way to
Framework
manage their diverse national qualifications systems
- The Caribbean Qualification Framework
and to link them to the EQF. Indeed, most ETF partner
countries have opted for an 8-level NQF, modelled on - The Southern Pacific Register
the EQF and based on learning outcomes. This applies - The Transnational Qualifications Framework of the Small
most strongly to those countries which are candidates or Sates of the Commonwealth
potential candidates to enter the EU but also applies to - The Association of South-East Asian Nations (ASEAN)
Qualifications Framework
those which will not be EU States.
- East African Community
The EQF also exercises a particular influence on other - South Asia Association for Regional Cooperation
regional or transnational frameworks. Regional initiatives (SAARC).
such as the Southern African Development Community
Framework, the Caribbean Qualifications Framework,
the Southern Pacific Register, the Transnational Qualifi-
cations Framework of the Small States of the Common-
2. European Qualification
wealth, the GCC initiative for a Qualifications Framework
Framework: Overview
for the Gulf Countries and the debate on the designated Strategic Context: Education and Training 2020 “Edu-
the ASEAN Qualifications Framework are influenced by cation and Training 2020” (ET 2020) is a new strategic
the EQF (a finding of the ETF study published in 2010, framework for European cooperation in education and
“Transnational Qualifications Frameworks”), and some training that builds on its predecessor, the “Education
are seeking to link to the EQF. In some cases, individual and Training 2010” (ET 2010) work programme. It pro-
countries are actively pursuing links with the EQF - New vides common strategic objectives for Member States,
Zealand, Australia, Canada and the United Arab Emir- including a set of principles for achieving these objec-
ates are examples. tives, as well as common working methods with priority
areas for each periodic work cycle.
The EQF is an example of a QF whose effect has been
to encourage (even if this was not intentional in its de- The EQF is unfolding in this strategic framework that pro-
sign) convergence of systems – many new-generation vides 4 common strategic objectives for Member States,
NQFs resemble each other. They often have 8 levels, including a set of principles, common working methods
are lifelong learning in scope and, fundamentally, based and priority areas:
on a foundation of levels descriptors written in learning
making lifelong learning and mobility a reality (linked
outcomes. Other TQFs more directly promote harmoni-
to the EQF)
sation, and in some, such as the Caribbean Qualifica-
tions Framework, common qualifications are developed. improving the quality and efficiency of education
We can probably expect greater convergence, partially and training
pushed by globalisation and closer international coop- promoting equity, social cohesion and active citizen-
eration. TQFs are both responses to globalisation and ship
themselves globalising instruments.
enhancing creativity and innovation, including entre-
As already mentioned, a rapidly emerging development preneurship
is the cooperation in many world regions to, in turn, link
these national frameworks to each other on a transna-

FROM CONCEPTS TO IMPLEMENTATION

38 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
The following EU benchmarks for 2020 have been set EHEA: European Higher Education Area
for education:
EQF: European Qualification Framework
At least 95% of children (from 4 to compulsory
school age) should participate in early childhood ECVET: European Credit in Vocational Education and
education; Training (See Chapter 5)
fewer than 15% of 15-year-olds should be under- ECTS: The European Credit Transfer and Accumulation
skilled in reading, mathematics and science; System (ECTS) is a tool that helps to design, describe,
the rate of early leavers from education and training and deliver study programmes and award higher edu-
aged 18-24 should be below 10%; cation qualifications. The use of ECTS, in conjunction
with outcomes-based qualifications frameworks, makes
at least 40% of people aged 30-34 should have
study programmes and qualifications more transparent
completed some form of higher education;
and facilitates the recognition of qualifications.
at least 15% of adults should participate in lifelong
learning; EQARF: European Higher Education Quality Assurance
Register
at least 20% of higher education graduates and 6%
of 18-34 year-olds with an initial vocational qualifica- EUROPASS: It includes five documents to make skills
tion should have spent some time studying or train- and qualifications clearly and easily understood in Eu-
ing abroad; rope:
the share of employed graduates (aged 20-34 with Two documents freely accessible, completed by
at least upper secondary education attainment and European citizens: the Curriculum Vitae and the
having left education 1-3 years ago) should be at Language passport (a self-assessment tool for lan-
least 82%. guage skills and qualifications).

Progress on these benchmarks is assessed in each EU Three documents issued by education and train-
country through a yearly country analysis, with the EU ing authorities: the Europass Mobility records the
also providing recommendations. Drawing on the con- knowledge and skills acquired in another European
clusions from the stocktaking, a 2015 Joint Report will country; the Certificate Supplement describes the
identify key priority areas and concrete issues for future knowledge and skills acquired by holders of voca-
work at the European level. tional education and training certificates; the Diplo-
ma Supplement describes the knowledge and skills
The EQF is one of several tools developed by the EC in acquired by holders of higher education degrees
the area of education and training to achieve these com- (see below).
mon goals, as represented in the figure below.
EQAVET: The European Quality Assurance Reference
Figure 10: Tools supporting the ET 20120 strategy Framework (EQAVET) is a reference instrument designed
to help EU countries promote and monitor the continu-
ous improvement of their vocational education and train-
ing systems on the basis of commonly agreed referenc-
EQF
es. The framework should not only contribute to quality
Referencing /
Self-certification improvement in VET but also, by building mutual trust
EHEA / Bologna
Framework between the VET systems, make it easier for a country
to accept and recognise the skills and competencies ac-
ECVET quired by learners in different countries and learning en-
vironments. EU countries use the framework to improve
EQARF their quality assurance systems in a way that involves all
relevant stakeholders. This includes:
ECTS setting up national reference points for quality assur-
Europass,
Recognition Diploma & ance;
Guidelines – Certificate actively participating in the relevant European-level
non-formal & Supplements
informal learning network;

39
 developing a national approach aimed at improv- EQF is in essence a common European reference frame-
ing quality assurance systems and making the best work to be used as a translation device to make qualifi-
possible use of the framework. cations more readable and understandable across differ-
ent countries and systems in Europe. Because Europe’s
EQAVET is a voluntary system to be used by public au-
education and training systems are so diverse, a shift
thorities and other bodies involved in quality assurance.
to learning outcomes is necessary to make comparison
Particularly relevant here, the European QA for VET in-
and cooperation possible. The levels are described in
cludes a 4-phase cycle - planning, implementation, as-
terms of learning outcomes. In the EQF a learning out-
sessment and review, with quality criteria and indicative
come is defined as a statement of what a learner knows,
descriptors for each phase and common quantitative
understands and is able to do on completion of a learn-
and qualitative indicators for assessing targets, meth-
ing process. This means a change from a focus on inputs
ods, procedures and training results. EQAVET is foster-
“such as length of study” or types of provider institution.
ing a culture of quality improvement and responsibility at
all levels. The learning outcomes which define the reference levels
are specified in three “categories”: knowledge, skills and
The fundamental principles underpinning validation of
competence. This signals that qualifications capture a
learning are as follow:
broad scope of learning outcomes - in different combina-
Validation must be voluntary. tions. Qualifications may include theoretical knowledge,
The privacy of individuals should be respected. practical and technical skills, and social competences
where the ability to work with others will be crucial.
Equal access and fair treatment should be guaran-
teed. There are two principal aims to the EQF instrument:
Stakeholders should be involved in establishing sys- to promote citizens’ mobility between countries
tems for validation.
to facilitate their lifelong learning
Systems should contain mechanisms for guidance
and counselling of individuals. The EQF has 8 reference levels which “span the full scale
of qualifications from basic to advanced”. It “encom-
Systems should be underpinned by quality assur-
passes” general, vocational and academic education
ance.
and training PLUS it “addresses” qualifications acquired
The process, procedures and criteria for validation in initial and continuing education and training.
must be fair, transparent and underpinned by quality
assurance. The basic structure of the EQF descriptors is shown be-
low:
Systems should respect the legitimate interests of
stakeholders and seek balanced participation. Knowledge Skills Competence
The process of validation must be impartial and Factual Cognitive Autonomy
avoid conflicts of interest. Theoretical Practical Responsibility

The professional competences of those who carry

Level 1 may be thought of as receding workplace
out assessments must be assured.
competence

The work on the Framework started in 2004 at the be- Levels 1-8 are concerned with “work or study”
hest of the Member States. Initial proposals were devel- Levels 5-8 are “comparable” with the descriptors for
oped by an expert group. The 3 descriptors defining the Higher Education
8 levels of the EQF were developed between 2003 and
2008 in an extensive process building on research and
widespread consultation involving experts and policy
makers from all countries involved. The EQF was ad-
opted in 2008.

FROM CONCEPTS TO IMPLEMENTATION

40 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Table 5: Examples of EQF levels it can be understood and trusted by stakeholders in all
countries involved, the EQF Advisory Group has agreed
Lev. Knowledge skills competence on a set of criteria and procedures to guide this process.
1 basic general basic skills work or study under In addition to listing the 10 criteria/procedures agreed by
knowledge to carry out direct supervision in a
simple tasks structured context the EQF Advisory Group, this note contains a brief ex-
4 Factual and a range of exercise self-man- planatory part clarifying context and intentions. Further
theoretical cognitive and agement within the clarification will be brought by debate within the EQF Ad-
knowledge in practical skills guidelines of work visory Group, based on work by its thematic subgroups
broad contexts required to or study contexts
within a field of accomplish that are usually and on the experience gathered through the practice of
work or study tasks and solve predictable, but are referencing. The 10 criteria have been developed on the
problems in a subject to change +
field of work or supervise the routine basis of the criteria and processes used in the self-certi-
study work of others, taking fication process for the Qualifications Framework of the
some responsibility
for the evaluation and European Higher Education Area. They were adopted by
improvement of work the EQF Advisory group in 2009.
or study activities
3 advanced advanced manage complex In the recommendation, the referencing process con-
knowledge of a skills, dem- technical or profes- cerns the Member States and is limited to them. The
field of work or onstrating sional activities or
study, involv- mastery and projects, taking success of the EQF around the world has encouraged a
ing a critical innovation, responsibility for number of non-EU countries, if not to be part of the pro-
understanding required to decision-making in
of theories and solve complex unpredictable work cess of referencing, in any case to ask for an alignment of
principles and unpredict- or study contexts + their qualifications framework. Australia, Hong Kong and
able problems take responsibility
in a specialised for managing profes- New Zealand are in this case. These are countries with
field of work or sional development a mature framework with whom the technical dialogue is
study of individuals and not only possible but mutually enriching. But it will take a
groups.
new Recommendation to allow the referencing process
as such to be extended to non-EU countries.
An important function of learning outcomes-based level
descriptors is to increase the transparency of qualifica- Action by Member States (MS)
tions in the labour market. This was one of the objec-
tives pursued by the EQF, and is also visible in work In order to carry out the referencing process, the MS
at national level. It is possible to see the emphasis on had to establish National Coordination Points (NCP). The
transversal skills and competences and a holistic com- NCP would be responsible for relating national qualifi-
petence approach as linked to this need. It has been cations systems to the European Qualifications Frame-
argued that the EQF level descriptors have a number of work. The initial timeline was 2010 but it was extended.
weaknesses, reducing their ability to act as ‘mirror of the The NCP would use an approach based on learning out-
world of work’. Particular concern is expressed over the comes when defining and describing qualifications. The
ability of the descriptors to differentiate between levels MS would have to include EQF levels in all new qualifi-
of competence, pointing to inconsistencies in the use cation certificates, diplomas and “Europass” documents
of terms (how to express a degree of complexity, the and promote the validation of non-formal and informal
articulation of change and predictability/unpredictability, learning in accordance with the common European prin-
the role of context, etc.). ciples. In order to be referenced against the EQF, the
Member States need to present a referencing report to
the EQF Advisory dealing with the 10 criteria adopted in
3. EQF Referencing 2012.
Criteria and procedures
for referencing national Action by the Commission
qualifications levels to The EC has established a European Qualifications
the EQF Framework advisory group and promote close links be-
tween the European Qualifications Framework and exist-
The EQF Recommendation invites countries to refer their ing or future European systems for credit transfer and
national qualifications levels to the EQF. To ensure that accumulation in higher education and vocational educa-
the referencing process is designed in such a way that tion and training. The EC role is one of facilitating and

41
fostering action at EU level as it is not a decision making tors, it is still possible to identify linkages and compare
body in terms of education in training. levels. It is interesting to note that no country has argued
that the use of ‘responsibility’ and autonomy’ by the EQF
The EQF referencing process is a process by which na-
is irrelevant or wrong; the argument is rather that these
tional authorities responsible for qualifications systems,
categories are insufficient to reflect fully national and in-
in cooperation with stakeholders responsible for devel-
ternational reality.
oping and using qualifications, define the correspon-
dence between NQF and the EQF. The remit of the EQF The following figure shows how the European Qualifica-
Advisory Group is to assist the Commission in the imple- tions Framework is used as a reference system. The ref-
mentation of the EQF pooling the knowledge of the E&T erencing process created many rich discussions within
2010 countries, social partners and Commission and to and between countries on how relevant were the do-
follow up the Council recommendation on the validation mains (descriptors) for them.
of non formal and informal learning. There are 48 mem-
bers: Figure 11: EQF as reference system
28 representatives of EU Member states
12 pan-European organisations EQF Level 8
8 representatives of candidate countries / other
EQF Level 7
states
EQF Level 6
There are also criteria and procedures for self-certifica-

Qualifications
tion against the Qualifications Framework for the Euro-
Qualifications

Country B
EQF Level 5
Country A

pean Higher Education Area: (EHEA)

EQF Level 4
Overall, the referencing process has been running
smoothly, illustrating that countries have taken on board EQF Level 3
the key elements of the EQF descriptors. So, while the
EQF Level 2
German level descriptors, for example, are based on a
different concept of competence from the EQF descrip- EQF Level 1

Box 6: The debate on learning outcomes and European descriptors (Source CEDEFOP).

With regard to the learning outcomes, the EU countries application, predictability and complexity) has been added.
which have undergone the process of referencing can be The frameworks of Croatia, Greece, Malta, and Slovakia are
divided into 3 categories also closely aligned to the EQF descriptors, starting from the
three main pillars of knowledge, skills and competence and
Aligning with the EQF descriptors only introducing limited changes to the detailed descriptors.
“A first group of countries use the EQF descriptors directly For instance, Croatia has emphasised social skills besides
or align closely to them: Estonia, Austria and Portugal are cognitive and practical skills.
examples of this. Most of these countries have, however, Broadening of the EQF descriptors
prepared additional explanatory tables or guides with more
detailed level descriptors in order to be able to use the A second group of countries is influenced by the EQF de-
frameworks. Estonia has prepared detailed level descriptors scriptors, but has broaden and (partly) reprofiled the ‘skills’
for four sub-frameworks (higher education, general educa- and the ‘competence’ columns. Denmark, Finland, Iceland,
tion, vocational education and training and occupational Norway, Poland, Romania and Sweden are examples. All the
qualifications). Portugal has drafted guidelines (‘Under- countries in this category refer to ‘knowledge’ and ‘skills’
standing the NQF’) in which a more detailed and fine-tuned but have mostly renamed the third ‘competence’ column.
description of knowledge, skills, attitudes and context is The Netherlands refers to ‘responsibility and independence’,
provided. The approach is exemplified by ‘knowledge’ where Norway to ‘general competence’, Poland to ‘social compe-
a distinction is made between ‘depth of knowledge’17, tence’ and Romania to ‘transversal competences’. While
‘understanding and critical thinking’18. The skills and know- all these countries include autonomy and responsibility in
how domain is characterised by depth, breadth and purpose. their interpretation of ‘competence’, they generally tend to
The third column covers attitudes (defined as autonomy incorporate additional transversal skills and competences
and responsibility). The context column (defining context of like critical thinking, creativity and entrepreneurship,

FROM CONCEPTS TO IMPLEMENTATION

42 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 learning to learn, communication and cooperation. Many as crucial to the understanding of ‘competence’ and allows
countries, for instance Finland and Iceland, have made an differentiation between levels of competence. Méhaut and
effort to integrate the EU key competences19 in their level Winch (2012, p. 376)21 state that competence ‘…. entails
descriptors: the same is true of the Maltese and Norwegian a capacity for independent action that goes far beyond
NQFs. The inclusion of the term ‘evaluation’ in the Finnish positioning in a managerial hierarchy.’ It focuses on the
and Polish frameworks underlines that individuals must be ability of a person to use knowledge, skills, attitudes and
able to reflect on own knowledge, skills and competences other personal, social and/or methodological abilities – in a
and also be able to judge how to improve. In Latvia the self-directed way – in work and study situations and to deal
terms ‘analysis’, ‘synthesis’ and ‘assessment‘ point in the with complexity, unpredictability and change.
same direction. Poland uses the term ‘social competences’
instead of ‘competence’: this is understood as ‘identity’ The practical implication of this perspective is well illustrat-
(participation, responsibility, models of conduct), ‘coopera- ed by the German qualification framework where the term
tion’ (including team work, leadership, and conditions) and ‘Handlungskomptenz’ (action competence) is understood as
‘responsibility’ (which includes individual and team actions, ‘the ability and readiness of the individual to use knowledge,
consequences and evaluation). It is interesting to note that skills and personal, social and methodological competences
Ireland, having defined level descriptors prior to the EQF, and conduct himself or herself in a considered and individu-
uses four substrands to define competence: context, role, ally and socially responsible manner.’ (Bundesministeriums
learning to learn and insight. für Bildung und Forschung und der Kultusministerkonferenz,
2011, p. 3)22. Consequently, the German level descriptors
This redefinition of the competence descriptors can be inter- differentiate between professional and personal competence
preted as an implicit criticism of weaknesses in the original and show how knowledge (of varying depth and breadth),
EQF design, as described above. However, the redefinition skills (instrumental and systematic, linked to judgement),
must also be seen as an effort to reflect national objectives social competence (communication, teamwork, leadership
and priorities. and involvement) and autonomy (autonomous responsibility,
learning and reflectiveness) come together in defining the
Challenging the EQF descriptors overall competence of the individual.
The second group of countries has paid particular attention In the Netherlands the competence concept is also un-
to the concept of ‘competence’ and the question of how to derstood as integrative, aiming to cover a wide range of
translate this into operational level descriptors. This focus is human abilities to cope with complex tasks. According to
even stronger in a third group where ‘competence’ is used Westerhuis (2011, p. 76)23, (the term) ‘Integrative stands
as an overarching concept, significantly influencing the way for the fact that (a) competences are multidimensional and
learning outcomes are defined and described. Examples of (b) competent performance is only possible if all dimen-
countries in this group are Belgium (Dutch, French as well sions are addressed accordingly to a set of standards.’
as German speaking regions), Germany, the Czech Repub- The Belgian-Flemish framework defines competence as
lic, Lithuania, the Netherlands, Slovenia and Switzerland. ‘the ability to apply knowledge, skills and attitudes when
All these countries emphasise the holistic character of the performing social activities, and integrate these into one’s
term ‘competence’. Knowledge, skills and attitudes are not actions’24. The Flemish descriptors introduce context as
‘atomised’ entities which can be judged in isolation from separate, underlining that knowledge and skills have to be
each other; individuals have to combine and apply them in applied in life, work or study to count as competence”
the concrete contexts provided by work and learning. The
ability of an individual to act in a self-directed way is seen

4. Irish Referencing Report Findings

There are different purposes between national frame-
Process
works and regional framework, since the INQF designed
The National Qualifications Authority of Ireland (NQAI) before the creation of the EQF, so national purposes
established a steering committee comprising Qualifica- was more important than comparability. Yet, the Irish
tion and curriculum bodies and 3 international experts. acknowledge similarities in terms of their architecture,
The Draft report was discussed with a wide group of including the categorisations of knowledge, skill and
stakeholders, including providers and learners, ministry competence, and a common understandings of learning
departments and social partners. The Final report was outcomes. The irish framework was among the first to
then prepared and agreed among national quality assur- be referenced to the EQF and to recognize a clear ra-
ance bodies and the Ministry of Education and Science. tional for comparing the sets of Levels in NFQ and EQF.

43
Box 7: Structure of the Irish referencing report and expected outcomes, as well as how they relate to
each other. In contrast, the level descriptors of the new
NQFs have, from the outset, been designed to combine
1. Part 1 Introduction
Process on Referning the Irish NQF to the EQF national relevance with international comparability; the
2. The Irish NQF and its Qualifications in Context three approaches outlined signal different ways to ap-
2.1. General Education proach this balancing act. The first group of countries
2.2. Further Eduction and Training above, aligning their national level descriptors to the
2.3. Higher Education and Training EQF, emphasises international comparability as an ulti-
3. Criteria and Procedures to Referencing the NQF to the EQF mate goal, but runs the risk of limited national relevance.
3.1 The EQF's Advisory Group Criteria and Procedures
3.2. The Irish Responses to the Criteria and Procedures The EQF descriptors – on purpose using a general lan-
4. Matters Arising from the EQF Referencing Exercise guage – may not be able to capture the complexities of a
5. Conclusions national qualification system. This limitation is illustrated
6. Annexes by the fact that countries like Portugal and Croatia have
6.1. Steering Committee Members
developed lengthy guidelines to support the use and
6.2. Establishing the Correspondence between the
interpretation of the national levels. The second group
Qualifications Levels in the Irish NQF and the EQF
of countries, broadening descriptors to include trans-
Appendices
1. Comparison of Irish Levels Indicators and EQF Levels
versal skills and competences, does this to strengthen
2. Comparison of threshold between levels in Irish NQF Levels the national relevance of descriptors and to promote
Indicators and EQF Levels Descriptors particular policies; the inclusion of key competences in
the Finnish and Icelandic descriptors exemplifies this
INFQ and EQF share core design features. last aspect. The third group of countries insisting on a
holistic approach, largely expresses national traditions,
They are comprehensive and integrated
concepts and values and may fear that the current use of
They are neutral in terms of formal/non-formal/infor- learning outcomes - in particular the distinction between
mal learning knowledge, skills and competence - may be applied in
NFQ level indicators and EQF level descriptors a way which leads to a ‘narrowing down’ of education
read across all strands of learning outcomes – the and training and lifelong learning strategies. This is an
strands interrelate important point as it underlines that learning outcomes
In both Frameworks the outcomes for a given level and qualifications are not merely technical constructs
build on and subsume the outcomes of the Levels but must be understood in a social and political context
beneath. as well.

Key words or phrases are introduced as “threshold The referencing process reveals common tasks to be
or distinguishing factors in the description of learn- carried out by EU countries with regards to their NQF:
ing outcomes at each level. managing their qualifications frameworks: what is
and what is not acceptable as a qualification? are
5. Building on the partial qualifications to be included in the register,

Referencing Process if there is one? are new qualification types neces-

sary to clarify the difference of levels or categories of
Some lessons have been gained from the on-going ref- qualifications?
erencing processes involving all european countries. As establishing more progression within the NQF. Is
analysed in the global Inventory, there seems to be differ- the framework allow vertical and horizontal mobility.
ent attitudes towards the EQF and in particular towards How much integration is possible.
the learning outcomes which are sometimes challenged.
communicating about qualifications: is the language
This redefinition of the competence descriptors can be
of learning (learning outcomes, assessment, quaity
interpreted as an implicit criticism of weaknesses in the
assurance) being disseminated or does it remain the
original EQF design but also as an effort to reflect nation-
language of a few.
al objectives and priorities. The level descriptors of the
early national qualifications frameworks were designed evaluating how learning outcomes are understood
to serve national purposes. Their task was to show how and used in the framework: learning outcomes
qualifications can be differentiated in terms of complexity should not be treated as merely technical con-

FROM CONCEPTS TO IMPLEMENTATION

44 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 structs, but need to reflect and respect the social wider competence) clearer than is currently the case.
and institutional contexts they are operating within. If This can facilitate the involvement and feedback of la-
learning outcomes are formulated in too narrow and bour market stakeholders regarding the relevance of the
restricted ways, they can limit rather than broaden qualifications standards for the labour market.
expectations towards learners.
explaining and using qualification levels in different Learning Outcomes features:
contexts: if learning outcomes are used differently Statements of what a learner can be expected to
between institutions, sectors and countries, their know, understand and/or do as a result of a learning
ability to strengthen transparency and aid compari- experience.
son is weakened.
Student learning outcomes are properly defined in
extending the forms of recognition of qualifications terms of knowledge, skills, and abilities that a stu-
securing the involvement and commitment of stake- dent has attained at the end (or as a result) of his or
holders her engagement in a particular set of higher educa-
tion experiences.
establishing quality assurance systems which are
the basis of trust between countries Learning outcomes are statements that specify what
a learner will know or be able to do as a result of a
learning activity. Outcomes are usually expressed as
6. SKYPE SESSION knowledge, skills, or attitudes.
The European Qualifications Learning outcomes (are) specific measurable
Framework Experience achievements

(Aileen Ponton) Reflections on the use of EQF for non- EU countries

a. EQF descriptors
EQF REFERENCING CRITERIA were developed to
b. Current reflections on the use of EQF outside broadly compare with the self assessment process for
Europe Bologna and higher education. They have not changed
c. The Scottish experience but the guidance in working with them has evolved.
What follows is a draft process for third countries to use
them to “align” or “benchmark” as part of a pilot project
a. EQF Learning Descriptors
They are Knowledge (Theoretical or Factual), skills (cog- b. Current reflections on the use of
nitive and practical) and Competence (Responsibility and
Autonomy).
EQF outside Europe

Box 8: The Scottish and Indian levels descriptors Current EQF criterion

SCQF LD INDIA LD 1. The responsibilities and/or legal competence

Knowledge and Understanding Process required of all relevant national bodies involved in the
Practice/applied Knowledge Professional knowledge referencing process, including the National Co-
Generic Cognitive Sills Professional skills ordination Point, are clearly determined and
published by the competent public authorities.
Communications/ICT/Numeracy Core skill
In addition the structure of the education and
Autonomy/Working With Others Responsibility
training system is described

EQF Definition
http://www.cedefop.europa.eu/EN/Files/Using_ Proposed amplification guidance
learning_outcomes.pdf
WHAT
In the broadest sense, the use of learning outcomes has
The Government of the country should set out clearly
a technical purpose, for example, to make existing stan-
which organisations have responsibility for the develop-
dards (expectations in terms of knowledge, skills and

45
ment and maintenance of the QF and for the quality as- WHY
surance associated with it.
It has been agreed as one of the key principles of the
The essential structure of the system covering ages, EQF that the use of learning outcomes supports many
stages and pathways of education and training, includ- other measures such as assessment, mutual trust, links
ing formal, non-formal and informal learning should be to informal and non-formal learning, mobility.
described in outline. Linkages between these pathways
and major progressions should be clear. If possible some WHAT
general statistics should be included.
Where credit and recognition systems exist the QF and
WHY its qualifications must demonstrate how it links to and
uses systems for credit and for the recognition of infor-
This is so that the EQF AG can see that there is political mal and non-formal learning. Where these do not exist,
will and support and can also understand the roles and the plans for further work must be made clear. Given the
responsibilities of the main actors. Secondly the addition fact that Member states have used ECTS and ECVET to
is so that a clear understanding of the educations sys- underpin this, in which measure does the Third Country
tem and its structures is provided. need to make reference to this and explain similarities
and differences to this approach?
2. There is a clear and demonstrable link between
the qualifications levels in the national qualifica- WHY
tions framework or system and the level descrip-
The EC has produced a later recommendation on the
tors of the European Qualifications Framework.
Recognition of Informal and Non Formal learning and so
all Member States countries are considering how they
WHAT
will meet this recommendation. In that spirit therefore it
Technical work needs to be undertaken to show the is important that third countries do so as well. If credit is
alignment of the levels of the QF to the EQF. used it is important to understand how it fits with indi-
vidual qualifications and with the QF as a whole.
WHY
4. The procedures for inclusion of qualifications
This is the fundamental basis for referencing. It will dem- in the national qualifications framework or for
onstrate to the AG that firstly the QF has clear and well describing the place of qualifications in the na-
written level descriptors and it also indicates a good tional qualification system are transparent
technical understanding of what level descriptors can
and cannot do. It needs to also demonstrate and un- WHAT
derstanding of the purpose of the EQF level descriptors.
Finally it allows a comparison to be made of each level The country needs to explain in some detail how qualifi-
within the QF which helps understanding of qualifica- cations get into the Framework. This explanation needs
tions and how they fit to be detailed and include relevant criteria, rules and
associated guidance. It also needs to be explicit about
3. The national qualifications framework or system whether the same rules are used for all types of qualifi-
and its qualifications are based on the principle cation.
and objective of learning outcomes and linked
to arrangements for validation of non-formal WHY
and informal learning and, where these exist, to
For mutual trust to exist countries need to see and un-
credit systems
derstand the rules, criteria and methodology used to de-
termine the level of a qualification and place it in the QF.
WHAT

The qualifications within the QF must use learning out- 5. The national quality assurance system(s) for
comes. Where the use of learning outcomes is not well education and training refer(s) to the national
established the policy and the implementation plan for qualifications framework or system and are con-
full use of LOs must be made clear. sistent with the relevant European principles
and guidelines (as indicated in annex 3 of the
Recommendation).

FROM CONCEPTS TO IMPLEMENTATION

46 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
WHAT 8. The competent national body or bodies shall
certify the referencing of the national qualifica-
The quality assurance processes which underpin each tions framework or system with the EQF. One
category of qualification in the Framework needs to be comprehensive report, setting out the referenc-
clearly explained along with an explanation of the quality ing and the evidence supporting it shall be pub-
assurance associated with the overall QF. lished by the competent national bodies, includ-
ing the National Coordination Point, and shall
WHY address separately each of the criteria.

Again in order to support mutual trust Member States

need to understand what processes are in place to en-
WHAT
sure quality of each type of qualification as well as the The final report needs to address all of the above points,
Framework. It is also important to know which organisa- needs to demonstrate the buy in and agreement of key
tions perform that role and how these organisations re- actors and social partners and should be produced in a
late to one another. Given the EQAVET recommendation user friendly format to aid understanding by other coun-
the criterion asks that this explanation relates to those tries. It needs to include information on the consultation
principles. However the country will wish to explain its processes used and agreement reached.
own principles.
WHY
6. The referencing process shall include the stat-
ed agreement of the relevant quality assurance Only those members of the Technical Working Group will
bodies. have been involved all the way through the process. For
the majority of members of the EQF AG it will be the
WHAT written report, supplemented by questioning and discus-
sion, that they will rely on to help them reaching a deci-
The final report of the referencing needs to include con- sion.
firmation from those relevant quality assurance bodies
that the explanation of their role and the description of
their processes is correct. They also need to confirm Scottish Referencing Process
their agreement to the referencing outcomes overall.
SCOTLAND Contracted with an expert consultant to
undertake technical referencing in April 2008. We estab-
WHY
lished a Steering Group comprising main stakeholders
This is needed to support mutual trust and to give a for- and including 2 international experts in June 2008 who
mal agreement from the quality assurance bodies. raised awareness of pending consultation August 2008.
We issued final referencing report and consultation doc-
7. The referencing process shall involve interna- ument to key groups and individuals in early September
tional experts. 2008 and put a final referencing report and consultation
on web for open consultation in early September 2008.
WHAT The Consultation closed end November 2008. A Quality
Assurance digest was prepared October 2008 – Janu-
The referencing process not only technical work should ary 2009 and discussed by Steering Group in February
involve a Technical Working Group made up of EU Mem- 2009 along with final report structure. The final report
bers States plus the Commission plus Cedefop. was published in July 2009. We are revisiting the pro-
cess and content in light of 6 years of reports n 2015.
WHY
CHALLENGES experiences in the process are several
This will allow for mutual information sharing, discussion
of technical detail, analysis of outcomes and reporting to Scope and size of consultation
the EQF AG Weighting of responses

At this stage, there is yet no final referencing report. Co-ordination across the UK
Concerns in Scotland re lowest level of EQF and
messages for learners

47
 Communication of NQF
FURTHER READING
Links to sectoral frameworks
EQF Recommendation 2008
Potential for overtrading/misunderstanding
Global Inventory of Regional And National Qualifications
CURRENT POSITION- the SCQF Database now shows Frameworks, 2015 Or
SCQF and EQF levels for all programmes. Scotland is
contributing to the dialogue around third country align- Mehaut, P and Winch, C, 2012, the European
Qualification Framework: Skills Competences or
ment – technical expert for Australia – but this is early
Knowledge European Educational Research Journal, vol
days. We are also contributing to the work looking at 11, n° 3
international or “stateless” qualifications. We provided
expert support to Poland, Belgium, Estonia. Scotland
has signed a MoU with Hong Kong and with Bahrain.

FROM CONCEPTS TO IMPLEMENTATION

48 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
MODULE 5
NATIONAL
QUALIFICATIONS
FRAMEWORK AND
CREDIT SYSTEMS

1. CREDIT SYSTEMS 50
2. EUROPEAN CREDIT SYSTEM FOR VOCATIONAL EDUCATION AND TRAINING 52
3. Skype Session: DEVELOPING A POLICY ON CREDIT SYSTEMS (JAMES KEEVY)* 55

* Chief Executive Officer of JET Education services, South Africa

49
1. Credit Systems1 fications or specific to one particular qualification. Units
are accumulated based on the requirements to achieve
To implement a credit system, it is necessary that quali- qualifications. These requirements may be more or less
fications are described using learning outcomes. Learn- restrictive depending on the tradition and practice of the
ing outcomes are grouped to create units. Assessed qualifications system and the way qualification standards
learning outcomes constitute credit. Credit is the basis are designed. Units can also be used to structure the for-
for enabling the transfer between learning contexts and mal education and training programme. Box x develops
for the accumulation of learning outcomes. In a credit the difference between units and modules.
system, learning outcomes are used as a basis for cred-
it transfer and accumulation. Learning outcomes are CATS means Credit Accumulation and Transfer Scheme/
not dependent on the learning process, the content of System. It is a tool/mechanism which gives a numerical
teaching or the learning context in which they have been value to the outcomes of learning and makes it easier to
achieved and there- fore it is possible to use them to give recognition to the learning – “to make the learning
identify whether what the learner has achieved in one count”. A CAT scheme can work within a single insti-
learning setting or context is comparable to what s/he is tution or qualification system or between collaborating
expected to have achieved in another setting or context. institutions or qualification systems. It can be linked to a
qualification framework or stand alone.
A unit is a component of a qualification, consisting of a
coherent set of knowledge, skills and competence that A credit system adds some features to a framework: it
can be assessed and validated. establishes new relationships (equivalences/ compara-
bilities) between outcomes of learning, supports RPL
Units enable progressive achievement of qualifications and reduces restrictions on the place, pace and mode
through transfer and accumulation of learning out- of learning and it provides new ways of designing quali-
comes. They are subject to assessment and validation fications, improve recognition of previous learning and
which verify and record that the learner has achieved the create new progression routes.
learning outcomes expected. Depending on the exist-
ing regulations, units may be common to several quali-

Box 9: Units or Modules

Most NQFs have been associated with developments variously break up of qualifications not the curriculum, and is concerned
referred to as unitization or modularization. Both are concerned with assessment rather than teaching. Traditional qualifications
with breaking up qualifications into smaller components known assume that all students or trainees begin together and are
as modules or units. The evaluation literature suggests that assessed at the end of a programme.
these processes do introduce greater flexibility both for learners
and users such as employers, but offers little support for the Unitized frameworks treat units as the building blocks of
claim that they are mechanisms for broadening the distribution many different qualifications and each unit is assessed and
of, and access to, qualifications. Unitized qualifications are often given credit separately. Instead of the teacher deciding the
proposed for slower learners on the assumption that they will sequencing of the programme in a specific field, the student or
find it easier to learn in (what in the UK has become known as trainee registers for units and then combines the units achieved
bite-sized chunks). It is important to make a distinction which to make up a qualification. The standard setting body lays
is sometimes blurred between modularization and unitization. down the rules of combination of units that lead to different
Modularization is best seen as a teacher-led or institution-led qualifications. In a unitized framework it is units not whole
process in which the curriculum or teaching programme is the qualifications, that are registered on the framework for the
starting point; modules are a formalisation and standardisation purposes of quality assurance. Unitization maximizes flexibility
of the informal sequencing that any teacher undertakes. and choice, but minimizes coherence and the importance of
Modules divide up a programme into discrete but coherently structure in the acquisition of knowledge and skills. Many kinds
linked components or modules, with specific opportunities for of knowledge in general education (such as physics), and many
students to make choices. Modules may, or may not, be linked skills (such as cabinet making) that are important in vocational
to specific assessments. Unitization is a more radical departure qualifications, depend on a particular sequencing of learning
from traditional approaches to the curriculum; it refers to the defined by subject specialists and may not be amenable to
unitization.

1 Chief Executive Officer of JET Education services, South Africa

FROM CONCEPTS TO IMPLEMENTATION

50 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Table 6: Levels of CAT scheme

CAT can unfold at different levels And within different types of qualification frame-
works:
CAT Schemes
Qualification Frameworks
eg in a single University an a single
Institutional awarding body
eg Higher Education
Sectoral TVET
eg with the Tertiary sector
Sectoral a single occupational sector
Single occupational sector

Single, unified framework

National A common standard used across and National
Comprehensive Tightly linked subframeworks
Comprehensive between sectors Loosely linked subframeworks
Used as a basis for collaboration within
Institutional Regional/ Mainly used as points of reference / for
sectors comparisons
Transnational

The table below shows how credit systems combine with qualification frameworks

Table 7: Qualifications Framework and credit systems

Credit Schemes (CS) and Qualification Frameworks (QFs)

1 2 3 4

QF QF CS CS CQF

Qualifications Qualifications Sectoral Credit Integrated Credit

Framework (no Framework (no System & Qualifications
Credit System) Credit System) Framework

The NSQF Notification “supports credit transfer and The principles governing credit-rating must be tightly
progression routes within the Indian education and defined. The process itself should be as loose as is con-
training system. The NSQF will allow people to move sistent with assurance of reasonable consistency. Over-
between education, vocational training and work at dif- all it also need to be as transparent as possible. There
ferent stages in their lives according to their needs and must be an understanding that the CAT system cannot
convenience.” guarantee that all learning will be fully and automatically
recognised in all circumstances.
A Credit is (normally) an indication of the “volume” or
“weight” of the outcomes of learning which make up a The process of Accumulation is a process where learn-
qualification. It can also be seen as points awarded at ers are able to register learning outcomes achieved in
a level, as a quantified means of expressing an equiva- one programme at one time and have them counted to-
lence between programmes of learning and as an award wards the full programme later on. Accumulation is built
made to a learner in recognition of the verified achieve- in to a system or sub-system (eg programmes /qualifica-
ment of (implied or) designated learning outcomes at a tions offered by a department, a faculty, an institution,
specified level an awarding body). It should be automatic. The credit
accumulation value (general credit) – based on notional
Considered as a “currency”, Credit is usually expressed
learning time. System Credit relates to how long an aver-
as a numerical value linked to (notional) learning time – ie
age learner will take to achieve outcomes
all learning activities required for the achievement of a set
of outcomes. Commonly 1 credit point is allocated for 10 The process of Credit Transfer is a process where learn-
notional hours of learning. ers are able to register learning outcomes achieved in
one qualification at one time and have them counted
By bringing all learning within a common system,
towards another qualification later on. Credit Transfer
credit give systemic value to non-formal and expe-
works between systems or sub-systems (especially be-
riential learning allowing previous learning to count
tween institutions and sectors). The credit transfer value
as qualifications.

51
(specific credit) – is the value of prior learning relative to Figure 12: Requirements for credit rating
the qualification into which it will be transferred. Credit in
practice is based on the match between learning out-
comes already achieved and the learning outcomes re-
quired for a qualification. The indian NSQF foresees the Agreed principles
implementation of a CAT system (box 9). Tight definitions

Both are practical (pragmatic) judgements, not scientific

measurements. Both require processes based on expert
judgement and open to scrutiny and appeal. Transparency Common features
& scrutiny Flexible processes

Box 10: NSQF Notification on credit transfer

Credit transfer can be made in various ways such as allowing

a learner to drop a subject already studied or take the next and Identifying and providing bridging courses. A CAT
level course in that subject, direct admission to higher-level
system requires national and local planning, monitoring
such as direct second-year admission, etc. This could also
take the form of reservation of seats for students coming with and evaluation and that are taken to minimize bureau-
prior learning background. The credit transfer system in each cracy.
industry sector or academic domain needs to be detailed out
by the NSQC, with the inputs from the respective institutions/
universities/Ministries/ regulators, etc. at the time of registra- 2. The European Credit
tion of qualification, so that students undertaking the qualifica-
tion are clear about the possible credit transfer opportunities
System for Vocational
available to them. Education and Training
ECVET
How to allocate credit to outcomes
ECVET is a transnational/regional Credit System aiming
Credit Rating Process can be done either from scratch at bringing together National Systems through a credit
based on the outcomes plus experience of delivery exchange mechanism. The European Credit System for
(teaching, learning and assessing) or from comparisons Vocational Education and Training is a technical frame-
with other programmes drawing on previously credit- work for the transfer, recognition and (where appropri-
rated programmes. It involves discussion by expert pan- ate) accumulation of individuals’ learning outcomes with
els and validation by use and acceptance. The following a view to achieving a qualification. Guided by a Europe-
needs to be taken into account: an-level Recommendation, ECVET tools and methodol-
- “distance” between recommended entry and as- ogy comprise a description of qualifications in terms of
sessable outcomes units of learning outcomes, a transfer and accumulation
process and series of complementary documents such
- breadth & depth of knowledge, skills, broader com-
as learning agreements, personal transcripts and user
petences
guides. ECVET is intended to facilitate the recognition
- kinds of learning activities required (including as- of learning outcomes in accordance with national leg-
sessment, formal teaching/training, supervised and islation, in the framework of mobility, for the purpose of
unsupervised practice work, private study and re- achieving a qualification.
vision, remediation, being counselled or mentored,
reflection) ECVET aims to support the mobility of European citi-
zens, facilitating lifelong learning (formal, informal and
non-formal learning) and providing greater transpar-
Managing Credit Rating ency in terms of individual learning experiences, making
Implementing a CAT System requires first that the it more attractive to move between different countries
system is explained. Capacity building must be ensured and different learning environments. At a systems level,
on general credit-rating, on managing credit in practice: ECVET aims towards better compatibility between the
designing and delivering articulated pathways, and giv- different vocational education and training (VET) systems
ing formal recognition to packages of learning outcomes in place across Europe, and their qualifications.

FROM CONCEPTS TO IMPLEMENTATION

52 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
From a geographical mobility perspective, ECVET aims to encouraging wider implementation and use, particu-
at facilitating validation, recognition and accumulation of larly in learning mobility.
skills and knowledge acquired during a stay in another
country, with a view to ensuring that such experiences Allocating ECVET Points
contribute to the achievement of vocational qualifica-
tions. ECVET was designed as one of a series of Eu- Factors counting in the allocation of points are the Im-
ropean instruments (others include Europass and the portance, the complexity, scope and volume of the
European Qualifications Framework) that target improve- learner effort. “A unit may have different weights in differ-
ments in recognition and transparency. ent qualifications.” Points are independent of the mode
of learning.
ECVET is a tool that can assist lifelong learning by im-
proving the transfer, recognition and accumulation of Figure 14: Allocating ECVET points
that which has been learned in the past, irrespective of
the learning environment. It can ease the development
of individualised and flexible lifelong learning paths which Formal Non-formal Validated
enable peo¬ple to gain knowledge, skills and compe- Learning Learning informal
Route Route learning
tence, and ultimately a qualification. ECVET supports a
range of learning, and individual learner, scenarios in-
cluding:
Fixed time Average Time
Learners wishing to upgrade or extend their qualifi- - eg 2 years time irrelevant
cations through part-time study.
Learners wishing to study for additional qualifica-
tions that complement or build on those already
held.
Learners seeking qualifications for career progres- QUALIFICATION
sion. 120 ECVET Points
Learners returning to education or training.

ECVET relies on a series of common goals, principles

To be taken into account a unit specifications should in-
and technical components, that centre on the recog-
clude:
nition of learning outcomes and achievements for Eu-
ropean citizens undertaking vocational education and the unit title
training, irrespective of the learning context, location or the title of the qualification(s) to which the unit re-
delivery method. ECVET works hand in hand with the lates
European Qualifications Framework (EQF) to provide
NQF/EQF level and ECVET credit points of these
greater transparency in European qualifications, promot-
qualification(s)
ing the mobility of workers and learners, and facilitating
lifelong learning. ECVET brings together a wide range of the learning outcomes contained in the unit
actors, at both national and European levels, with a view the procedures and criteria for assessment of the
learning outcomes
Figure 13: ECVET Model
the ECVET points (& EQF Level?) of the unit
Learning context A Units/Learning the currency/”validity in time” of the unit, where rel-
Outcomes validated evant.
and recognised
Credit awarded for The credit system can translate from one country to an-
Learning Outcomes transfer. Qualification other (figure 15).
assessed and awarded.
credit awarded for
accumulation

Qualification awarded
and/or transcript
issued Learning context B

53
Figure 15: Translation of credit system between countries.
Country A EQF + ECVET Country B
Levels Levels
Country A EQF + ECVET Country B

EQF level 8
“Diploma “Adv. Diploma
12 levels 8 levels 10 levels 60 ECVET points
in Management” in Management”
120 A-points @ EQF level 7 150 B-points
at level All at level B9
EQF level 6
120 credits 60 credits 150 credits
“Diploma in 150 ECVET points “Diploma in
per year per year per year
Cares” 300 Cares” 300
2X 2.5X @ EQF level 5
A-points A-points
at level A8 at level A8
EQF level 4

EQF level 3
Country A Country B
“Carpentry “Intro. Award in
A Points B Points 18 ECVET points
Certificate” 36 Carpentry” 45
A-points at level @ EQF level 2 B-points
“Diploma in Manage- Advanced. Diploma
ment” 120 A-points at in Management” 150 A4 at level B3
EQF level 1
level All 8-points at level B9

“Diploma in Care” 300 “Certificate in Care”

A-points 375 8-points at level B6
at level AB Transferring ECVET Points
“Carpentry Certificate” “Introductory Award in Arrangements for the transfer of credits between differ-
36 A-points at level A4 Carpentry” 45 8-points ent VET systems will be agreed in a “memorandum of
At level B3
understanding” which will specify the scope and range
of transfer. The credit transferred in practice may be dif-
ferent from the systems credit value of the learning.
Country A EQF Country B
Levels Levels NSQF NOTIFICATION

Credits can be used to assist learners to transfer between

EQF level 8
programs. This can happen only when awarding bodies deter-
A level 11 EQF level 7 A level 8 mine how much credit can be transferred into which of their
programs. This decision will depend upon the nature/content
EQF level 6 of the learning for which the credit has been given and the re-
quirements of the program into which transfer is being sought.
A level 7 EQF level 5 A level 6 This will also facilitate multiple entry and exit pathways at
each level (or within a level) with the bundle of credits earned
EQF level 4
clearly certified by assessment and certification bodies which
EQF level 3 have been authorised to do so.

A level 4 EQF level 2 A level 4

There are barriers to credit transfer, such as
EQF level 1
structure of provision – inappropriate or inadequate
lack of clarity/transparency about processes
suspicion between sectors and/or agencies
insufficient or inappropriate quality assurance
lack of trust – being too demanding
lack of will

FROM CONCEPTS TO IMPLEMENTATION

54 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Conclusion a National Credit & Qualifications Framework
will be established when
3. Skype Session
All qualifications are reformed to be composed of
Developing a Policy on Credit
units of learning outcomes which accord to National Systems (James Keevy)
quality standards
All qualifications are awarded on the basis of appro- Structure of presentation: 1.Policy process 2.
priate (competence-based) assessment standards Conceptual basis 3. Policy overview
and processes
South African Qualifications Authority is mandated to
All units of learning outcomes are allocated to a level develop, after consultation with the Quality Councils, na-
in the Framework according to approved bench- tional policy for Assessment, Recognition of Prior Learn-
marks for evidence ing and Credit Accumulation and Transfer. The National
All qualifications and units of learning outcomes are Qualifications Framework Act No. 67 of 2008 was issues
credit-rated following Nationally agreed procedures following a series of consultations represented in Figure
17 below.
All qualification and units are entered in the national
register
Figure 17: Layer of Consultation
Links are identified between between qualifications
(formal-formal, nonformal-nonformal, formal-nonfor-
mal) and pathways
Means of recording assessed learning outcomes Public
and credit in personal transcripts are set up
SAQA staff Key
Standards for the validation of learning outcomes stakeholders
between systems and the consequent award of
credit to the learner are agreed and in use
Processes for giving formal recognition for trans- Writing Team
ferred credit are working Quality
Councils
Measures to support individual learners are in place
National Guidelines for setting up generic Memo-
Reference
randa of Understanding between awarding bodies Group
and specific articulation agreements between insti- SAQA Board
tutions are established and implemented

Figure 16: A question of balance

Public comment period
In and after consltation
Drawing in credible and reliable experts in the field
External workshop where necessary
Usefulness Credibility
Flexibility Rigour Ownership remains with SAQA
Conceptual basis

The NQF is a single integrated system which comprises

of three co-ordinated qualifications sub-frameworks:
1. General and Further Education and Training Quali-
fications Sub-framework (GFETQSF) overseen by
Umalusi
2. Higher Education Qualifications Sub-framework
(HEQSF) overseen by the CHE

55
3. Occupational Qualifications Sub-framework (OQSF) Figure 18: Core principles
overseen by the QCTO (Quality Council for Trade
and Occupations)
Transparency
The sub-frameworks were determined on 14 De-
cember 2012. The HEQSF and GFEQSF policies Supplementarity
were gazetted on 30 August 2013. The OQSF policy
was gazetted on 30 July 2014. Comparison based on credible methods

Articulation by design
Table 8: The South African Qualifications Framework

Level Sub-framework and qualification types Access for success

10 Doctoral Degree *
Doctoral Degree (Professional)
Policy Overview
9 Master’s Degree *
Master’s Degree (Professional) The purpose of this policy and criteria is to facilitate the
development of credible, efficient and transparent CAT
8 Bachelor Honours Degree Occupational processes within and between each of the sub frame-
Certificate (Level 8)
Postgraduate Diploma works of the NQF
Bachelor’s Degree
Provide for the development and implementation of
7 Bachelor’s Degree Occupational CAT as an integral component of qualification de-
Certificate (Level 7)
Advanced Diploma sign within the NQF and its sub frameworks
6 Diploma Occupational Position CAT in relation to the objectives of the NQF
Certificate (Level 6)
Advanced Certificate to support lifelong learning in South Africa

5 Higher Certificate Occupational Directly address CAT-related challenges faced with-

Certificate (Level 5) in the education and training system
4 National Certificate Occupational Specify the roles and functions of bodies involved in
Certificate (Level 4)
CAT
3 Intermediate Certificate Occupational
Certificate (Level 3)
A Culture of Articulation
2 Elementary Certificate Occupational
Certificate (Level 2) The Legislation national policy sets a formal requirement
1 General Certificate Occupational
within the education and training system as well as For-
Certificate (Level 1) mal and informal agreements between specific institu-
tional types, guided by guidelines, policies, and accredi-
CAT involves many related practices not always explicitly tation principles
defined as ‘CAT’: Admission, RPL, Advanced standing,
The responsibility to implement CAT is shared among
Credit transfer, Curriculum mapping, Etc. Much research
stakeholders: CAT is the joint responsibility of the De-
has been used in the process.
partment of Higher Education and Training, Department
of Basic Education, SAQA, the QCs, education institu-
Core Principles
tions and skills development providers, recognised pro-
A description of qualifications in terms of learning fessional bodies and workplaces
outcomes in relation to the level descriptors of the
NQF Responsibility of SAQA
The allocation of credits for the achievement of
1. Develop national policy and criteria, after consulta-
learning outcomes
tion with the Quality Councils, for CAT
Other principles are illustrated by Figure 18.
2. Develop national CAT guidelines for inter-institution-
al collaboration

FROM CONCEPTS TO IMPLEMENTATION

56 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
3. Support the development of collaborative partner- Set fair and transparent admission criteria that is
ships across the sub frameworks of the NQF consistent with national policy

4. Co-ordinate the sub frameworks of the NQF, includ- Undertake collaborative approaches to curriculum
ing the alignment of sub framework policies on CAT, development across different institutional types to
and articulation across the system. advance CAT

5. Establish and manage an adjudication process to Initiate and participate in partnerships with educa-
monitor unfair exclusionary practices related to CAT, tion and training providers to promote CAT
including a review of admission criteria Develop and maintain an information management
6. Set up and provide support to a permanent sub- system
committee of the CEO Committee for CAT
7. Oversee research to improve CAT in collaboration Responsibility of Recognized
with the Quality Councils Professional Body
8. Promote and enable the use of a common language Comply with the SAQA Policy and Criteria for Rec-
to communicate credit system arrangements ognising a Professional Body and Registering a Pro-
fessional Designation on the NQF
Responsibility of Quality Council Including not to apply unfair exclusionary practices
in membership admission to the body or when rec-
Collaborate with the other QCs
ognising education and training providers
Formalise principles and conditions for CAT
Initiate and participate in partnerships with educa-
Initiate and oversee incubation projects tion and training providers to promote CAT
Develop a policy on CAT for their sub frameworks,
taking into account the relevant national SAQA poli- Responsbility in Workplaces
cies, and the broader context of their specific sub
frameworks and related policies Adhere to the principles and responsibilities as out-
lined in this policy
Participate in the adjudication process of SAQA to
monitor unfair exclusionary practices related to CAT Proactively engage with education and training pro-
viders to contribute to the acceptance of new quali-
Undertake systematic work on the development
fications and a general awareness of the role and
of sectoral credit schemes within their specific sub
function of CAT
frameworks.
Actively promote the recognition of workplace expe-
Promote the collaborative development of curricu-
rience and provide for CAT in collaboration with the
lum and qualification pathways
Quality Councils
Actively promote the recognition of workplace expe-
rience for CAT
Develop linkages for articulation and progression to Conclusion
promote CAT
The relationship between CAT and an NQF must be
clearly defined:
Responsibility of Providers
- Do the two systems exist alongside each other?
Demonstrate that their policies and practices for all
- Is CAT part of the NQF (as in South Africa or in
types of articulation support the principles
India)?
Seek accreditation by the relevant Quality Council(s)
Adequate consultation results in effective implemen-
In the case of private education providers be regis- tation
tered by the Department of Higher Education and
A strong conceptual basis must underpin the policy
Training
Avoid unfair exclusionary practices related to CAT
Collaborate to offer diverse and mutually recognised
qualifications

57
 FURTHER READINGS
EUROPA - Education and Training - Socrates programme - ECTS - European Credit Transfer and Accumulation System

Erasmus Mundus credits” (PDF). University of Salford. Retrieved 20 May 2012.

Ordinance 21/30 September 2004 for Application of Credit Transfer and Accumulation System in Higher education institutions,
Ministry of education and science, Bulgaria, page 2”. Retrieved 15 April 2014.

ECVET Pilot projects www.cevet.project.eu/ FAQ, Accessed 6 July 2015

Linking Credit systems and qualifications frameworks- An international analysis. 2010 CEDEFOP publications

FROM CONCEPTS TO IMPLEMENTATION

58 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
MODULE 6
UNDERSTANDING
QUALITY
ASSURANCE

1. APPROACH 60
2. WHAT IS QUALITY ASSURANCE? 60
3. THE QUALITY CYCLE 63
4. COMPONENTS OF A QUALITY ASSURANCE FRAMEWORK 64
5. QUALITY ASSURANCE IN THE INDIAN CONTEXT 66
6. Skype Session: THE SUCCESS STORY OF THE DUAL SYSTEM IN GERMANY
(HELENA SEBAG-DEQA-VET)* 67

* Helena SEBAG is Project Manager at DEQA-VET, the German reference point for quality assurance in vocational education and training.

59
1. Approach Provide the appropriate measuring tools so that
states and providers can monitor and evaluate their
Building an integrated qualification and skill system re- performance
quires clear linkages between industry needs and skills
outcomes for individuals. In VET systems, the quality as-
surance framework is likely to have four key objectives:
2. What is Quality
Assurance?
Improve employability of the workforce ( both poten-
tial and actual) Technical Vocational Education and Training (TVET)
equips people with knowledge, skills and/or competenc-
Better matching between training supply and de-
es required in particular occupations or more broadly in
mand
the labour market that are recognized as indispensable
Better access to VET, in particular to vulnerable or for meaningful participation in work and life. Quality as-
disengaged groups surance is a component of quality management and is
Raising the status of VET ( bringing some equity with ‘focused on providing confidence that quality require-
academic/general education) ments will be fulfilled’ ( ISO 9000:2006 norms specifies
Quality management systems fundamentals and vocab-
Quality assurance has proved to be a decisive tool for
ulary). Quality control is a component of QA defined as
both modernising and improving the performance and
a set of activities or techniques to ensure that all quality
status of VET systems in Europe and elsewhere. In order
requirements are being met. In order to achieve this pur-
to ensure VET systems are responsive to labour market
pose, processes are monitored and performance prob-
skills needs, outcomes must match demand and this
lems are solved. Quality improvement refers to anything
requires the supply side of VET systems to be closely
that enhances an organisation’s ability to meet quality
linked to industry and to deliver what industry needs
requirements.
through training programmes and qualifications (see box
8: Why focus on quality?). The concept of Quality is evolving from ‘conforming to
the standards and specifications of a product’ to qual-
A common QA framework needs to:
ity is to fulfill the requirements of customers and satisfy
Cover all aspects of planning, implementing, evalu- them’. While quality control fits assembly line control
ating and reviewing VET at all levels in the system - ‘product-focused’ –in supply led system, quality as-
Have an appropriate way of reviewing performance, surance is user-oriented: quality is determined and con-
including self-assessment; and feeding this back trolled at all stages of the whole product lifetime - fitness
into the system in order to ensure continuous im- for purpose of user as judged by the users
provement
Quality assurance integrates the ‘hard side’ elements
Include monitoring ( external) at both national and (that is, statistical methods, quality control tools, pro-
state level cess standardisation, and improvement, etc.) with the
‘soft side’ aspects (that is, quality concept, employees’
Box 11: What is Quality participation, education and training, and quality culture,
etc.)
• Quality is not an easily and well defined concept:
Reform of TVET towards excellence necessitates that
• In general terms, a service or a product is considered of
high quality, if it fulfills or even surpasses our expecta- TVET decision makers, policy developers, providers and
tions ie: is it fit for purpose? key stakeholders consider three core QA functions:
• Different stakeholders with different interests and defining quality
expectations perceive quality in different way
measuring quality and
• In skills systems around the world quality is defined,
understood and measured in different ways improving quality
• Skill systems make choices about the indicators used
to measure their efforts to achieve quality and what A TVET Quality Framework describes how the system
relative priority will be placed on the different chosen and components of the system:
indicators
define quality - inputs (e.g. training of teachers/
trainers) -processes (e.g. how access to TVET is

FROM CONCEPTS TO IMPLEMENTATION

60 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 lar, for disadvantaged people. It states clear objectives
Why focus on quality for further development, which need to be continuously
• High quality programs provide strong links between reviewed and adapted, according to experiences gained
institutions and the needs of the labour market ie: in technological and pedagogical innovations and ongo-
graduates are more likely to find suitable employment
ing evolution of work. A quality framework (Figure 19)
• High quality programs make TVET more attractive and
presupposes agreement on several methodological and
give status
procedural principles, which will guide its implementa-
• A focus on quality provides accountability measures that
can be linked to funding and performance management tion.
in a skills system
• Quality systems serve as a common reference to ensure Figure 19: Features of a Quality Framework
consistency amongst different actors at all levels.
• Quality systems have transparent processes and
procedures to ensure mutual understanding and trust Mission How do we define Quality? What is
between different actors Statement our concern?
• skill standards are developed with meaningful inputs
from industry needs
• qualifications reflect labour market needs Process What are our core processes and
• curricula meets the requirements of the labour market Management how do we design them?
• targets for the participation of disadvantaged groups
• training providers have strong links with employers
• teaching and training staff are well-qualified and famil- Evaluation How can we check the results?
iar with workplace practices
• Assessors are well-qualified and familiar with workplace
practices
How can we continuously improve
• a high percentage of graduates obtain employment Continuous
Improvement our results?
• facilities utilise the latest requirements and technologies
• there are low rate of non completion
A unified QA framework that can be used as a com-
mon reference across states, sectors and ministries and
promoted, teaching) - outcomes (e.g. how VET re- provides the structure within which all bodies operating
sponds to the changing demands of the labour mar- across the VET system in India operate is a fundamen-
ket tal requirement. Examples of such frameworks can be
Measure quality– Current TVET performance against found in VET systems across the world and each has a
expected standards set of common components.

Continually improve quality – closing the gap be- The first and most important component is a set of ob-
tween current and expected levels of quality - con- jectives to which all those with responsibility at any level
tinuous learning in the system sign up to and which are strategic enough
keep the methodology as simple as possible to reflect the policy objectives for the skills system in In-
dia. These objectives must be supported by and closely
Is sustainable economically, ecologically, socially
linked to a set of quality principles. Without a clear set
TVET QA framework strengthens relevance of TVET out- of objectives it is not possible to build a unified approach
comes to meet industry and employment requirements to quality and quality assurance. The objectives provide
and improves the overall system, eventually an improve- the basis for all other components within the system and
ment in the status of TVET overall as consistency in TVET importantly can be referenced to ensure that the QA
graduate outcomes - important factor in improving per- framework and operational systems that support it are
ceptions of TVET by assuring consistency of outcomes. meeting national objectives.
A TVET Quality Assurance Framework places emphasis
Quality Objectives: The purpose of the quality objec-
on the improvement and evaluation of the outputs and
tives is to specify what the quality assurance system
outcomes of TVET in terms of increasing employability,
aims to achieve. The objectives are more specific than
improving the match between demand and supply, and
goals and should serve as the basis for creating policy
promoting better access to lifelong learning, in particu-
and evaluating performance at a national, state or organ-

61
isational level. The quality objectives should act as basic and associated quality assurance mechanisms are in-
tools that underlie all planning and strategic activities. troduced. Data collection and reporting systems based
on outcomes and outputs rather than input measures
Quality Principles: Quality Principles form the frame-
will be required in order to make full use of the indica-
work underpinning the quality assurance system. They
tors and these will need to be integrated into operational
are statements, based on the objectives, that should be
processes required at both provider and systems level
applied to all schemes and strategies that support qual-
over time so that improvements can be measured and
ity and quality improvement including quality standards
evidence based.
and operating processes.
Quality indicators are statistical measures that give an
National Standards indication of output quality. However, some quality in-
dicators can also give an indication of process quality’
Quality Standards operating nationally act as the bench- (EUROSTAT 2010). The Cedefop (1996) defines them as
mark for all activity in vocational education and training ‘formally recognized figures or ratios used as yardsticks
systems and form basis of quality assuring qualification to judge and assess quality performance’ . Just as qual-
frameworks. These provide national reference points for ity assurance mechanisms can be categorised into front-
all those bodies operating within the system and against end (input) and back-end (output) mechanisms so can
which performance is set.Most systems are based on a quality indicators:
detailed set of standards against which activity is mea-
those that focus on the inputs to and process of
sured and in some cases these form the framework for
training (front-end)
regulation and inspection. The issue of regulation is dealt
with later in the paper. those that focus on outcomes or outputs of training
(back-end).
The standards can cover the following:
Different quality indicators provide different informa-
Assessment and Certification (Module 7) tion so the choice of what indicators to use will de-
NQF Qualifications (Module 8) pend on the priorities of the QA system

Teachers and Trainers (Module 9). Outcome indicators are a wide range of indicators
Training Providers (Module 10) used to measure quality in skills systems at both the
level of training providers and the system as a whole.
They are the “harder side” of quality assurance as they
National Indicators
are mainly measured quantitatively. Most common indi-
National Indicators provide a tool to measure perfor- cators include:
mance at a national, state or local level. The indicators Participation - how many from certain target groups
can be used to assess the quality of provision and the
Completion - how many finish a program
extent to which it is meeting the quality objectives. Year
on year they can provide a useful measure in order to Attainment - how many receive a qualification
monitor improvement. Progression - how many move from one program or
level to another
The indicators give one measure , they are not suffi-
cient on their own to describe what might be happening Employment - how many are employed
across the whole VET system, They can form the ba- Satisfaction - how satisfied are students and em-
sis for developing more detailed performance measures ployers
and reporting systems that relate to the over-arching ob-
jectives for the NSQF and VET. They can provide the ba- Process indicators are the “softer side” as they are as-
sis for describing organisational performance at provider sessed qualitatively. They apply to all aspects of the skills
level, the direction and achievements of the system at system:
state and national level and help in the further develop- Qualifications / Certification – trust in consistency,
ment of skills policy in order to improve outcomes for the robust processes
VET system.
Competency Standards – wide consultation, mea-
Implementing the indicators at system and provider surable outcomes
level will need to be introduced in stages as the NSQF

FROM CONCEPTS TO IMPLEMENTATION

62 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 Curriculum and Courses – learning strategies, in- and shape the outcomes. Discussion at the working
dustry linkages group meetings indicated a range of views. Internation-
Delivery & Assessment – relevance and flexibility, al experience indicates that in complex systems some
pre-assessment moderation activities, consistency form of regulation may be the best tool for providing
in assessment decisions assurances that the system is operating to a minimum
national standard that works towards achieving the ob-
Training Providers - ongoing professional develop-
jectives set. A set of regulatory requirements or criteria,
ment of staff, able to respond quickly and flexibility
particularly with regard to qualifications is a common fea-
to industry
ture where qualification frameworks exist. The nature of
regulation, whether statutory of through a self-regulatory

3. The Quality Cycle and mechanism varies.

the Components of Other implementation tools commonly include approval/

the Quality Assurance licencing of bodies operating within the system, monitor-
ing or inspection of providers and accreditation of cours-
Framework es and qualifications. All of these are operating to some
Quality systems are primarily shaped by national char- extent already within the Indian system but currently are
acteristics and context. This includes (i) the governance not uniform or co-ordinated so that a number of agen-
structures, (ii) mechanisms and cultures of the nation cies may be operating these processes against different
state including the institutional capacity and the priority requirements and in different ways. Bringing some de-
given to reforms, (iii) the structure, processes and cul- gree of commonality to these processes through a clear
tures of education and training systems, (iii) the location set of functions that are required and identifying more
of the ‘ownership’ of TVET and industry and occupa- clearly the roles and responsibilities of each organisation
tional standards between occupational communities, needs to be undertaken if a QA framework is to have an
government and other agencies, (iv) the perceptions of impact on skills outcomes. A trend across VET systems
crises (or lack of) in education and training system, (v) internationally is for the establishment of a single na-
the relevance of trans-national and/or regional TVET sys- tional body which sets the national standards and re-
tems and (vi) available resources. quirements and oversees the system, sometimes using
regulatory instruments and the proposal for the NSDA
In order for the QA framework to have an impact the would effectively fulfil this role.
components must be operationalized across the system
and there must be clear linkages and lines of account- Both the functions required for a robust approach to QA
ability. The need to ensure that quality and quality as- and the nature of the organisations that would be re-
surance is embedded across the whole system, wheth- quired. There was considerable debate around respon-
er re-engineered with new bodies or using the existing sibilities for the various functions identified but all groups
structures, is critical. Accountability may be enforced agreed that a national qualification body with a regulato-
through legislation and/or regulation – either backed ry function across the qualification system was required.
by legislation or through a process of self-regulation by In working through the outcomes of the group’s activities
participants in the system. The benefits of regulation, and deliberations the following sections summarise key
particularly if changes are made systematically to the ex- aspects that have broad agreement.
isting system, are that a regulatory framework can guide

63
Figure 20: The quality cycle

The quality cycle of the Eropean Quality Assurance Reference Framework for Vocational Education and Training

1. Purpose and Plan 2. Implementation

Set up clear, appropriate and measur- Establish procedures to ensure the
able goals and objectives in terms Imp achievement of goals and objectives
ing l
of policies, procedures, tasks and nn (eg. development of partnerships,

em
Pla
human resources. involvement of stakeholders, allocation

e ntatio
of resources, and organisational or
operational procedures).

n
4. Review

w
Deeelop procedures in order to achieve

vie

Ev
3. Assessment and Evaluation
alu
the targeted outcomes 3 ncl.’or new Re atio
n Design mechanisms for the evaluation
objecuees. after processing feedback
of achievements and outcomes by
key stakeholders conduct discussion
collecting and processing data in
and analysis in order to devise
order to make informed assessment
procedures for change.

1. Relevance of quality assurance 4. Completion rate in VET programmes 6. Utilisation of acquired skills in the • Success rate of disadvantaged
systems for VET providers • Number of persons having workplace groups according to age and
• Share of providers applying in- successfully completed attended • Information on occupation gender
ternal quality assurance systems VET programme, according to obtained by individual after 9. Mechanisms to identify training
defined by law at own initiative the type of programmes and completion of training, according needs in the labour market
• Share of accredited VET individual criteria to the type of programme and • Information on mechanism set
providers 5. Placement rate in VET programmes individual criteria up to identify changing demands
2. Investment in training of teachers • Destination of VET learners at • Satisfaction rate of individual and at different levels
and trainers a designated point in time after employers with acquired skills • Evidence of their effectiveness
• Share of teachers and trainers completion of training, according competences 10. Schemes used to promote better
participating in further training to the type of programme and 7. Unemployment rate access to VET
• Amount of funds invested individual criteria • According to individual • Information on existing schemes
3. Participation rate in VET pro- • Share of employed learners at 8. Prevalence of vulnerable groups at different levels
grammes a designated point in time after • Percentage of participants in • Evidence of their effectiveness
• Number of participants in VET completion of training, according VET classified as disadvantaged
programmes, according to to the type of programme and groups (in a defined region or
the type of programme and individual criteria catchment area) according to
individual criteria age and gender

4. Key Requirements of TVET QA Systems

The table below identifies the key requirements for a functioning QA system:

Table 9: Key requirements for a functioning QA system

Key component QA Functional Requirement QA Body Role and Responsibilities Key Processes
NOS/job Provide up to date relevant skills Ensure standards reflect the needs of Collaboration with employers
description standards that meet employer needs employers and are useable and used to Use of up to date LMI
in a particular sector underpin skills provision in VET
Regular monitoring and
Produce standards that can translate review of outcomes and
into relevant learning outcomes sector needs analysis
and competence requirements for
courses and qualifications Updating of standards
Accredited Provide up to date relevant Ensure accredited outcomes and qualifications Standard setting
Learning qualifications and accredited learning meet required standards and policy objectives Regulation and/or
Outcomes and outcomes that meet employer needs for VET including NSQF requirements and accreditation of course and
Qualifications ( as reflected in NOS and LMI) specifications qualification developers
Ensure accredited outcomes and qualifications National Qualification register/
meet the needs of employers and provide database
opportunities for students to acquire
knowledge and skills needed to succeed Collaboration/engagement
with NOS developers and
Ensure accredited outcomes and qualifications employers
are robust and maintain public and employer
confidence in outcomes for students Monitoring/inspection and
review (data, reporting)

FROM CONCEPTS TO IMPLEMENTATION

64 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 Key component QA Functional Requirement QA Body Role and Responsibilities Key Processes
Education Provide relevant, up to date and Ensure all accredited VET providers are Standard setting
and training high quality teaching and learning securing the best outcomes for students
Regulation and / or
Providers and opportunities for students through high quality and relevant teaching and
accreditation of providers
course delivery learning
Provide processes for continuous
Register accredited providers
improvement of training and Ensure the quality of both inputs and outcomes
assessment based on outcomes and in all areas of teaching and learning through Monitoring/Inspection
equity for students processes of accreditation, assessment, Self- assessment
monitoring and reporting
Review and reporting (data
and reports)
Assessment and Provide accessible assessment Ensure assessment is appropriate, robust and Standard setting
Certification opportunities that are focussed on accessible to all learners Accreditation of certifying
skills and competence as well as Ensure quality processes are in place to ensure bodies
underpinning knowledge validity of outcomes across VET Monitoring/ inspection
Provide accessible assessment Ensure the security of the validation and
opportunities for students that Review and reporting
certification scheme/s for VET
meet their circumstances and
requirements including for RPL Ensure the status of certification and public
confidence in this
Provide assessment opportunities
that are relevant to NOS and NSQF
requirements
Provide a robust certification scheme
that incorporates outcomes from a
range of assessment opportunities
including RPL
Student Student outcomes are relevant and of Ensure all student outcomes from both Data collection on outcomes
Outcomes high quality accredited provision and qualifications is Continuous review against
relevant to employers and provides a platform skills requirements ( LMI and
for progression either to further education, NOS)
training or employment.

In summary the key functional requirements to se- Ensuring courses are competency based, provid-
cure a robust QA framework are: ing opportunities for students to develop workplace
skills, competencies and attributes
For NOS and competency standards the establish-
Monitoring and regular review and updating of
ment of a QA process of planning, implementation
courses
and review that ensures only approved bodies which
meet national standards are responsible for: For NSQF Qualifications and accredited outcomes
Development of quality assured, up to date, relevant the establishment of a QA process of planning, im-
skills standards that meet employer needs in a par- plementation and review that ensures that only ap-
ticular sector proved bodies which meet national standards and
regulatory requirements are responsible for:
Development of standards that can translate into
relevant learning outcomes and competence re- Development of quality assured, up to date, relevant
quirements for courses and qualifications qualifications and accredited learning outcomes
that meet employer needs ( as reflected in NOS and
Maintenance and regular review and updating of
LMI)
NOS
Development of qualifications that meet the require-
For accredited courses the establishment of a QA ments for the NSQF including assigning a level
process of planning, implementation and review that within the NSQF, assigning credit ( where relevant
ensures only approved bodies which meet national to qualifications and units/modules) and titling and
standards are responsible for: other technical requirements specified by the NSQF
Development of accredited courses based on NOS Development of accredited outcomes and qualifica-
or units of competency as defined by industry and tions and associated assessment requirements that
with clearly specified learning outcomes meet NSQF standards and policy objectives for VET
Ensuring courses are designed to lead to a recog- Maintenance and review of qualifications and quali-
nised NSQF qualification or certificated outcome fication outcomes to ensure accredited outcomes

65
 and qualifications are robust and maintain public Use a team-based approach to prioritize improve-
and employer confidence in outcomes for students ments and implement them
Provision of accurate and timely data on qualifica- Develop and agree on a plan on how the improve-
tions and student achievement ment activities will be implemented

For training providers the establishment of a QA Involve stakeholders/ clients since they bring valu-
process of planning, implementation and review that able ideas based on their experiences in receiving
ensures that only approved providers which meet and delivering services
national standards for delivery, including teaching Build motivation for quality improvement - a vision
and learning are responsible for: for quality
Providing relevant, up to date and high quality Establish quality improvement teams
teaching and learning opportunities for students Dedicate time to measure performance
Establishing processes for continuous improvement Provide time to openly discuss successes and fail-
of training and assessment based on outcomes and ures
equity for students
Ensuring the quality of both inputs and outcomes in
all areas of teaching and learning through processes
5. Quality Assurance in the
of teaching and assessment Indian Context
Monitoring and regular review of teaching, learning, There are many arrangement currently existing in India,
assessment and student outcomes which can be used as a basis for a national QA system.
Provision of accurate and timely data on student A national policy and guidelines are being proposed by
outcomes and satisfaction ratings the India-EU project and are currently under consider-
ation. Interrim arrangements can be based on improve-
For assessment and certification the establishment ment of current approaches, whilst not slowing down
of a QA process of planning, implementation and re- training and assessment provision. There are ‘low hang-
view that ensures that only approved bodies which ing fruit’ that can assist in getting started. Some indica-
meet national standards are responsible for: tors are already used. The main issue is coordination:
Development of assessment opportunities that are working together.
focussed on skills and competence as well as un-
The current arrangements for QA across all aspects of
derpinning knowledge
vocational education and training in India are complex.
Provide accessible assessment opportunities for There are 3 key structural elements that make this the
students that meet their circumstances and require- case:
ments including for RPL
The current separation of vocational education
Provide assessment opportunities that are relevant (largely undertaken through the MHRD) and voca-
to NOS and NSQF requirements tional training ( now under the Ministry of skills)
Ensure quality processes are in place to ensure va- State autonomy versus national requirements
lidity of outcomes
Differences in practice between the public and pri-
Provide a robust certification scheme that incorpo- vate provision of VET and the formal and informal
rates outcomes from a range of assessment oppor- skills and employment sectors
tunities including RPL
The policy requirements now in place to meet challeng-
Ensure the status of certification and public confi-
ing skills targets for all sectors puts an additional pres-
dence in this
sure on ensuring that not only are targets met in relation
Monitoring and regular review of assessment re- to volume but that the reforms and changes improve the
quirements and certification processes quality and relevance of skills training in India. This is not
a unique set of circumstances. The reform of VET across
Quality improvement-focused organisations
Europe and elsewhere has required consideration of au-
Provide staff the training and tools they need to tonomous systems already in place across nations and
measure and improve services, consultations, train- states.
ing and assessment provision

FROM CONCEPTS TO IMPLEMENTATION

66 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
There are currently a number of validating and accredit-
ing bodies, at both national and state level across the
6. Skype Session:
sector. Many are well established and have a system for The Success Story of
quality control that is understood by those that use it. the Dual System (Helena
Others are newly established, for example, the SSCs Sebag)
and are building their approach to qualifications and
skills under NSDC guidance. There is therefore a need DEQA-VET is a point of contact and service office
to take an approach to a unified system that takes ac- for questions relating to all aspects of quality assur-
count of the context and environment that currently ex- ance and quality development in vocational educa-
ists, that recognises the work already in train and that tion and training (VET), DEQA-VET. It pulls together
brings together organisations in a logical manner and information and expertise, instigates projects and
that can evolve in a way that ensures those that use initiatives, and organises events relevant to quality.
it and are affected by it understand and can apply the As the node of the European EQAVET network, it
measures it requires. Any new approach must be one
Ensures a flow information between national stake-
that improves the quality of outcomes in relation to VET
holders and the EQAVET network on each other’s
across the system.The work to introduce a unified NSQF
QA activities and development.
is a significant one and its success will be dependent
on bringing together, through a unified quality assurance Supporting the implementation of the EQAVET work
framework, all aspects of its implementation, delivery programme.
and outcomes.The existing QA infrastructure focusses Develop concrete measures to support QA and
largely on quality control of the inputs to VET with an quality development in the German VET sector.
emphasis on validation and accreditation of providers
Raise awareness among national stakeholders of
and provision that seeks to ensure products (courses
the benefits of applying the principles, methods and
and qualifications) can be delivered. The system is de-
tools of quality assurance in VET.
veloping in some areas but there is evidence already of
overlapping functions across organisations and lack of DEQA-VET purpose is the promotion of a “culture of
clarity in relation to national standards and accountabili- quality ” through the application of quality assurance in
ties. A real and pressing challenge is how to incorporate VET and networking of VET stakeholders and institutions
practice across both the public and private sector and at the German and European level. In DEQA-VET, there
across the rural and urban areas for the benefit of all. At are on ne hand 4 staff member at the BIBB (Federal In-
the moment, 10% of workforce receives skill training, of stitute for Vocational Education and Training) in Bonn/1
which 2% is formal training and 8% is informal training. person at the DIPF (German Institute for International Ed-
there is a huge need for multi-skilled workers. ucational Research) in Frankfurt, and on the other hand a
national advisory group with representatives of the social
Although outputs in terms of examination successes and
partners: employer and employee associations, cham-
student numbers are measured and accounted within
bers, Federal and state governments (consultative). The
the current systems, measurement of outcomes (that is
target beneficiaries are social partners, companies, vo-
the quality and relevance of delivery and student out-
cational schools, full-time vocational schools, providers
comes) is less visible. It is this aspect of quality that is
of VET, education policy and administration bodies of the
increasingly important so that, combined with a unified
Federal and state governments, certification bodies for
qualification system that has direct relevance to the skills
initial and continuing vocational education and training,
employers need, both the quantity and quality of skills
VET research institutions.
outcomes is raised across all areas of VET.
DEQA-VET is committed to promote the EQAVET in-
However there is a strong emphasis on reforms with the
dicators which are as follows:
PM calling for greater cross Ministry /agency coordina-
tion and 30 crore people to be trained for India and over- 1. Relevance of quality assurance systems for VET
seas work. International comparability is a key objective providers
throughout the system. Reforms include removing some 2. Investment in training of teachers and trainers
regulatory burden, meeting the motto One Nation, One
3. Participation rate in VET programmes
standard.
4. Completion rate in VET programmes

67
5. Placement rate in VET programmes Documentation of the training
6. Utilisation of acquired skills in the workplace Training contact and training programmes
7. Unemployment rate Formulation of basic standards
8. Prevalence of vulnerable groups
But there are challenges ahead, such as:
9. Mechanisms to identify training needs in the labour
market Demand for Skilled Labour
10. Schemes used to promote better access to VET Do we qualify for the right jobs?
How to increase permeability?
The Success-Story of the Dual System …
Demografic Trends
The success of the Dual system is expressed by EQA-
How to increase the attractiveness of VET?
VET indicators
Social Integration
Participation Rate in VET 54,9% (EQAVET Indicator How to decrease the Transition System and inte-
3) grate disadvantaged youth?
Completion Rate in VET 90% (EQAVET Indicator 4) How to decrease the drop out rate?
Youth-Unemployment Rate 7,7% (EQAVET Indica- European Educational Area
tor 7)
How to increase transparency and mobility?

The legal requirements made to Providers are

The Minimum content of a training regulation is as follow:
stated in the Vocational Training Act (BBiG). They
include for each training course Title of the training occupation
Duration of the traineeship
The occupational proficiency
Training profile
Development of training regulations and their con-
tinuous modernisation, containing Framework training plan

- Title of the training occupation Examination standards

- Period of apprenticeship There is a quality assurance system within the Dual

- Training profile system

- Framework training plan

- Examination standards
Counselling, monitoring and supervision by the
competent bodies:
- Training aptitude of the company
- Training aptitude of its training staff (AEVO)

FURTHER READINGS
CEDEFOP, 2009. The relationship between quality assurance and VET certification in the EU Member States. Luxembourg, EU
Publication Office

CEDEFOP, forthcoming. Quality assurance of certification in vocational education and training

UNESCO, 2005. Guidelines in quality provision in Cross-border Higher Education

W. Van den Berghe, 1996, Quality Issues and Trends in Vocational Education and Training in Europe. Publication of the CEDEFOP.

FROM CONCEPTS TO IMPLEMENTATION

68 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
MODULE 7
QUALITY
ASSURANCE OF
ASSESSMENT
CERTIFICATION

1. RELATION BETWEEN QUALITY ASSURANCE AND CERTIFICATION 70

2. ASSESSMENT UNPACKED 72
3. CURRENT PRACTICE AND PROPOSED ACTIONS IN INDIA 76
4. REGULATION OF CERTIFICATION IN UK 76
5. Skype Session: THE ROLE OF OfQUAL IN QUALITY ASSURANCE (JULIE SWAN)* 75

* Julie Swan is Head of Regulatory development at ofqual

69
1. Relation Between the variety of awarding bodies in VET: ministries,
examination boards, VET providers, social partners,
Quality Assurance and sectors skills councils, chambers, etc.,
Certification the range of actors potentially involved in assess-
ment and validation: these can be VET providers
Quality assurance of certification processes is funda-
and awarding bodies, but also employers or social
mental to ensuring that qualifications are generally valued
partners;
and accepted. It is essential that the players in recogni-
tion (certification) systems be subject to quality assur- the nature of learning outcomes to be assessed
ance standards. This ensures consistency across the and validated: compared to academic or general
systems and helps to maintain the legitimacy and value qualifications, learning outcomes in VET are close-
of the system to the individuals participating in it, and to ly related to vocational and occupational activities
the wider society. It also ensures that those participating and evidence of them is diverse and may only be
in recognition systems are held to the same standard. In- ephemeral or fleetingly available to the assessors
consistency in developing standards against which indi- themselves.
viduals are assessed, how they are used across assess-
The process of certification can be seen to encompass
ment centres or educational institutions and how they
3 sub-processes: Assessment, Validation and Recogni-
are communicated to the user may undermine the confi-
tion, which can be, or not, carried out by the same or-
dence of the system. The term certification describes the
ganisation. It follows that to quality assure the certifica-
multiple (and sometimes intermingling) processes of as-
tion process, each of these sub-processes must also be
sessing, validating and recognizing learning outcomes,
quality assured.
which lead to a qualification. This understanding of the
certification process is closely related to the definition with regard to quality assurance of assessment
of the term qualification used in the NSQF Notification (methods and processes used to establish the ex-
which refers to the issue of qualifications by competent tent to which a learner has attained particular knowl-
bodies. edge, skills and competence), methods include use
of centrally defined assessment criteria/ methods/
While the above definition of qualification refers to the precise specifications, use of external examination
term ‘competent body” (like the EQF definition of a quali- centres or examiners, use of assessment commit-
fication), the term ‘awarding body’ is used as a descrip- tees or multiple assessors, and systematic training
tor of an institution that awards qualification certificates of assessors;
(documents) formally recognizing the learning outcomes
quality assurance of validation (the process of
(knowledge, skills and/or competences) of an individual,
confirming that certain assessed learning out-
following an assessment and validation procedure.
comes achieved by a learner correspond to spe-
To judge that a learner has attained a pre-determines cific outcomes which may be required for a unit or
level, he/she must be assessed in some form or other a qualification) as an independent stage from that
and the outcomes of the assessment process must then of assessment make use of validation committees
be validated to establish whether the performance of the involving multiple stakeholders to reach consen-
learner satisfies the set standards. Consequently, learn- sus or to moderate judgments, and use of centrally
ers are awarded a grade or a pass/fail. If the validation is set evaluation grids or grading keys to grade per-
positive, learning outcomes may be recognised through formances. The key is that the original judgment is
the award of a qualification or of its component (a unit) subject t independent third party scrutiny before be-
by issue of a certificate, document, title or diploma. ing confirmed.
However, converting a learner’s performance on an as- quality assurance of the recognition (the process
sessment to a clear indication of attainment (such as a of attesting officially achieved learning outcomes
grade or pass/fail), is not as simple as might be thought. through the awarding of units or qualifications) stage
of the process mainly involves appointment of one
VET qualifications also pose a unique set of challenges
or more awarding bodies recognised as competent
related to certification. When compared to general or ac-
to award a qualification, which were either appoint-
ademic education, these processes are different in VET
ed, selected or approved by one or more regulatory
because of:
bodies, or were themselves the regulatory body or
bodies.

FROM CONCEPTS TO IMPLEMENTATION

70 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
The way in which certification standards (which form the (OEEK), assessed by examiners appointed by OEEK and
basis of the overarching QA framework for certification) are standardised and graded by those examiners.
are developed, as well as their focus (educational, as-
sessment, occupational, etc.) also varies considerably The cooperative model
from country to country. While the methods by which
these standards are maintained also differed, they rely To some extent, this model represents the approximate
on two, ostensibly opposite factors: regulation and bind- mid-point of the continuum. Here, for example, while
ing guidelines one the one hand and trust and autonomy there are some awarding bodies that retain the respon-
on the other. What tends to vary from country to country sibility of designing assessment criteria and broad meth-
was the balance between the level of regulation and the odological boundaries, decisions concerning the exact
level of autonomy. So it is possible to categorize quality- form and content of the assessments is left to individual
assurance systems of certification into models along a providers. The education providers may also be respon-
continuum based on the division of responsibilities. It is sible for marking or even grading the examinations but
possible to describe three broad (and inevitably overlap- this responsibility is closely overseen by the examinations
ping) models: body, who may themselves be overseen by a regulatory
authority. Providers may have to submit their activities to
scrutiny, or remain within certain guidelines. They may be
The prescriptive model
required to train their staff to take on some of the quality
This model represents one end of the continuum . There assurance processes and even to grade learners directly,
may be VET qualifications in some countries whose as- but the ultimate responsibility for ensuring the quality of
sessment methods are entirely designed by one award- the certification process lies within the hands of an exter-
ing body, from design of the assessment criteria, to nal agency. The model essentially relies, therefore, on an
specification of the exact methodology and content of element of mutual cooperation and trust, both in formu-
the assessments. Further this same body may be re- lating practices and in undertaking those practices. This
sponsible for marking (scoring) the assessment, qual- model does often involve separation of responsibilities
ity assurance of the marking, validation (grading) of between the quality assurance of assessment and the
the qualification and its quality assurance, through to quality assurance of validation, even if exactly where the
the recognition (awarding of a certificate and the qual- separation occurs varies.
ity assurance (through self or external regulation) of the
The Irish system of VET quality assurance is very close
recognition process. Under such a system, the educa-
to the cooperative model. The assessment process is
tion provider, while potentially having a great deal of re-
based on qualifications standards that are defined in the
sponsibility in other important areas such as teaching,
national framework of qualifications (NFQ). The Further
mentoring and even curriculum development, in terms
Education and Training Awards Council (FETAC, the
of the certification processes is little more than a conduit
main awarding body for VET qualifications) sets cer-
between the individual learner and the awarding body. In
tain requirements concerning the range of assessment
practice, it is comparatively rare to find such extremes in
methods that are accepted as valid and reliable or the
terms of the division (or lack of) of responsibilities, but the
need to put in place certain process (the internal and
scenario does illustrate the point.
external verification process). However, the assessment
In Germany most VET qualifications come with three methods and criteria, and the assessment programme,
certificates; one from the vocational school, one from are defined by the provider together with the training
the employer and one from the chamber. All three are programme. These are than approved by FETAC, which
quality assured differently. Probably the most important also monitors how they are implemented.
certificate, the one issued by the chamber which allows
In the UK-England, the best example of the cooperative
learners to practice within an occupational field, is en-
model is national vocational qualifications (NVQs) and
tirely under the jurisdiction of the examination boards,
apprenticeships. These are based on achieving learning
although these are, in turn, regulated by the chamber.
outcomes consistent with national occupational stan-
The qualifications obtained in vocational training insti-
dards. However, the quality assurance of assessment
tutes (IEKs) in Greece also fit this model of quality as-
and validation are responsibilities shared by accredited
surance. While some of the practical assessments occur
providers and awarding bodies, all overseen by Ofqual,
within providers’ establishments, they are designed by
which reports directly to the Parliament, and (in the case
the Organisation for Vocational Education and Training

71
 of NVQs), in accordance with a code of practice for qual-
NZ APPROACH OF ASSESSMENT COORDINATION
ity assurance.
NZ Qualifications Authority - National Assessor stan-
dards
Accredited Assessors, in the workplace and in training
The self-regulated model
institutions
This model seems the antithesis of the prescriptive mod-
Providers and Industry Training Organisations (ITOs) el, lying at the opposite end of the continuum of division
must be granted consent to assess standards (accred-
ited) by NZQA of responsibilities. In this case, the VET provider is also
the awarder of the qualification certificates, taking on the
Training institutions award and issue New Zealand
quals at levels 1-6 on the New Zealand Quals Frame- responsibility of quality assuring all aspects of the certi-
work fication process, without deferring to any higher govern-
Internal moderation and national ITO external modera- mental or sub-governmental agency.
tion
An example of the self-regulated model would appear
Internal moderation processes embedded in quality
management system of training organisation to be that of apprenticeships in Greece, which tend to
be entirely under the regulation of the providers, from
NZQA appoints moderators – assessment tools (includ-
ing strategies), internal moderation plans training and curriculum decisions through to grading and
accreditation. It is likely that the quality assurance of pri-
External moderation at least once a year, distance
moderation, a moderation visit or participation in a vate (non-State-funded) CVET in many countries in the
moderation group meeting EU follows this model. Such a model prevails where the
Assessors must be competent in the following identification of needs tends to be specific to an employ-
Use standards to assess candidate performance er/occupation and that the provision is privately funded
given the kudos associated with the branding of the
Moderate assessment
certificate. – be it a professional body or a well-known
SRI LANKA APPROACH OF CERTIFICATION employer.
Managed by the Tertiary Vocational Education Council
Perhaps the most common example of the self-regulat-
- trains, certifies, ongoing professional dev. of ed model, alongside that of CVET in many countries, is
Assessors
VET at a tertiary level in universities. Most universities in
- Independent and institution based the EU appear to be unitary awarding authorities in their
- Assessor standards own rights, acting as providers and awarders of qualifi-
Levels 1 – 4 qual greater emphasis on performance cations. While some are overseen by other external bod-
criteria specified in the respective units of competen- ies, often (as in the case of Ireland and the UK-England)
cies
this arrangement is mostly voluntary, with universities
Levels 5 and 6 quals two stages of assessment, bal- working.
ance towards the underpinning skills applied to the
PCs together and with the external agency (in Ireland the
Internal moderation panel – external TVEC pre-assess- National Qualifications Authority and in UK the Qualifi-
ment moderation
cations Assurance Agency) to provide self-determined
TVEC endorse assessment materials developed by a quality assurance principles and practices.
division and validated by a NITAC
Institutions select two registered assessors - one act-
ing as the assessor and the other as the verifier. Both
assessor and verifier are present for assessment of
2. Assessment Unpacked
NVQ level 4 and above
Assessments for NVQ level 3 and below, the verifier
Defining assessment
checks the assessment of assessor through documen-
Assessment is the process of measurement. It is a pro-
tary evidence and certifies assessor through documen-
tary evidence and certifies cess by which evidence is gathered and judged/evalu-
ated by an Assessment Practitioner in order to decide
Accredited institutions obtain the approval of the othe
TVEC for the selected assessors whether an individual has demonstrated the required
skills, understanding and knowledge when compared
NVQ level 5 and 6 quals may require the appointment
of additional specialist assessors for particular areas with a pre-determined standard.
Once notified of results TVEC

FROM CONCEPTS TO IMPLEMENTATION

72 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
The outcome of the assessment - or measurement - will Transparency (the assessment criteria and meth-
only hold value if it is measuring what it is supposed to odology are clearly identified and shared with teach-
measure (ie it is valid) and that it is done so in a secure, ers/trainers and candidates; similarly, assessment
robust and reliable manner (ie it is reliable). practice is open to external scrutiny).

In the education and training sectors, policy drivers influ- To support the embedding of these Assessment Prin-
ence the approach taken when designing assessment ciples into current assessment practice, it is assumed
strategies. For example, if the purpose is to select, rank that organisations and individuals with responsibility for
order or sift according to learner achievement then the assessment will:
assessment will be largely norm-referenced, whereas if demonstrate high levels of integrity and accountabil-
the policy is to confirm mastery, ie that the learner can ity- commit to the avoidance of conflicts of interest
do, does know, does understand, then the assessment and be independent of the employer or training or-
will be standards-referenced. In the skills sector, as in ganisation-
most countries, India has adopted a standards-refer-
support the development of a high quality, profes-
enced model.
sional community of assessment bodies and profes-
With standards-referenced models of assessment, the sional assessment practitioners.
process of assessment is to establish that candidates
have met the required industry-defined standards (the Uses of assessment
NOS or other nationally-adopted skills standards) and
Assessment may be used in different ways and on dif-
the outcomes reported as ‘competent’ or ‘not yet com-
ferent occasions according to its purpose. Such uses of
petent’.
assessment (with clarification) include:
Assessment principles Diagnostic (finding out what’s known and what gaps
there might be.
Irrespective of the chosen assessment strategy and se-
Formative (checking that learning is happening)
lected method/s of assessment, assessment systems
and practice should adhere to a common set of Assess- Summative (tying in all aspects of learning through a
ment Principles. The Principles should allow for flexibility final application)-
in their interpretation according to the variety of purposes Internal/External (allowing the teacher/trainer/super-
for which assessment is used. They should also reflect visor, as assessor, to make judgments v. an inde-
international norms: important, given the NSQF ambition pendent, third party judge)-
to achieve international equivalency.
High stakes/Low stakes (leading to License to Prac-
Assessment principles tice v. recognition to motivate)-
Validity (that the selected assessment method at- Work-based/simulated (performance in the work-
tests to the pre-determined content, skills, behav- place/simulation requiring integrated technical and
iours)- soft skills)
Reliability (the assessment generates the same Depending on the purpose or use of assessment, then
outcome over time and place, irrespective of theper- the choice of assessment method or tool might vary as
sonnel making the judgement/decision)- well as the relative importance of each of the Assess-
Comparability (the assessment decisions/judge- ment Principles.
ments align wherever multiple assessment bodies
are assessing against the same standards/bench- Assessment methods/tools
marks) –
There are a variety of means by which learners’ knowl-
Manageability (the assessment is manageable and edge, understanding and the practical application of
practical for all concerned and remains cost-effec- acquired skills may be assessed. In the case of NSQF
tive as well as efficient and is capable of scaling-up)- qualifications the choice will usually be prescribed by the
Accessibility (the assessment avoids placing un- standard-setting body.
necessary barriers to the demonstration of attain-
ment)

73
Assessment methods/tools include: Each stage in the cycle is briefly described below to-
Observation – of individual performance and/or gether with an indication of which Assessment Principles
within a group (of process, attitudes, behaviours must be given particular attention:
and application of skills).
Design – the stage where the assessment strategy/
practical assessment (of completed artefact). framework, assessment criteria and selected methods
witness/third party evidence (from workplace/from are determined by the purpose of the qualification, the
trainer oral and written questioning- simulation (role level of demand required by the NSQF Level and are in
play, scenario-building to replicate work-place). line with all the Assessment Principles - all Principles, but
Validity is paramount. (Where relevant, the assessment
course work (structured in line with pre-determined
strategy must align with the agreed industry standard
standards of performance) – assignments/reports/
and, as appropriate, the international standard)
projects.
professional discussion. Development – where the chosen assessment tools/
methods together with supporting documentation re-
Evidence of own work from the work-place.
quired by both Assessors and candidates are developed
Each assessment method has its advantages and limita- and, as required, specific guidance for the organisation
tions; it is the experience and expertise of the Assess- of the assessment session (Reliability, Minimising Bias
ment Practitioner, in making the selection, who builds on and Manageability uppermost)
the advantages and overcomes the limitations.
Delivery – the stage where the assessment tools/meth-
ods are deployed. This includes standardisation of As-
Figure 21: Stages in assessment (the assessment life sessors prior to the live assessment sessions to agree
cycle) acceptable variations in performance, remove ambigui-
ties and establish confidence that the appropriate stan-
dard of performance will be recognized and recorded.
(Reliability, Minimising Bias, Comparability, Transparency
Evaluate and formulate Design uppermost).
action: make adjust-
ments to process and
procedures at any one
Develop Judging – at this stage Assessors exercise their profes-
of the early stages
sional judgement in line with the required standards of
Confirm and performance and in line with the guidance given at the
issue result pre-assessment standardisation event (Reliability, Valid-
ity uppermost)
Deliver

Review and Recording – the stage at which Assessment decisions

provide are recorded (Reliability and Validity uppermost, but all
feedback relevant)
Judge
Record Reporting – this stage will follow procedures and proto-
cols laid down by the assessment and/or certifying body

Standardisation/validation – the stage where assess-

To support Assessment Bodies and Assessment Prac- ment decisions are independently reviewed in line with
titioners in their understanding of how the Assessment pre-determined standard of performance. (Reliability, Va-
Principles may be applied to their work, it is useful to lidity and Transparency uppermost)
consider assessment in terms of a series of stages or,
given the inclusion of evaluation & action planning, Confirmation and issue of results – (All Principles)
a lifecycle. (This lifecycle will form the basis of the stan- Evaluation and Feedback – this stage requires a sys-
dards required to be evidenced by Assessment Bodies tematic review of how assessments have performed with
seeking accreditation within the NSQF Quality Frame- adjustments, as required, being made to procedures
work). & processes at any one of earlier stages, including
the identification of training needs (how the Assessment

FROM CONCEPTS TO IMPLEMENTATION

74 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Principles have been reflected in each of the previous final confirmation. There should be clear lines of respon-
stages will form the basis of such evaluations) sibility for sign off at each stage prior to the result be-
ing forwarded, as appropriate, to the relevant certifying
A quality assurance model underpins the working of the
body.
lifecycle, hence the final stage of evaluation and feed-
back. Each stage should have defined processes which Quality Assurance
are to be followed, with documentation and records
All processes within the assessment lifecycle, as pre-
available for external scrutiny. Such records will be used
viously indicated, will be subject to an overarching QA
to deal with requests for information in line with Com-
model operated by the Assessment Body.
plaints and Appeals.
In addition, a quality assurance model will operate at
Notwithstanding the importance of quality assurance,
the level of Assessment Practitioners, covering their re-
the role of the assessment practitioner engaged atevery
cruitment, training, standardisation activity, deployment,
stage of the lifecycle is critical. This staged approach al-
monitoring, reviewing and, finally, the evaluation of their
lows for the clear articulation of functional responsibility
performance. For each activity, clearly articulated pro-
which, in turn, may be grouped into defined job roles and
cesses and criteria will be in place against which As-
responsibilities.
sessment Practitioners will be managed and supported.

Quality control and quality Where Assessment (and Certifying) Bodies seek to work
assurance within the requirements of the NSQF, then their internal
QA processes will be required to align within the NSQF
Quality control Quality Assurance Framework.

Assessment Bodies should define the processes they Building a community of professional Assessment
will use to control the quality of work at each stage of the Practitioners
lifecycle. Where assessment tools are being developed,
however, quality control becomes critical. Tools should Given the high premium placed on assessment, it is im-
be developed in line with the Assessment Principles and portant that a national Assessment Guidelines supports
should comprise both the assessment itself and the nec- the development of a community of professional assess-
essary accompanying rubric/marking guide for Asses- ment practice at the organisational as well as at the level
sors. This applies to all assessment methods: theory pa- of the individual.
pers, observation, assessment of completed artefacts,
This means that:
etc. Both the assessment tool itself and its accompa-
nying rubric/marking guide should be cross-referenced Accredited Assessment Bodies have clearly defined
to the pre-determined learning outcomes/standards. (In assessment policies and systems that are embed-
the case of NOS-based assessments, there should be ded and owned by management Accredited As-
clarity of cross-referencing to the PCs/Units.) sessment Bodies have demarcated roles and re-
sponsibilities for their Assessment Practitioners.
First versions of the assessment tool and accompany-
Accredited Assessment Bodies support the on-
ing rubric/marking guide should have a minimum of one
going professional development of their permanent
external/independent review before final approval as well
and contractual employees.
as internal sign off by senior Assessment Practitioner.
Assessment practice, wherever it takes place, ad-
Prior to the first live assessment session, it is essential heres to the Assessment principles
that a pre-assessment standardisation exercise takes
Assessment decisions are appropriately document-
place in which Assessors will become familiar with the
ed, recorded and issued and that responsibility and
requirements of the rubric/marking guide and agreement
accountability for such decisions is transparent in
reached on what permissible variations there might be
the system
when arriving at judgments of meeting the required stan-
dard. Assessment Practitioners have opportunities to
achieve qualifications and have clear routes for ca-
Quality control is also practiced at the point of review reer progression
of initial results, standardisation/validation of results and

75
3. Current Practice and organisation then submits its qualifications on to Ofqual’s
central qualifications’ register.
Proposed Actions in
India The regulator is independent of government: the Chief
Regulator - head of Ofqual - is accountable to Parlia-
ment, in the same way that the Chief Education Inspec-
Table 10: Current practice and proposed intervention in
India

Practice of current system Proposed intervention

1. Are SSCs designing fit for purpose assessment strategies? PURPOSE OF INTERVENTION
2. Are VTPs ensuring trainees are appropriately prepared for assessment? To ensure the system is robust enough to scale up the sys-
tem is capable of continuous improvement the certification
3. Are the assessment tools fit for purpose?
process is rigorous, defensible, holds value & status confi-
4. Are A/bodies following robust/documented procedures for development dence & credibility in the system the system is capable of
of assessment tools? achieving its goal of international equivalence/recognition
5. Are A/bodies ensuring consistency/security of delivery of assessment? • Draft an Assessment Guidelines capturing the re-
6. Where more than one a/body involved, how do we know the assess- quired stages of the lifecycle
ments are comparable? • Review & evaluate existing practice re robustness,
7. Are the Assessment practitioners appropriately trained & supported? scalability, continuous improvement

8. Are the posted results valid & reliable? • Train assessment practitioners in line with acknowl-
edged good assessment practice
9. Where more than one a/body involved, how do we know the assess-
ments are comparable? • Introduce systematic reporting to assist accountabil-
ity & transparency
10. Are the Assessment practitioners appropriately trained & supported?
• Use standardised procedures & documentation with
11. Are the posted results valid & reliable? regard to assessment practitioners: recruitment,
12. Where more than one a/body involved, how do we know the assess- training, deployment, monitoring
ments are comparable? • Monitor and review practice
13. Are the Assessment practitioners appropriately trained & supported? • Promote informal networking of assessment bodies
14. Are the posted results valid & reliable? and of assessment personnel

4. Regulation of tor, the head of Ofsted, the independent monitoring/

review body of publicly funded education & training, is
Qualifications in the UK: accountable. Both bodies, therefore, are seen to provide
A Briefing Note an invaluable, independent role by overseeing the quality
of publicly funded education, training & the certificated
(To note that there is no single over-arching regulatory
outcomes achieved by learners and trainees.
system in the UK: responsibility for this is delegated to
the level of the country concerned, although, in practice, There are almost 200 regulated organisations in Eng-
each regulator follows similar, if not identical, practice. land. These vary from small, specialist, sector-specific
This background briefing note refers to the regulation of awarding organisations to very large, multi-sector, inter-
Vocational Qualifications in England) national organisations, such as Pearson. They are all re-
quired, however, to demonstrate compliance in line with
Regulation Ofqual’s requirements.

Regulation of qualifications in England is effected via The awarding & qualifications’ sector in England - and
the regulation of the organisations that design, devel- the UK generally - operates as a market. Educational
op, operate and award the qualifications. The focus of and training providers, including employers, exercise
regulation is therefore strategic, putting the onus on the choice when selecting the most appropriate qualifica-
organisation to prove that it meets - and continues to tion to meet the needs of their learners/trainers/employ-
meet - the regulatory criteria. The regulator, Ofqual, exer- ees. If the course is to be funded from the public purse,
cises oversight through initial approval and on-going au- however, then the provider must ensure the qualification
dit, including a requirement that regulated organisations chosen is both one offered by a regulated awarding or-
submit annual Statements of Compliance. Regulated or- ganisation and is on the central government’s list of ‘ap-
ganisations are known as awarding organisations. Once proved’ qualifications.
regulated - recognised is the official term - the awarding

FROM CONCEPTS TO IMPLEMENTATION

76 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Central Government’s role in the qualifications & award- qualifications to Ofqual’s qualification register as well
ing business - beyond policy development - is limited to as to the approved lists operated by both DfE and BIS,
that of determining which qualifications- and courses - it has focussed more and more on the nature and extent
will fund from the public purse. The funding is for both the of employer involvement/engagement in the design &
course delivery and payment of the qualification fee. Two development process of the qualification. The onus is
government departments are relevant here: the Dept for therefore on the awarding organisation to put consider-
Ed (DfE) which has responsibility for 14-18 learners and able effort into establishing, maintaining and enhancing
the qualifications they take, as well as shared respon- their direct links with industry, at the level of both indi-
sibility for Apprenticeship programmes and the associ- vidual employer as well as their representative bodies,
ated qualifications; the Dept for Business, Innovation & such as SSCs.
Skills, (BIS), which shares responsibility for Apprentice-
The role of the regulator, Ofqual, and the additional re-
ships and has sole responsibility for adult training, skills
quirements laid down by the government of the day via
development and the qualifications/courses considered
its ‘approved for funding lists’ are, between them, in-
critical for older learners. Both Depts publish annual lists
tended to safeguard the public when making choices in
via their agencies of which qualifications are eligible for
the awarding & qualification market.
public funding. In practice, the content of such lists re-
flects Government’s current education/skills develop- Isabel Sutcliffe ([email protected])
ment priorities. 13/2/15
It follows, therefore, that most awarding organisations
seek to get their qualifications on to the relevant lists
5. SKYPE SESSION
managed by government departments and their relevant The Role of OfQUAL
agencies. (BIS has an agency, Skills funding Agency, (Julie Swan)
SfA, which is responsible for this). To do so, they must
not only meet Ofqual’s regulatory requirements but also The English context: in England, Awarding organisa-
any further requirements laid down by the Gov Dept. In tions design, develop, deliver and award qualifications.
both cases, where the qualification is deemed to meet a They are responsible for assessment and for certifica-
training, skills development need, the demonstrable in- tion. They are not responsible for teaching, although
volvement of industry/employers in the design, develop- many awarding organisations provide materials to sup-
ment and delivery of the qualification is essential. port teaching and learning. In many sectors/for some
qualifications awarding organisations compete with each
For awarding organisations to operate successfully in other for business, for a share of the market. Regulation
the market, therefore, it is critical that their qualifications, is ‘optional’ – unless public funding for providers/stu-
as a minimum, are attractive to the customer, ie the edu- dents is sought. Many awarding organisation seek regu-
cation, training provider and employer by meeting the lation even when it is not needed for funding. OFQUAL
following requirements: regulate about 160 awarding organisations (AOs) which
being regulated and on ‘a list’, therefore eligible for between them make available about 20,000 different
public funding qualifications – some are taken in very large numbers,
some are very specialist. Awarding organisations include
demonstrate evidence of demand, ie endorsement
professional bodies, commercial organisations, chari-
by industry and/or HE
ties. Some offer a wide range of qualifications, others
provide for progression (clear sign posts for suc- provide qualifications in one niche area only. OFQUAL do
cessful candidates to where the qualification might not regulate degrees.
lead)
OfQUAL aims to intervene to address unhelpful market
ease of delivery, manageability of assessment, good
pressures - eg a ‘race to the bottom’, to intervene so
support materials
qualifications are comparable when they need to be, to
excellent customer service in support of course & allow people to access information that will help them
qualification delivery decide which qualification is best for them and finally to
affordability enable awarding organisations to be innovative and re-
sponsive and to avoid unnecessary burden - we focus
In recent years, the evidence that awarding organisa- our regulations on outcomes not process.
tions need to provide in support of their submission of

77
How do we regulate We try to target our intervention. When we decide
where we direct our resources we consider the impact-
We ‘recognise’ organisations to award regulated quali- if something went wrong with a qualification and/or an
fications, if we are satisfied with their Identity, constitu- awarding organisation, taking into account how a quali-
tion and governance, their integrity, their Resources and fication is used (what it’s for), the market factors (e.g.
financing, their competence. Once recognised we hold are there multiple providers competing to provide similar
awarding organisations to account for the quality and qualifications), the employment sector (e.g. strength of
standards of their qualifications institutions/mechanisms to drive the right content for oc-
cupational qualifications), the underlying funding – pri-
Once recognised an awarding organisation must comply
vate vs public purchasersand the internal drivers for high
on an on-going basis with our Conditions of recognition.
standards (e.g. professional body oversight)
he Conditions cover both the organisation’s governance
and resources and the lifecycle of a qualification. We We can take action if an awarding organisation breaches
check their compliance by looking both at the way an or is likely to breach a Condition. We can, for example
awarding organisations designs, delivers, marks and direct the organisation to comply, fine the organisation,
awards qualifications (its systems) and by looking at indi- withdraw recognition and we can also use other forms
vidual qualifications. of influence to bring about the changes needed. We are
increasingly focusing on the validity of qualifications.
Figure 22: The general conditions of recognition Validity is the degree to which it is possible to measure

Part 1: The awarding organisation

A: Governance A1 Suitability for continuing recognition
A2 Establishment in the EU or the EFTA
A3 Safeguards on change of control
A4 Conflicts of interest
A5 Availability of adequate resources and arrangements
A6 Identification and management of risks
A7 Management of incidents
A8 Malpractice and maladministration
B: The AO and Ofqual B1 The role of the responsible officer
B2 The annual statement to Ofqual
B3 Notification to Ofqual of certain events
B4 Notice to provide information to Ofqual
B5 Representations regarding qualifications
B6 Cooperation with Ofqual
B7 Compliance with Regulatory Documents
B8 Compliance with undertakings given to Ofqual
C: Third Parties C1 Arrangements with third parties
C2 Arrangements with Centres
C3 Arrangements with publishers
Part 2 - The regulated qualification
D: General requirements for D1 Fitness for purpose of qualifications
regulated qualification D2 Accessibility of qualifications
D3 Reviewing approach
D4 Responding to enquiries and complaints procedures
D5 Compliance of qualifications with Regulatory Documents
D6 Compliance of units developed by others with Regulatory Documents
D7 Management of the withdrawal of qualifications
D8 Making available information to meet Teachers' needs

FROM CONCEPTS TO IMPLEMENTATION

78 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 E: Design and development of E1 Qualifications having an objective and support
qualifications E2 Requirements on qualification titling
E3 Publication of a qualification specification
E4 Ensuring an assessment is fit for purpose and can be delivered
E5 Assurance that qualifications complywith the conditions
E6 Submitting qualifications to the Register
F: Providing qualifications to F1 Information on fees and features of a qualification
purchasers F2 Packaging qualifications with other products or services
F3 Invoicing
G: Setting and delivering the G1 Setting the assessment
assessment G2 Language of the assessment
G3 Use of language and stimulus materials
G4 Maintaining confidentiality of assessment materials
G5 Registration of Learners
G6 Arrangements for Reasonable Adjustments
G7 Arrangements for Special Consideration
G8 Completion of the assessment under required conditions
G9 Delivering the assessment
H: From marking to issuing H1 Marking the assessment
results H2 Moderation where an assessment is marked by a Centre
H3 Monitoring the specified levels of attainment for a qualification
H4 Adjudication by Ofqual of specified levels of attainment for a qualification
H5 Results for a qualification must be based on sufficient evidence
H6 Issuing results
I: Appeals and certificates I1 Appeals process
I2 Compliance with Ofqual's appeals and complaints process
I3 The design and content of certificates
I4 Issuing certificates and replacement certificates
J: Interpretation and J1 Interpretation and definitions
definitions

what needs to be measured by implementing assess- different qualifications. We have mapped the levels to the
ment procedures. Valid qualification means primarily European Qualifications Framework – this helps mobility.
good educational outcomes
Table 11: EQF and the Qualifications and credit
For a qualification to be valid: framework
it must have a recognised purpose
EQF QCF
The knowledge, skills and understanding that com-
Entry (1)
prise the qualification content must be valued by
Entry (2)
end users
Level 1 Entry (3)
The performance described by each result must be
Level 2 Level 1
an accurate reflection of what that candidate can do
Level 3 Level 2
outside the test or assessment environment
Level 4 Level 3
The assessments must classify candidates’ abilities
Level 5 Level 4/5
reliably
Level 6 Level 6
We have a Qualification framework in which each quali- Level 7 Level 7
fication receives a level. It includes 1 – 8 plus 3 Entry Level 8 Level 8
levels. The level indicates the relative level of demand of

79
We are planning to introduce a new framework for regu- stand and be able to do for specific roles. Expectations
lated qualifications that will: about what qualifications can and should be expected to
retain the levels, but introduce new level descriptors do must be managed. Considering the important of as-
sessment in qualifications, building assessment exper-
introduce a consistent way of describing the size of
tise into the system is urgent, especially the assessment
qualifications – which is the time it typically takes
of generic skills, including the ‘softer skills’ employers
learners to complete a qualification
value, alongside technical skills. It is not easy to achieve
help people understand the range of qualifications an appropriate balance between reliability, validity and
on offer - but it can only provide partial information manageability (including cost), avoiding inappropriate
statements about the ‘equivalence’ of different qualifica-
The main challenges are to make sure that the qualifica-
tions.
tion covers the right content to the right standard, espe-
cially when there isn’t a common, clearly described view OfQUAL strives to fulfil its role in a wider national and
within a sector about what people must know, under- international system.

FURTHER READING
Eurydice (2008). Levels of autonomy and responsibilities of teachers in Europe. Brussels: Eurydice. Available from Internet: http://
eacea.ec.europa.eu/ressources/eurydice/pdf/0_integral/094EN.pdf [cited 16.2.2009].

Further Education and Training Awards Council - FETAC (2006). Monitoring: policy [online]. Available from Internet: http://www.
fetac.ie/monitoring/Monitoring_Policy_March_06.pdf [cited 16.2.2009].

Lennartz, D. The examinations field of action: interim evaluation and future prospects. BWP, Special edition, 2005, p. 32-37.
Available from Internet: http://www.bibb.de/dokumente/pdf/a1_bwp_special-edition_lennartz.pdf [cited 16.2.2009].

Ministère de l’Éducation Nationale (2008). BTS Conception et Industrialisation en Microtechniques: Annex II. Le Bulletin Officiel
du Ministère de l’Enseignement Supérieur et de la Recherche, 21, 22 May 2008, p. 1070. Available from Internet: ftp://trf.educa-
tion.gouv.fr/pub/edutel/bo/2008/21/annexe_ESRS0807889A.pdf [cited 16.2.2009].

Quinn, David (2006). Are all our children really such geniuses? The Sunday Times, August 20, 2006 [online]. Available from
Internet: http://www.timesonline.co.uk/tol/news/world/ireland/article614322.ece [cited 16.2.2009].

Reuling, J.; Hanf, G. (2003). New forms of co-operation between institutions and stakeholders in continuing IT Training to pro-
mote lifelong learning. Working paper for the meeting of the thematic issue group 3, ‘Co-operation of different institutions and
stakeholders of qualifications systems’, Turin, 16-17 June, 2003 [online]. Available from Internet: http://www.bibb.de/de/7043.
htm [cited 16.2.2009].

FROM CONCEPTS TO IMPLEMENTATION

80 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
MODULE 8
QUALITY
ASSURANCE OF
QUALIFICATIONS

1. THE IDEA OF STANDARD 82

2. QUALITY ASSURANCE STANDARDS OF QUALIFICATIONS 83
3. REGISTERS OF QUALIFICATIONS 86
4. Skype Session: COMPARISON OF SCOTLAND, ENGLAND AND GERMANY QUALITY
ASSURANCE SYSTEMS (MIKE COLES)* 88

* Mikes Coles is an international consultant.

81
All organisations approved to develop qualifications typically the standards used for the certification pro-
within a NQF must comply with all the design specifica- cess;
tions relevant to their responsibilities within the NQF. A (b) occupational standards: may specify the profes-
detailed set of requirements is developed by the body sional tasks and activities the holder of a qualifica-
responsible for the NQF nationally so that an appropriate tion is supposed to be able to carry out, and the
approval process can be established for all qualifications competences needed for that purpose. Occupa-
within the NQF. tional standards are often set through a dialogue
with stakeholders in the economic world and reflect
the needs of the labour market and of society more
1. The Idea of Standard generally. They are often the basis for deriving the
Conceptualisations of the word ‘standard’ vary consid- other two types of standards.
erably according to the context in which it is used. For (c) educational standards: may define the expected
example, when purchasing an item of clothing (a pair of outcomes of the learning process leading to the
jeans) which comes in various styles, the term ‘standard award of a qualification. These standards relate to
fit’ might be used to imply something that is common- education and training and are the basis for defining
place or unadorned with additional, optional features. appropriate teaching and training methodologies
Even within educational contexts, the word is used with and approaches.
different meanings. The complaint can be heard that
educational ‘standards are falling’ when what is really Not all countries distinguish between these three types
implied is that educational attainment or achievement of standards or define them centrally (Cedefop, 2008).
is falling. Alternatively, one might hear standards being While in some cases, for example, only the educational
referred to as a set of benchmarking criteria: the defini- standards are defined centrally and are used for certifi-
tion of a ‘minimum standard’ of attainment below which cation, elsewhere the distinction is very clear. Further, in
performances would be unacceptable. some countries the term used to refer to national stan-
dards may differ from the three categories above, as in
In the context of education and training, this latter con- those countries using the term National Curricula rather
ceptualisation of the word standard is used in various than standards. However in most cases even though dif-
instances: in general, standards are characterized by the ferent words are used the rationale behind these stan-
fact that they are set by a certain authority and describe dards is:
criteria which characterize either the average or the mini-
that of the labour market requirements for a profes-
mum performance, tasks, outcomes, etc. expected. In
sion: occupational standards;
relation to qualifications and certification processes, ac-
cording to a Cedefop study concerning the development that of the educational programme and what the
of qualification standards within Europe, these standards training programme is expected to deliver: educa-
are considered to be norms and specifications apply- tional standards;
ing to assessment, educational pathways or targeted that of the certification process and of assessment
occupations. The following types of standards can be requirements and criteria: assessment standards.
distinguished:
(a) assessment standards: may specify the object of The table below indicates how selected countries deal
assessment and performance criteria. These are with standards.

Table 12: Examples from European Countries (Source CEDEFOP)

Country Type of standards Description

CZECH REPUBLIC Currently: educational standards Currently assessment in IVET is based on educational standards (curriculum)
and the assessment criteria are not standardised. In CVET there are no cen-
trally set standards for the moment.
Future: Assessment standards
With the introduction of the NQF, qualifications are undergoing reform and
will be based on qualifications standards. Qualifications standards will be the
basis for curricula and also for assessment standards (in the NQF).
The latter will be progressively introduced as the basis for assessment.

FROM CONCEPTS TO IMPLEMENTATION

82 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 Country Type of standards Description
GERMANY Assessment standards These are defined together with educational and occupational standards and
have the characteristics of legislation.
(Prüfungsanforderungen)
GREECE Educational standards Educational standards are used by the awarding body (theoretical part) and
providers (practical part) to design assessment. However, their use for assess-
ment is not regulated.
SPAIN Educational standards (módulos These standards define the education and training content, the competences
formatives) to be achieved and the assessment criteria.
FINLAND Educational standards Assessment is based on the standards defined in curricula. Competence-
based qualifications: assessment standard
Competence-based qualifications contain the training and assessment stan-
dards.
FRANCE Assessment standards Assessment standards are defined as part of the qualification definition when
registered in the national repertory of qualifications.
(référentiel de certiication)
For sectoral qualifications assessment is also based on assessment standards
IRELAND Qualification standards (as defined Award specifications contain a description of learning outcomes and of as-
in the award specifications) sessment techniques.
ROMANIA Qualification standards These define the competence to be achieved and the performance criteria for
assessment.
UK Assessment standards Based on occupational standards, all units within the qualifications and credit
framework (QCF) contain assessment criteria.

2. Quality Assurance of Identification of needs

Qualifications Qualifications consist of the combination of relevant
training components (units, modules, semesters...) de-
Life cycle of a qualification rived from the National Occupational Standards (when
they are available) or from a reliable job descriptions.
NOS or job descriptions provide the competences (per-
formance criteria in the case of NOS) which need to be
Identification developed for a person to be deemed competent. Oc-
of needs
cupational standards are developed by industry experts.
They provide a way of deciding whether or not a staff is
Qualification review Qualification
on regular basis and performing a function in the organisation to a standard
development
either extended, with- that employers expect. The performance criteria need to
dran or replaced with
a new qualification be translated into learning outcomes for a training pur-
pose (e.g.in India Curriculum Packages, see box below).
Learning outcomes are later developed by awarding
Qualification delivery Qualification bodies, assessors or trainers. Qualifications are based
Centres deliver accreditation and on the achievement of learning outcomes which specify
qualifications allocation
within NQF, the knowledge, skills and understanding required at a
Quality assurance
monitored awarding specific level, as the result of a process of learning.
Qualifications
organisations
regulators
monitor awarding
organisations,
qualifications and units

83
Box 12: NSQF curriculum package Qualifications are fit for purpose and ensure there are
no features in the design of the qualification that could
“Curriculum packages: the competency-based curricu- disadvantage any group of learners.
lum packages would consist of syllabus, student manual,
trainers guide, training manual, trainer qualifications, The qualification developer must build evidence of the
assessment and testing guidelines and multi-media pack- need for this qualification. This evidence may be gath-
age and e-material. This will be developed for each NSQF ered in answering the following questions:
level and when relevant for specific qualification packs
(QPs identified by the SSCs. This may be done by such
agencies as Ministries/Departments, Sector Skills Council Box 13: Questions from the Qualifications File
and Regulatory bodies may designate or any other body
in accordance with the NSQF.NSQF curricula should be
What evidence is there that the qualification is needed?
modular, allowing for skill accumulation and facilitating exit
and entry. Curricula design will also be aligned to a credit • the purpose of the qualification - eg designed to get
framework that reflects credit earned and competency people into work, a qualification intended for people
acquired. Training of trainers would also be aligned to the already in work, a qualification to allow people to add
NSQF.” (NSQF Notification). new skills based on technological change.

• The starting point for the creation of the qualification

Qualification development – eg request from sectoral stakeholders, evidence of
a gap in the framework, link with government policy,
Qualifications are composed of learning blocks (com- evidence of an emerging need.
ponents, units, modules) presented in a format that • Research and consultation – eg occupational map-
identifies the level, size and a precise description of the ping, stakeholder views, support from relevant
content of the qualification. If there is a credit system, stakeholders.
they may be rules of combination of units or credit.
process (es) by which the qualification/QP/NOS was
Rules of combination specify the credits that need to validated nclude information about the organisations which
be achieved, through the completion of particular units, participated in the validation, the feedback they offered and
for a qualification to be awarded. All NQF units/modules the steps taken to address issues raised by the validation.
identify a credit value for the unit which specifies the What is the estimated uptake of this qualification and
number of credits that will be awarded to a learner who what is the basis of this estimate?
has achieved the learning outcomes of the unit/modules.
Which employers will use the qualification and why? Who
The Indian NSQF Notification specifies that the NSQF is
is expected take the qualification?
a quality assurance framework, stating that “it facilitates
the awarding of credit and supports credit transfer and What investigations were carried out to test the likely
uptake of the qualification and what steps were taken to
progression routes within the Indian education and train-
ensure that the investigations truly reflected this market
ing system. It seeks to help everyone involved in educa- and provided robust estimates of uptake?
tion and training to make comparisons between qualifi-
cations offered in the country, and to understand how What steps were taken to ensure that the
qualification(s) does/do not duplicate already existing
these relate to each other”.
or planned qualifications in the NSQF?
All NQF units/components must be capable of assess-
ment and set a clear assessment standard for the unit.
Allocation to the framework
All NQF unit contain assessment criteria that specify
the standard a learner is expected to meet to demon- NQF qualification file (that is the set of information which
strate that the learning outcomes of that unit have been will allow the levelling of the qualification and its alloca-
achieved. level: all units must be positioned at a single tion to the framework) must usually specify:
NQF level that is consistent with the level of achievement the qualification’s objective, which lead to a benefit
expressed in the learning outcomes of the unit. In a given for learners.
qualification, not all units or learning blocks need be of
the qualification title which present in a standard for-
the same level in the framework. The global (best-fitting)
mat the level, size in notional hours and a descrip-
level can only be decided against a complete job descrip-
tion of its content.
tion which covering all the NQF descriptors or against
the learning outcomes of the training programme. any other qualification which a Learner must have
completed before taking the qualification,

FROM CONCEPTS TO IMPLEMENTATION

84 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 any prior knowledge, skills or understanding which tral issue is about the degree of flexibility in the assess-
the Learner is required to have before taking the ment of the qualification and how the arrangements for
qualification, gathering and evaluating evidence of previously gained
units which a Learner must have completed before competence will ensure that holders of the qualification
the qualification will be awarded and any optional can demonstrate the outcomes in the qualification.
routes, Arrangements relating to the quality assurance of as-
any other requirements which a Learner must have sessment include:
satisfied before the Learner will be assessed or be- how will it be ensured that assessment judgements
fore the qualification will be awarded, are always made on valid and sufficient evidence?
the knowledge, skills and understanding which will what steps are taken to ensure that assessment
be assessed as part of the qualification (giving a judgements are consistent from assessor to asses-
clear indication of their coverage and depth), sor?
the method of any assessment and any associated how will problems of unreliable or unfair assess-
requirements relating to it, ment, misconduct by assessors, or other kinds of
the criteria against which Learners’ levels of attain- malfeasance be dealt with?
ment will be measured (such as assessment criteria Do providers understand the standards in the quali-
or exemplars), fication – capacity-building work, support materials,
any specimen assessment materials, and etc.
any specified levels of attainment in the NQF. Ac-
creditation will also ensure that the qualification sub- Table 13: Summary of the German qualification file
mitted reflects the framework level that is claimed
for it. Name of the qualification
Documents and source texts used
The main purpose of the qualification file is the levelling
Proposed level allocation
of the qualification. Qualifications in the NSQF should be
Area of Categories/subcategories Level Justification/
trusted by learners and employers. A lot of this trust will competences explanation s
relate to assessment. On the one hand, employers will Professional Knowledge (depth and breadth)
want to be sure that holders of a qualification have been competence
tested to show that they can carry out the outcomes de- Skills (instrumental and sys-
temic skills, judgement)
scribed to the standards set in the qualification; and on
the other hand, learners will want to be sure that the as- Personal Social competence (team4ead-
competence ership skills, involvement and
sessment is fair and that the same pass/fail judgements communication)
are made for all candidates. This will have to be in line Autonomy (autonomous respon-
with the national policy& guidelines. sibility/responsibility, reflective-
ness, learning competence)
The assessment strategy is the main instrument of proof Difficulties in
of levelling. An assessment strategy should ensure that allocation
the assessments used for the qualification are appropri-
Draft Approval Criteria in India
ate for the aims and outcomes of the qualification. This is
especially important in relation to vocational qualifications The qualification has been created by an authorised
which are designed to develop competence in learners. body.
The strategy should ensure that the assessment instru-
ments which are used generate sufficient evidence for all The qualification must:
the assessable outcomes of the qualification – these may meet a genuine economic or social need
include practical outcomes, knowledge and understand-
contain well-founded standards based on appropri-
ing, the ability to integrate skills and knowledge, and the
ate research and/or consultation
capacity to adapt to circumstances. The strategy should
include opportunities for assessments which cover/inte- be awarded using quality assurance arrangements
grate different outcomes and ensure that the amount of which guarantees the validity and reliability of the
assessment to be undertaken is manageable. The cen- training and assessment

85
 match to a level of the qualification framework and even if they are competence oriented, do not have the
meets the other requirements of the Framework required level of abstraction which learning outcomes
possess. Examinations measure outputs, because they
3 stage Approval Processes in INDIA (draft) are related to school subject and school year, rather than
1. Preparation and submission* of Qualification File by outcomes which are based on understanding and per-
submitting body formance over time and on a suitable level of abstraction.
2. Evaluation and recommendation: NSDA case officer So the delivery of the qualification should be considered
and experts prepares report for NSQC, recommending as one source of information among others for confirm-
approval, approval with conditions or rejection of the ing the level of qualification. The levelling of qualifications
submission.
should be a repeated process. A solid documentation
3. Decision and registration: NSQC accepts, amends or is needed is always need.
rejects NSDA recommendation. Approved submissions
are entered in the NSQF Register and promulgated.
* …or re-submission - in response to specific Qualification review
conditions set by NSQC, after a fixed period, or at the
submitting body’s request.. All awarding organisations within the frameworks are
subject to monitoring by the qualifications regulators
Figure 23: The qualification file (draft) and asked to complete periodic self assessments. Moni-
toring focuses on whether the awarding organisation or
qualification submitter continues to meet the regulatory
Curriculum Pack requirements under which it has been recognised, in-
Teaching
Learning cluding how it uses relevant systems, procedures and
Qualification No.s Assessment resources to ensure that assessment methods produce
Pack Units
consistent, valid, fair and transparent results over time
Quality Assurance and between assessment locations. The frequency and
arrangements
focus of awarding organisation monitoring is determined
Supporting evidence on the basis of risk. Areas identified for improvement as
Evidence Of for level in the NSQF a result of monitoring will be outlined as accreditation
• industry engagement conditions and will be monitored in an action plan for the
• horizontal and vertical mobility awarding organisation. When these requirements have
• international comparability
been complied with they will be signed off by the qualifi-
Qualification File cations regulators. For high-risk qualifications, monitor-
1. Short, headline information in a cover sheet ing is also conducted at a qualification level. Some major
2. Additional detailed information where needed qualification types are subject to codes of practice or
3. Supporting evidence operating rules that outline in greater detail how qualifi-
cations should be delivered with reference to areas such
as assessment, awarding and grading. These codes of
practice or operating rules are used to direct the quali-
Qualification delivery fications regulator in monitoring to ensure that qualifica-
tions continue to meet the required quality standards.
Qualification specifications are important to allocate a
level to the qualification, but the allocation of level is not
a one-off process. If it is to be seen as a QA process, it
must also take into account the delivery of the qualifica-
3. Registers of
tion in a training programme, which is also a source of in- Qualifications
formation for levelling. In the public system, curricula are
The Register is a searchable data base on qualifications
the product of regulations of educational programmes
understood as.
which set “educational objectives”. It is important to note
that educational objectives are not learning outcomes … a specification/statement of the outcomes of
in the sense of a qualification framework. They primar- learning (knowledge, skills, etc)
ily meet examination regulations, examinations, educa-
tional standards which are related to expected results … together with the assessment and certification
of learning processes. But often, educational standards, arrangements

FROM CONCEPTS TO IMPLEMENTATION

86 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
… which demonstrably meet the requirements/ ers of QF qualifications to make informed choices,
criteria set by a validating body (NSQC) and

… and have been formally validated by an authorised • ensure records of QF qualifications issued are kept.
body (NSQC) as being appropriate for a stated
purpose. Possible scope of the Register
Registers typically include the following information: The policy covers all education and training sectors that
issue national qualifications and the responsibilities for
Title and type of the qualification
the provision and management of registers of QF qualifi-
Administrative codes, etc cations and the organisations that issue them.
Level and credit value of the qualification
The terminology used in the QF policies is not sector-
Subject/Vocational area of the qualification specific. To support consistency of understanding and
Outcome statement(s) interpretation, definitions of the terminology are provided
Status of the qualification (eg current, expiring or in a glossary.
discontinued) Awarding organisations and unit submitters must be
Qualification review date recognised by the qualifications regulators before they
Details on the qualification developer, provider(s), can submit units/modules and qualifications into the
certificating body frameworks or start awarding qualifications within the
frameworks. Recognition involves meeting requirements
in several areas including having sufficient resources, ex-
Table 14: Countries with Qualification Registers
pertise, and organisational and administrative processes
to develop and/or award qualifications to the standards
France full vocational qualifications – detailed entries
required, having procedures in place to monitor compli-
Scotland full qualifications in the SCQF (all sectors) –
headline info + links to other databases ance with the regulatory arrangements, and having ro-
bust procedures for centre recognition, managing enqui-
New Zealand “all quality assured qualifications in NZ” –
headline info ries and appeals and dealing with malpractice.
South Africa searchable databases of qualifications and
part-qualifications in the SAQF – very detailed
specifications Box 14: NSQF Register
Australia - the official national public record of all AQF
qualifications and qualification pathways, ac- “To ensure that all learners have access to all the qualifica-
crediting authorities, organisations authorised tion registered and currently being provided by various
to issue AQF qualifications, and all AQF qualifi-
training providers/institutions, a register of qualifications
cations issued a portal with links to a number
of authorised registers of issuing authorities that are approved and available, shall be maintained and
(providers) and qualifications. . regularly updated. The NSQF Register will be the official
national public record of all qualifications aligned to NSQF
levels qualifications pathways and accrediting authorities.
Possible function of a Register: The qualification Register will be made available on a web
ensure that information about QF qualifications and portal and regularly updated. Every institution offering an
NSQF-aligned qualification will have to keep details of its
authorised issuing organisations is publicly available
training programmes updated on the portal.”
ensure that a clear distinction is made between QF
and non-QF qualifications
Register policy
ensure that any publicly available registers, data-
bases and other information based on data derived The Users – The principal users of the policy are the QF
from the QF Register, or purporting to be about QF Council, accrediting authorities including self-accrediting
qualifications and the organisations authorised to is- organisations and issuing organisations that have re-
sue them, accurately represents the QF sponsibility for maintaining parts of the QF register.
facilitate the comparison of QF qualifications and
The other users are those who utilise the QF register to
authorised issuing organisations to enable consum-
gain information about QF qualifications and qualifica-

87
tion pathways, accrediting authorities and issuing or- Allocation of qualifications
ganisations such as students and prospective students, Mainstream qualifications formed the basis of the
graduates, employers, industry and professional bodies, levels
licensing and regulatory bodies, migrants and migration
New qualifications being added through the credit
advisors, qualifications developers, researchers, interna-
rating process
tional education agencies and the general public.
International qualifications added
Monitoring- The NSQC (Qualification Committee) and
To be included on the SCQF a qualification or learn-
accrediting authorities in each education and training
ing programme must be
sector are responsible for the implementation and moni-
toring of the use of this policy. At least 10 notional learning hours
Based on learning outcomes
4. Skype Session: Formally assessed
Compares QA Systems Internally and externally quality assured
between Scotland, England
and Germany (Mike Cole) GERMANY

Main timeline
ENGLAND
2008, discussions on DQR
Main timeline begin

1994, NQF, 5 levels (based 2009, DQR basic grid outlined

on NVQ descriptors and 2011, main consultation period ends, DQR formu-
broadened across VET but not HE lated
2004, New NQF (current), 8 levels, based on broad- Appointment of working groups for four occupa-
er descriptors, potential for HE to be included. tional areas: metal/electrical, IT, retail, health (16-20
2008, QCF (current), 8 levels, new broader descrip- members each, representing all relevant stakehold-
tors, extensive, credit system, potential for HE to be ers)
included, validation procedures 2012, final DQR launched and accepted
2010, QCF linked to the EQF 2013 DQR linked to EQF
Latest proposal, single QF, 8 levels, new descriptors
Allocation of qualifications
across 2 domains, inclusive of all non HE regulated
qualifications. A clear allocation of a qualification based on primary
sources often proved to be difficult and led to devia-
Allocation of qualifications tions of up to one NQF level.
Subsidiary criteria were taken into account, such as
Mainstream qualifications formed the basis of the levels,
access requirements, duration of learning, field of
awarding organisations make proposals for new qualifi-
activity and position in company hierarchies, con-
cations to be added (and removed).
sensus across educational sectors. Learning out-
comes, however, remained the decisive criterion for
SCOTLAND allocation.

Main Timeline Analysis of legal regulations and ordinances, curri-

cula and study plans
1998, SCQF, 12 levels, based
on partnership agreement Use of EU Guideline: Learning Outcomes
http://ec.europa.eu/ploteus/sites/eac-eqf/files/
2010, SCQF linked to EQF
EQF_note4_en.pdf
2012, level descriptors revised a little
Proposal for allocations of selected qualifications on
2012, Credit rating opened up all levels (see form on next slide)
Evaluation of the results and consultation by the
DQR steering committees

FROM CONCEPTS TO IMPLEMENTATION

88 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
FURTHER READINGS
Use of EU Guidelines: Learning Outcomes http://ec.europa.eu/ploteus/sites/eac-eqf/files/EQF_note4_en.pdf

The relation between quality assurance and VET certification in EU MEMBER States, CEDEFOP 2008

Cedefop (2008). The dynamics of qualifications – the definition and renewal of occupational and educational standards [draft
interim report for Cedefop]. Cedefop (2009). Terminology of European education and training policy: a selection of 100 key terms
[online]. Available from Internet: httphttp://europass.cedefop.europa.eu/europass/home/hornav/Glossary/GlossaryApp.csp [cited
16.2.2009].

European Commission (2008a). Proposal for a recommendation of the European Parliament and of the Council on the establish-
ment of the European credit system for vocational education and training (ECVET). (COM(2008) 180 final, 9.4.2008). Available
from Internet: http://ec.europa.eu/education/policies/educ/ecvet/com180_en.pdf [cited 16.2.2009].

European Commission (2008b). Proposal for a recommendation of the European Parliament and of the Council on the establish-
ment of a European quality assurance reference framework for vocational education and training. (COM(2008) 179, 9.4.2008).
Available from Internet: http://eurlex.europa.eu/LexUriServ/LexUriServ.do?uri=COM:2008:0179:FIN:EN:pdf [cited 16.2.2009].

89
 FROM CONCEPTS TO IMPLEMENTATION
90 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
MODULE 9
QUALITY
ASSURANCE FOR
TRAINERS AND
TEACHERS

1. TRAINERS AS STAKEHOLDERS 92
2. TRAINERS AS PROFESSIONALS 95
3. COMMUNITY OF PRACTICE 96

91
Teachers (which includes Trainers) are seen in their dou- teacher roles are now changing.
ble role as professionals and stakeholders of vocational
training reform. Initial teacher education is perceived as Professional roles are changing:
one among other levers to increase the professional per-
formance of vocational teachers. However, the main em- 1. Teachers will become lifelong and life-wide learning
phasis is placed on the dynamic interplay between for- facilitators instead of transmitters of isolated blocks
mal training and the huge variations as regards the real of expert knowledge and skills;
conditions of teaching practice in vocational schools.
2. Several paradigm changes are taking place: new
The schools where teachers work are a crucial factor
public management, education management, voca-
shaping the quality of their work. Emphasis is put on the
tional training policies and school management are
crucial role of the continuing professional development
changing.
(CPD) of teachers. CPD is much more than formal train-
ing, and experience from EU countries and pilot schools 3. Learner needs and labour market requirements are
in transition countries indicates that it is both effective changing and becoming more differentiated.
and affordable.
Stakeholder roles are changing too:

1. Trainers as Stakeholders 1. They have long been neglected but are now increas-
ingly appreciated;
In many countries, the roles of teachers and students
are in a process of change as a result of new approach- 2. Vocational training reform is seen as an ongoing
es to active learning. Responsibility is shifting from the learning process;
teacher to the learner and the teacher becomes more
3. Reform increasingly requires articulation between
an organiser and facilitator of the learning processes
national and system authorities, and between local
than the transmitter of expert knowledge. Capacities
and school authorities;
for change and adaptation as well as learning-to-learn
have become important competences per se that learn- 4. There is an increasing need for teachers to go be-
ers should develop. Self-directed learning has become a yond the classroom – into the school, the commu-
necessity for an increasing proportion of the population nity, the vocational training system at large and even
in rapidly changing societies. The experience of macro- across borders;
reform, including on reforms of qualification systems, if
not enough attention to the ‘micro’ level of classrooms, 5. Teachers will have to become more actively en-
teachers and students, tend to fail, even in already ‘de- gaged in reform processes
veloped’ systems where the major needs concern such
issues as the quality and relevance of outputs, soft skills
and life skills, etc. In many developing countries, ‘macro’ Why are teachers and trainers so important for
reforms address such fundamental issues as legislative systemic education and training reforms?
tools, funding systems, and improved governance struc-
Vocational training reform in most countries has led to
tures.
the redefinition, diversification and expansion of teacher
Vocational schools are the key focus for any reform and functions. In modern vocational training systems effec-
the continuing professional development of teachers as tive teaching depends not only on teaching skills but on
well as school principals, configured in school-based in- the ability to work in a team; collegiality is a significant
novative development projects, is probably the best way challenge for teachers. Another issue is the need for
to ensure sustainable, qualitative change in education teachers to re-conceptualise their own position within
systems. Unless teachers become professionals and vocational training. It is not enough for teachers to ac-
stakeholders of reform, it will be difficult to improve re- quire new skills and perform new functions. Effective
sults in terms of education system performance. Modern motivation of teachers requires that they should fully un-
vocational training systems, teachers are at the same derstand the reasons for change (e.g. the NSQF) – mak-
time professional educators and key change agents. ing them their own. Many factors influence the chang-
Continuing innovation and development has therefore ing demands for professional knowledge, competence,
become a core task of the modern professional voca- practices and performance of teaching staff involved
tional teacher. The crucial challenge is that both of these in vocational training. Andreas Schleicher (2006) of the

FROM CONCEPTS TO IMPLEMENTATION

92 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
OECD writes in the Lisbon Council Policy Brief that the (2003) has said, it takes capacity to build capacity, and if
most successful countries have something fundamental there is insufficient capacity to begin with it is useless to
in common: announce that a move to ‘professionalism’ provides the
basis for a new approach. We can’t just move from one
“…they have all shifted policy away from control over the
phase to the next without deliberately building profes-
resources and content of education toward a focus on
sional capacity throughout the system. Here the continu-
obtaining better outcomes. They have moved from “hit
ing professional development of teachers must be the
and miss” teaching practices to establishing universal
central response. Who, then, knows best what teachers
high standards. They have shifted from uniformity in the
should do, why, how, where and when? Most teachers
system to embracing diversity and individualising learn-
would say that they do. They are the professionals who
ing. They have changed from a focus on provision to a
have a profound knowledge of their field, based on both
focus on choice, and they have moved from a bureau-
theoretical studies and a sound practice, know the stu-
cratic approach towards devolving responsibilities and
dents, their needs and what is best for them; work in
enabling outcomes, from talking about equity to deliver-
accordance with professional standards and in the best
ing equity. Most important, they have put the empha-
interests of the client (the students).
sis on creating a ‘knowledge-rich’ education system,
in which teachers and school principals act as partners According to this view they are the best placed to decide
and have the authority to act, the necessary information where, when and with whom preparation should take
to do so, and access to effective support systems to as- place, and how and with what means teaching should
sist them in implementing change.” be organised. But this point of view does not fit very
well into policymakers’ efforts to make both schools and
Teachers are rarely seen as subjects or as drivers of
teachers instruments to achieve strategic goals. Anoth-
change. An almost universal experience in EU and OECD
er barrier to overcome is a tendency to reform fatigue
countries in recent years has been that it has become
among teachers almost everywhere. Reforms are in real-
increasingly difficult for policy alone to change practice.
ity, and should also be perceived as, major social learn-
Paradoxically, precisely during and since the 1990s we
ing processes, and today, more than ever before, the
have seen a resurgence in large scale reform in most
huge challenge is how to organise such policy learning
western countries, few of which had much impact on
activities in the coming years.
student achievement levels. At present, many OECD
countries focus on policy and systems development An analysis of professionalisation strategies for teachers
without paying enough attention to the management of in EU countries points to the same need in all EU coun-
implementation processes (McLaughlin, 1990). A lesson tries. Most changes are initiated from outside the voca-
learned here is that, contrary to the one-to-one relation- tional training system, either through political decisions
ship assumed to exist between policy and practice, the or as a result of pressure from industry. The Cedefop
nature, amount and pace of change at the local level is study on vocational teachers found that there is a ten-
a product of local factors largely beyond the control of sion between change pressures and the response of
higher-level policymakers (Hopkins, 2006). teachers:

Governments policy implementation has most com- “Often they challenge the teacher’s view of the voca-
monly used the school as the focus of intervention, yet tional training system, of their own role and of the way
international research evidence shows that we have to they teach. And in some cases the changes contrast
go even one level further down – to the classroom – to with the teachers’ ‘implicit’, ‘tacit’ knowledge of how
improvement achievement. Increasingly strong evidence best to behave in specific teaching situations. This situ-
suggests that any strategy to promote student learning ation is made worse when government – or manage-
needs must seek to engage students and parents as ac- ment – fails to provide teachers with the time, or the
tive participants, and expand the teaching and learning financial resources to retrain. Where these resources
repertoires of teachers as well as students. This implies are not available, teachers (and their managers) will give
a transition from an era of top-down ‘prescription’ to an priority to the needs of their students rather than to their
era of teacher ‘professionalism’. A new balance between own training. In short, and as a result of all these factors,
top-down and bottom-up approaches must be found. whole-hearted teacher acceptance cannot be taken for
granted and teacher resistance to change is one of the
Educational factors must be rebalanced in pursuit of
most significant threats to the success of vocational
quality. But how do we get there? As Michael Fullan
training reform.”

93
In the Cedefop study, a key recommendation for policy- teachers and trainers is probably the key to innovation
makers in EU countries is therefore that: There is a grow- and change also in countries of transition; it is much
ing recognition that schools - and classrooms - need to more than formal training, there are other pathways to
take the lead in the next stage of education reform. The relevant learning, and experience from EU countries and
current focus on ‘personalisation’ is about putting citi- pilot schools in transition countries indicates that it is
zens at the heart of public services and enabling them to both effective and affordable. To this can be added that
have a say in the design and improvement of the organ- for transition countries there is an urgent need to reach
isations that serve them. In education this can be under- out to the majority of vocational schools that were never
stood as personalised learning (OECD, 2006), the trend part of the comparatively narrow reform circle.
towards tailoring education to individual needs, interests
Initial teacher education in universities or teacher fac-
and aptitude so as to fulfil every young person’s poten-
ulties is an important lever but only one among others
tial. Personalised learning is about designing teaching,
to increase the professional performance of vocational
curriculum and the school organisation to address the
teachers. Of special interest here is the lack of a dynamic
needs of the students both individually and collectively.
interplay between formal training and the different condi-
It is a system that is more accessible, open to the indi-
tions of teaching practice in vocational schools. The in-
vidual and involves the learners in their own learning.
stitutions, in which teachers work, have a huge potential
This requires professionalised teaching.A much sharper for helping to shape the quality of vocational teachers’
focus should therefore be placed on the crucial role of work. This implies that any effort to professionalise voca-
the continuing professional development of teachers tional teaching needs to take into account initial teacher
and trainers also in ETF partner countries. Such devel- training providers as well as vocational schools.
opment implies more than just making teaching more
New professionalisation strategies based on ‘horizontal’
comparable to other modern professions. To personal-
learning principles form a promising response to future
ize learning, teachers must use data and evidence when
challenges. Such horizontal learning principles include (i)
they choose teaching strategies that meet the specific
schools as learning organisations, (ii) engaging teachers
needs of their students. They must be versed in the ap-
as stakeholders in vocational training reform , (iii) central
plication of different methodologies that cater for indi-
innovation funds for local school development, and (iv)
vidual learning styles.
establishing ‘communities of practitioners’ among vo-
As Hopkins (2006) underlines: “This in turn implies radi- cational teachers as vehicles to nurture a culture where
cally different forms of professional development with a teachers may (again) become professional innovation
strong focus on coaching and establishing schools as agents.
professional learning communities.”
Almost everywhere, there is a lack of awareness of the
Teacher professionalism will furthermore have to be fact that the primary socio-economic function of voca-
supported by some form of educational accountability tional teachers and trainers is not to produce “teaching”
as a driver for raising standards. In the move from top- but to produce the “qualifications” needed in a modern
down ‘prescription’ towards teacher ‘professionalism’, economy. The qualification needs of companies require
an accountability system should strive to build capac- competent workers who are capable of combining the-
ity and confidence for professional accountability. More ory and practice. This calls for a new configuration of
emphasis should be placed on internal assessment; in teaching, learning and practical work exercises. This
particular formative assessment will need to develop in- configuration might gradually help to strengthen the ca-
creasingly refined learning assessments, student prog- pacity of individual students to move, as the context re-
ress data, contextual value-added and school profiles. quires, between theoretical-analytical competence and a
Perhaps the most substantial quality control instrument more experience-based, intuitive competence. However,
that needs to be developed is a culture of evaluation in developing this type of configuration is a serious chal-
vocational schools. If we are to move towards a system lenge to the existing structures of vocational teacher and
based on informed professional judgment, the capacity trainer training everywhere, including in most EU coun-
for all of this has to be built simultaneously at the school tries. A good way to encourage such an integrated ap-
and system level as both schools and authorities learn proach is to support the efforts of vocational schools to
new ways of working, establish new norms of engage- become continuing vocational training providers. Con-
ment and build more flexible and problem oriented work tinuing training offered to experienced workers from local
cultures. The continuing professional development of companies will challenge teachers to combine their own

FROM CONCEPTS TO IMPLEMENTATION

94 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Box 15: A modern approach: Training of trainers in Denmark Learning, its potential to benefit people emotionally,
intellectually, socially and economically, and its con-
To become a trainer in Denmark, candidates must have a tribution to community sustainability.
training in Vocational Education and training or a professional Equality, diversity, and inclusion in relation to learn-
education relevant fo the concerned field of learning, where ers, the workforce, and the community
appropriate supplemented with higher education. He/she
Reflection and evaluation of their own practice and
must have 5 years professional experience in the vocational
subject. In terms of qualification, a diploma should be ob- their continuing professional development as teach-
tained within 4 years of employment and the preparation to ers
this diploma must begin within the first year of employment. Collaboration with other individuals, groups and/or
The duration of the training is 60 ECTS (European Credit organisations with a legitimate interest in the prog-
Transfer and Accumulation System), which is equal to 1 year ress and development of learners
full time.
These standards apply across all areas.
The diploma content includes:
Teachers are committed to:
• Compulsory modules
- Teaching and learning – 10 ECTS The application of agreed codes of practice and the
- Planning of teaching and didactics – 10 ECTS maintenance of a safe environment
- Pedagogical science – 5 ECTS
Improving the quality of their practice
- Final project – 15 ECTS
Learning and teaching
• And two elective modules – 20 ECTS
- Participants in VET
Teachers are committed to:
- VET pedagogical system development
- Internationalisation of VET Maintaining an inclusive, equitable and motivating
- Digital technologies in VET learning environment.
Applying and developing own professional skills to
enable learners to achieve their goals.
theory with the experience and (often tacit) knowledge of
Communicating effectively and appropriately with
their adult course participants. This procedure should,
learners to enhance learning
without hesitation, be required of the teacher and trainer
training institutions in their provision of continuing train- Collaboration with colleagues to support the needs
ing to teachers in vocational schools. of learners.
Using a range of learning resources to support

2. Teachers as learners

Professionals Specialist Learning and Teaching

Standards for trainers and teachers in the VET sectors Teachers are committed to:
are the “duty side” of the profession Teachers, which Understanding and keeping up to date with current
only makes sense in the context developed in the first knowledge in respect of own specialist area.
section. Indeed, in this context, the key purpose of the
Enthusing and motivating learners in own specialist
teacher is to create effective and stimulating opportuni-
area.
ties for learning through high quality teaching that en-
ables the development and progression of all learners. In Fulfilling the statutory responsibilities associated
a number of areas, the teacher is committed to behave with own specialist area of teaching.
in a certain way: Developing good practice in teaching own specialist
area
Professional Values and Practice
Planning for Learning
The teacher is committed to:
Teachers are committed to:
Learners, their progress and development, their
learning goals and aspirations and the experience Planning to promote equality, support diversity and
they bring to their learning. to meet the aims and learning needs of learners.

95
 Learner participation in the planning of learning and have an opportunity to develop themselves perso-
Evaluation of own effectiveness in planning learning nally and professionally. Community of Practice also fol-
low the Social learning theory based on the work of psy-
Assessment for Learning chologist Albert Bandera. He states that people learn:

Teachers are committed to: Through direct experience

Designing and using assessment as a tool for learn- Indirectly, by observing and modelling the behaviour
ing and progression of others with whom the person identifies (for ex-
ample, how yound people see their peers behaving).
Assessing the work of learners in a fair and equi-
table manner Through training that leads to confidence in being
able to carry ut behaviours. This specific condition
Learner involvement and shared responsibility in the
ias called self-efficacy, which includes the ability to
assessment process
overcome any barriers to performing the behaviour.
Using feedback as a tool for learning and progres-
sion Communities of practice are primarily a means of cat-
egorizing a particular set or web of relations between
Working within the systems and quality require-
people as having a particular identity, value orientation
ments of the organisation in relation to assessment
and purpose. Within a strong community of practice,
and monitoring of learner progress.
there is a strong sense of shared values and beliefs; a
Access and progression consciousness of and a commitment to an overall holis-
tic purpose that shapes the activities of the community;
Teachers are committed to: and an agreement on a set of practices that constitutes
Encouraging learners to seek initial and further ”competent practice”. To some level, learning is always
learning opportunities and to use services within the an induction into a community whose boundary are
organisation marked by a commitment to a set of beliefs about what
counts as knowledge and skills and what are ”good”
Providing support for learners within the boundaries
values and attitudes to underpin and infuse learning as
of the teacher role
a process of enlightenment, enhancement and attun-
Maintaining own professional knowledge in order to ement.
provide information on opportunities for progression
in own specialist area CoP take different forms such as formal or informal,
off-line or on line, with participants presence in a lunch
A multi-agency approach to supporting develop-
room or on a factory floor or as a virtual community or
ment and progression opportunities for learners
network/wikis/dropbox/linkedin, etc. CoP are not spe-
cific to VET trainers; all subject matters in general edu-

3. Community of Practice cation and higher education have their networks. What
seems specific to VET trainers is the purpose to bridge
The notion of community of practice has become influ- the knowing that and the knowing how. Competence in
ential within debates in education in the last 20 years: VET is more located in the knowing-how (skills) than in
Lave and Wenger among the foremost exponents of the the knowing-that (knowledge), not because there is no
concept offer the following definition of the concept: knowledge involved, but because knowledge is under-
stood as embedded in gestures, behaviours and skills.
“A community of practice is a set of relations among per- The transmission of skills meets specific challenges and
sons, activity and world over time and in relations with those are central in CoP for trainers. Trainers are also
other tangential and overlapping communities of prac- keen to hear that they are not the only ones to experi-
tice. A community of practice is an intrinsic condition for ence challenges they experience daily in training situa-
the existence of knowledge.” (Lave and Wenger, 1991). tions.
Although not specific to the training and teaching func- Successful CoP are those where individuals are prac-
tion, Community of Practices (CoP) play an important tioners willing to share with and to learn from others. it
role in this area. CoP are typically developed by a group is difficult to maintain a living CoP if people never meet.
of people sharing a craft and/or a profession who sha- But as CoP are born from voluntary initiatives, and are
res information and experiences to learn from each other not compulsary (although professional standards do

FROM CONCEPTS TO IMPLEMENTATION

96 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
mention collaboration with colleagues in the benefit of to analyse it objectively. So, with respect to a specific
learners), they are mainly fuelled by motivation. training experience which would have been less succes-
sful than anticipated, the reflective practitioner would ask
The participation in CoP can contribute to Continuous
himsel/herself:
Professional Development /CPD). CPD is the means by
which people maintain their knowledge and skills related Description – what happened?
to their professional life. It is closely related to Life long Feelings – what were my thinking and feelings?
learning . CPD can be (i) Pedagogical, (ii) Domain speci- Evaluation – what was good and bad?
fic, (iii) Formal (iv) Informal.
Analysis – what sense can I make of the situation?
There are many obstacles to CPD, which can be indi- Conclusion – what else could I have done?
vidual (lack of motivation or of incentives) or institutional,
Action plan – what will I do next?
when conditions of practice are sub-optimal. On the job
training of trainers is costly and trainers rarely receive the These questions could be answered by an observer, but
amount of training they would like/need. Some (but not there is no observer in a typical training session. The ca-
all) initiatives about professional improvement are left to pacity to analyse a situation as an observer is what the
the trainers themselves but their personal situation and reflective practitioner is developing.
their professional status (civil servant or self-employed)
surely affect their motivation to improve continuously.

Conclusion
Teachers will have to be recognised in their double role
as professionals and stakeholders, if the quality of edu-
cation is to be gradually increased. Teaching staff and
school managers are the professionals of the vocational
training system. As stakeholders they should develop
the capacity to help formulate vocational training poli-
The most advanced form of CPD is encapsulated in the
cies and establish platforms for discussion of reform
concept of “reflective practitioner”, who typically ask
initiatives, embedded in schools and fitting into their
himsel/herself questions such as: Where am I and how
contexts. This would encourage ownership and support
do I know? Where do I want to go? Again, the concept
the sustainability of reforms. Teachers who are actively
is not specific to VET training or to teaching in gene-
engaged in local innovation and experimentation are an
ral. It is based on a metacognitive process, consisting in
important source of expertise for national policymakers.
the self’s capacity to distance from experience in order

FURTHER READINGS
Fullan M., The Moral Imperative of School Leadership, Corwin Press, Thousand Oaks, 2003

Hopkins, D., A Short Primer on System Leadership, Paper presented at the OECD Conference ‘International perspectives on School Leader-
ship for Systemic Improvement’, London, 6 July 2006

Lave, J. and Wenger, E., Situated Learning: Legitimate Peripheral Participation, Cambridge University Press, Cambridge, 1991

E. Wenger
• https://www.youtube.com/watch?v=63rQ3S8EHoA
• https://www.youtube.com/watch?v=XrR1MSaXlLI
Erin explains what, who, how and why for higher education – but it’s applicaple for VET

Autralian
• Https://www.youtube.com/watch?v=6FkYwKxPLDs
• Australian teachers talk about advantages of CoP
• Rubin, H Rubin, I. (1995) Qualificative interviewing: the art of hearing data, Los Angees, Sage Publication.
• Zammuner, V. (2003)II Focus Group: II Mulino

97
 FROM CONCEPTS TO IMPLEMENTATION
98 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
MODULE 10
QUALITY
ASSURANCE
OF TRAINING
PROVIDERS

1. REGISTERING OF TRAINING PROVIDERS: QUALITY STANDARDS 100

2. SELF ASSESSMENT OF TRAINING PROVIDERS 102
3. Skype Session: THE VOCATIONAL EDUCATION AND TRAINING REGULATORY JOURNEY IN
AUSTRALIA (STEPHEN AUBURN)* 104

* Stephen Auburn is Lead Auditor in VET quality framework for ASQA (Australian Skills Quality Authority)

99
1. Registering Training Approaches for quality assuring TPs.

Providers (TP) The provider has a defined continuous improvement

strategy that requires the collection and analysis of data.
Most nations have a process for gate keeping the approval The strategy includes implementation of continuous
or registration of training organisations. However these improvement activities for training and assessment. An
processes vary in terms of level of scrutiny, parameters accredited training organisation collects, analyses, and
reviewed, for example program design, program acts on relevant data for continuous improvement of
materials, skills of practitioners, program facilities; and training and assessment.
complaints processes and outcomes of graduates.
An accredited training providers will develop quality
Terminology matters: it is not the same thing to go standards and/or quality guidelines and will undergo
through a registration process, an approval process, regular assessment either through self-evaluation of
an accreditation process or an affiliation process. The through approval and inspection approaches or a
difference lies in the degree of scrutiny the TP submitted combinations of those. The Information System is often
and in the range of services they are allowed to propose. viewed as supplementary but it is very expensive to
An affiliation process might be limited to recognizing the develop and to maintain, especially for small training
existence of the TP, whereas an accreditation process providers.
might cover the right to develop official qualifications.
Quality standards for an accredited TP might look like
this:

1. The provider has strategies in place to provide quality (a) will meet the requirements of the relevant VET
training and assessment across all of its operations as accredited course;
follows: (b) will be conducted in accordance with the
1.1 Strategies for training and assessment meet the principles of assessment and the rules of
requirements of the relevant VET accredited course evidence;
and have been developed through effective consul- (c) will meet workplace and, where relevant,
tation with industry. regulatory requirements; and
1.2. Staff, facilities, equipment, and training and as- (d) is systematically validated.
sessment materials to be used by the provider
meet the requirements of the VET accredited
course and the provider’s own training and as- 2. The provider has strategies in place to adhere to the
sessment strategies and are developed through principles of access and equity and to maxi-
effective consultation with industry. mise outcomes for its students, as follows:
1.3 The provider has a defined strategy, procedures 2.1. The provider has a strategy in place detailing how
and measures to ensure training and assessment it will establish and meet the needs of students.
services are conducted by trainers and assessors The organisation establishes the needs of clients,
who: and delivers services to meet these needs.
(a) have the necessary training and assessment 2.2. The provider has a strategy in place for the imple-
competencies as determined by the National mentation of continuous improvement of client
Quality Body; services informed by the analysis of relevant data.
(b) have the relevant vocational competencies at 2.3. The provider has in place a process and mecha-
least to the level being delivered or assessed; nism to provide all students information about the
(c) can demonstrate current industry skills training, assessment and support services to be
directly relevant to the training/assessment provided, and about their rights and obligations,
being undertaken; and prior to enrolment or entering into an agreement.
(d) continue to develop their vocational education 2.4. Where identified in the learning and assessment
and training (VET) knowledge and skills as strategy, the provider has engaged or has a defined
well as their industry currency and trainer/as- strategy in place to engage with employers or oth-
sessor competence. er parties who contribute to each learner’s training
and assessment on the development, delivery and
1.4. The provider has a defined strategy and proce- monitoring of training and assessment.
dures in place to ensure that assessment, including
Recognition of Prior Learning (RPL): 2.5. The provider has a defined process and mecha-
nism in place to ensure learners receive training,

FROM CONCEPTS TO IMPLEMENTATION

100 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 assessment and support services that meet their the National VET Regulator:
individual needs. (a) in the conduct of audits and the monitoring of
2.6. The provider has a defined process and mechanism its operations;
in place to ensure learners have timely access to (b) by providing accurate and timely data relevant
current and accurate records of their participation. to measures of its performance;
2.7. The provider has a defined complaints and appeals (c) by providing information about significant
process that will ensure learners’ complaints and changes to its operations;
appeals are addressed effectively and efficiently.
(d) by providing information about significant
3. The provider has in place management systems that will changes to its ownership; and
be responsive to the needs of clients, staff and stake-
holders, and the environment in which the accredited (e) in the retention, archiving, retrieval and trans-
provider will operate, as follows: fer of records consistent withthe National VET
Regulator’s requirements
3.1. The provider has a strategy in place detailing how
the management of its operations will ensure 6. Compliance with legislation
students receive the services detailed in their 6.1 The provider identifies how it will comply with
agreement with the provider. relevant legislation and regulatory requirements
3.2. The provider has a defined strategy for the imple- relevant to its intended operations and its intended
mentation of a systematic continuous improvement scope of registration.
approach to the management of operations. 6.2 The provider identifies how it will inform staff and
3.3. Where applicable, the provider has a defined clients of the legislative and regulatory require-
process and mechanism to monitor training and/ ments that affect their duties or participation in
or assessment services provided on its behalf to vocational education and training.
ensure that it complies with all aspects of the VET 7. Strategy for certification, issuing and recognition of
Quality Framework. qualifications & statements of attainment
3.4. The provider has a defined strategy and process 7.1 The provider identifies how it will issue to persons
to manage records to ensure their accuracy and whom it has assessed as competent in accordance
integrity. with the requirements of the VET accredited course,
a VET qualification or VET statement of attainment
4. The provider has adequate governance arrangements, as (as appropriate) that:
follows: (a) meets the National Skills and Qualification
4.1 The provider must demonstrate to the National VET Framework requirements;
Regulator; (b) identifies the accredited provider by its na-
(a) what its intended objectives as an accredited tional provider number
VET provider are; (c) includes any required national logo
(b) that it has undertaken business planning, and 7.2 The provider confirms that it will recognise the
(c) the continuing viability, including financial NQF and VET qualifications and VET statements of
viability, of its proposed operations. attainment issued by any other accredited provider.
4.2 The provider must also demonstrate how it will 7.3 The provider retains client records of attainment of
ensure the decision making of senior management units of competency and qualifications for a period
is informed by the experiences of its trainers and of 30 years.
assessors. 7.4 The provider identifies how it will provide returns
4.3 The provider’s Chief Executive must identify how he of its client records of attainment of units of
or she will ensure that it will comply with the VET competence and qualifications to the National VET
Quality Framework and any national guidelines ap- Regulator on a regular basis, as determined by the
proved by the National Quality Body. This applies to National VET Regulator.
all of the operations within the provider’s intended 7.5 The provider meets the requirements for implemen-
scope of operation. tation of a national unique student identifier (if one
5. Interactions with the National VET Regulator ( these stan- is identified).
dards depend on the structure for the national Quality 8. Strategy for accuracy and integrity of marketing
Assurance system incorporating a Regulatory Body)
The provider demonstrates that its proposed marketing
5.1 The application for registration must be accompa- and advertising of NQF and VET qualifications to pro-
nied by a self-assessment report of the provider’s spective clients is ethical, accurate and consistent with
compliance with the VET Quality Framework. its scope of registration.
5.2 The provider’s Chief Executive must identify how N.B. Standards relating to finance and insurance etc. will
it will ensure that the provider will co-operate with need to be determined

101
Table 15: Examples of countries’ use of national standards for training providers:
Coverage Austria Sri Lanka Singapore New Zealand South Africa
a. Learning resources
b. Trainers and Managers
c. Facilities
d. Equipment
e. Assessment
f. Financial/governance
g. Graduates outomes
h. Students services
i. Employers and student satisfaction

Box 16: Qualifications Framework of training providers in selected countries

AUSTRIA trainers and assessors.

Quality seals (Qualitätssiegel) were introduced in Upper • Continuous Improvement Review –ATO is expected to
Austria as an initiative of the Adult Education Forum, the pursue continual improvement to uplift the quality of
umbrella organisation of all non-profit providers in the design and delivery. WDA validates the internal quality
region. Criteria related to: assurance system and capability of the ATO on a
• the nature of training regular basis.

• the qualifications of management and instructors NEW ZEALAND

• the curriculum and physical facilities, and Administered by the New Zealand Qualifications Authority
• feedback from students. Responsible for the quality assurance of all education and
Based on criteria, certified auditors examine different training delivered outside universities
aspects of any organisation seeking a quality seal. Key features: - Registration is a separate process to ap-
This system of self-regulation is now linked to the provin- proval and accreditation
cial government scheme of individual learning vouchers • registration of providers, approval to deliver unit &
whereby vouchers only be used for training by organisa- assess standards & qualifications from the National
tions with the seal. Qualifications Framework
ARQA-VET, the Austrian Reference Point for Quality Assur- • A letter of support Industry Training Organisation (ITO)
ance in Vocational Education and Training or other standard-setting body

SRI LANKA • Evidence of compliance with ITO Accreditation and

Moderation Actions Plans (AMAPs)
Quality criteria identified by the Tertiary Vocational Education
Council: • accreditation of other courses

Auditors, soon to include self-assessment • Industry Training Organisations (ITO) register work-
place assessors.
Registration of training providers
Accreditation of courses SOUTH AFRICA

Registered assessors Administered by the South African Qualifications Authority

Linked to the NVQF Legislation but a phasing-in approach

In process of second review phase • accommodate historically & statutorily separate

stakeholders and processes in the TVET system
SINGAPORE
• build on the strengths & benefits of different struc-
Approved Training Organisation (ATO) - recognized by the tures and systems to ensure short and long term
Workforce Development Agency (WDA) to deliver training implementation of the National Qualifications Frame-
and/or assessment services under Workforce Skills Quali- work are met; and
fications (WSQ)
• requirements ensure that there are continual and
Training Organisations wishing to offer WSQ programmes incremental quality improvements in the learning
must satisfy the accreditation criteria two quality dimen- system.
sions:
registration of providers
• Pre-delivery Approval – accreditation ensures courses
approved satisfies the competency requirements and • approval to deliver unit & assess standards from the
is accessible through appropriate delivery modes and National Qualifications Framework
resources. Ensures that the course is delivered by • accreditation of courses
quality training organisations using suitably qualified

FROM CONCEPTS TO IMPLEMENTATION

102 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
2. Self Assessment: The risk assessment process includes four key steps:

Key component of a Quality 1. Identification of indicators of risk to be used in the

risk assessment process
Management System to
2. Risk assessment, involves consideration of the po-
determine achievement of tential impact if quality training and assessment ser-
objectives on effectiveness/ vices and outcomes are not delivered & likelihood of
efficiency this occurring – risk rating
3. Response: assessment of applications, audits and
Self assessment is a major tool to identity opportunities for
monitoring of training providers are sources of risk
improvement on a continuous basis. It builds a reflective
information. The risk rating is used to determine the
practitioner approach (a culture of assessment). It is
scheduling and scope of audits and other monitor-
based on the selection of a site visit team who designs
ing mechanisms
and prepares site visit based on the self-evaluation
report. As showed in the table, the result is either 4. Ongoing review: QA body will review any
Accredited or Agreed Implementation Plan. Under no information that may change the outcome of a risk
circumstances should self-assessment become an end assessment.
in itself. Self-assessment becomes all the more powerful
when results are transformed into a development plan. RISK ASSESSMENT RESPONSE:
It aims at measurement, whereas AQIP are aimed at Rating Possible responses
quality improvement. The agreed timelines must allow Extreme Immediate action required by the QA body of a type
determined appropriate by the QA body
for realistic implementation.
High Intolerable risk. Applicant / training provider to be
The risk assessment strategy determines the risk of non- audited and monitored. Other mitigation strategies
may also be applied (conditions placed on the training
compliance through regular monitoring and attention provider’s accreditation, etc) as deemed appropriate
through audit, with the aim of improving performance by the QA body
outcomes. It reduces the burden of administration Medium Risk mitigation through a program of audit and/or
monitoring activity
and rewards training providers who are serious about
quality. Specific operating context may also affect risk Low Tolerable risk. No specific audit activity required and
may include a no audit option
- qualifications leading to licensed outcomes (such as
welding) may be assessed as high risk. Managing the
risk requires data collection and retrieval/ analysis. Risk 3. Audits
relates to the potential impact on the delivery of quality
training and assessment services. Audits serve a compliance approach – they measure
whether quality standards are met or not met and allow

Figure 24: Audit of Training Providers

Audit Outcome Outcome assessment action

Audit Cycle
CoE Accredited
Transactional Compliance Audit Model

5 Star Accredited Accredited

4 Star Agreed Action Plan AAP

3 Star Agreed Action Plan AAP

2 Star Agreed Action Plan AAP

1 Star Agreed Action Plan AAP

On going professional development and continuous improvement

103
monitoring of quality improvement. They are performed Trainers and Assessors
either by the regulating body or through a third party.
The Standards establish the requirements for:
Auditors have to be trained and the process need to
be moderated. Many countries apply some form of risk Specified training and assessment qualifications
assessment rating to minimise the audit burden but Vocational competency at least to the level being
there are variations in methodologies. delivered and assessed

Managing non compliance: how each nation addresses current industry skills directly relevant to delivery
issues arising with non-compliant providers varies, as current knowledge and skills in vocational training
does the level of information provided to the consumer in and learning
this regard. In New Zealand it is possible to view provider
summary audit reports within the NZQA website at the Special requirements to those RTOs delivering training
profile of each provider but these are summaries and are and assessment qualifications
included only if the private provider approves. The Ontario
Auditors
College Quality Assurance Service provides access to
very brief executive summary reports of public providers Based on ISO 19011 Guidelines for auditing management
that include a conclusion of the findings, determination systems
of compliance against their five criterion.
Standards for VET Regulators 2015 specify qualifications
for auditors:
4. SKYPE Session Certificate IV in Training and Assessment (or its suc-
The VET Regulatory Journey cessor) and MUST include:
in Australia (Stephen Auburn) • Design and develop assessment tools (or its
successor);
How training provider audits are undertaken and what
is involved • Design and develop learning strategies (or its
successor); and
Standards for Registered Training Organisations
• Lead assessment validation processes (or its
(RTOs) 2015
successor).
1. The RTO’s training and assessment strategies and
Diploma of Quality Auditing (or its successor) and
practices are responsive to industry and learner
MUST include:
needs and meet the requirements of training pack-
ages and VET accredited courses • Participate in a quality audit (or its successor);

2. The operations of the RTO are quality assured. • Initiate a quality audit (or its successor);

3. The RTO issues, maintains and accepts AQF cer- • Lead a quality audit (or its successor); and
tification documentation in accordance with these • Report on a quality audit (or its successor).
Standards and provides access to learner records.
Types of audits
4. Accurate and accessible information about an RTO,
1. Registration audit:
its services and performance is available to inform
prospective and current learners and clients • Initial registration as an RTO

5. Each learner is properly informed and protected. • Renewal of registration as an RTO

6. Complaints and appeals are recorded, acknowl- • Change of scope of registration of an RTO
edged and dealt with fairly, efficiently and effectively. 2. Compliance audit:
7. The RTO has effective governance and administra- • Compliance Monitoring
tion arrangements in place.
• Compliance Monitoring – Complaint
8. The RTO cooperates with the VET Regulator and is
• Post initial
legally compliant at all times.

See Users’ Guide for more information

FROM CONCEPTS TO IMPLEMENTATION

104 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
3. Strategic industry review audits It is the RTO’s responsibility to provide evidence of
compliance - it is not the responsibility of the audit
Scope audit and allocate audit team
team to locate evidence
ASQA management:
Auditor:
Reviews risk management tool that led to decision
Develops audit plan and timetable:
to conduct audit
• Different audit approaches may be used e.g.
Uses Business rules for scoping an audit to inform
continuous improvement, student journey
size and scope of audit (which standards and which
training products on scope of registration to be Undertakes desk audit of evidence requested (any
sampled) and which auditor/s might be best suited non-compliances identified are used to guide further
inquiry at the site audit – not an opportunity for the
Determine desk audit or site audit
RTO to rectify non-compliances
Allocate auditor or audit team (Note: auditors may
be staff auditors or panel auditors) Site audit
Conduct opening meeting using Audit verification
The audit process
form – opening and exit meeting which the RTO
1. Plan the audit CEO signs (see handout)
2. Conduct the audit Auditor:
3. Report on the audit Conducts audit using audit plan and schedule

PLAN THE AUDIT Gather and review evidence:

documents
Auditor:
Interviews with management, trainers, assessors
Reviews audit scope
May interview past or current students, employers
Contacts RTO to set date for site audit and the
sends formal Notification of Audit by email confirm- Student files and records especially of completed
ing the Standards to be audited and the training assessment instruments and tools
products to be sampled (10 to 20 days’ notice) May take photographs
Request the following evidence be provided before Uses triangulation approaches (“not just words on
the site audit (at least 10 days in advance): paper”)
• Strategies for training and assessment for sam- Provides verbal feedback as the audit progresses
pled training products (no surprises at the end)
• A copy of any agreements for third party to de- Uses the Standards, evidence guidance in audit re-
livery or assessment port template and ASQA Users’ Guide
• Details of each trainer and assessor’s qualifica- Auditor conducts exit meeting using Audit verifica-
tions, training/assessment & vocational compe- tion form –opening and exit meeting:
tence and industry currency - as relevant to the
the purpose and scope of the audit
sampled training products
an overview of the audit process that has occurred
• A copy of the organisation’s marketing materi-
als relevant to the sampled training products the main areas of non-compliance

• Student Handbook that the audit findings will be reviewed within ASQA
prior to the audit report being provided to the RTO
Sample assessment tools and instruments are not
requested before site audit the audit report process and timeframes
the proposed rectification process (if non-compli-
CONDUCT THE AUDIT
ances have been identified) and timeframes
An audit samples part of an RTO’s business and the
obligations of the RTO to implement any required
audit findings are considered to represent its broad-
rectifications across all operations, not only in the
er operations
areas audited

105
 Note: This is not the opportunity for the provider to must keep assessment records for X pe-
provide rectification evidence. riod)

REPORT THE AUDIT • Give notice of an intention to impose an

administrative sanction (e.g. The RTO is
ASQA report template used
not to enrol any new students in any quali-
Exception reporting – only non-compliance detailed fications on its scope of registration)
(changed over time – previous Standards had a
• Impose an administrative sanction
continuous improvement focus and auditors could
make recommendations for improvement) • Allow withdrawal of registration

Overall audit findings: Compliant / Not Compliant FURTHER OPTIONS

Include recommendation of overall level of non- RTO may submit Request for Reassessment (fee
compliance: payable) with additional evidence
Minor non-compliance - minimal or no serious New auditor allocated and Regional Compliance
adverse impact on learners Manager who was not involved in first decision
Significant non-compliance - indications of a (fresh eyes)
serious or potentially serious adverse impact on Auditor analyses documents relating to the first de-
learners cision and undertakes a compliance assessment of
Critical non-compliance - actual or potential the new evidence submitted.
critical adverse impact on learners Completes Evidence analysis template and makes
recommendation to Commissioner
WHAT NEXT
Commissioner makes decision
If compliant, auditor drafts recommendation to Regional
If still non-compliant RTO given notice of an inten-
Manager Compliance
tion to impose a sanction
If non-compliant RTO may appeal the decision to impose a sanction
RTOs given 20 working days to submit rectification and provide more evidence
evidence New auditor allocated – similar process (fresh eyes)
Rectification evidence usually analysed and report- If still non-compliant, the RTO’s only recourse is to
ed by original auditor the Administrative Appeals Tribunal
If still non- compliant, auditor drafts recommenda-
ASQA requirements of Auditors
tion to Commissioner:
Participate in 4 days of moderation per annum
To refuse application (initial registration, renewal
or change of scope) Ongoing professional development as auditors

To impose a sanction: Maintain currency in VET

• Impose/ vary conditions of registration (e.g.

FROM CONCEPTS TO IMPLEMENTATION

106 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Figure 25: The national Regulatory journey so far

Compliance with standards by existing RTOs - Audits of Existing RTOs 1 October 2013- 31 March 2014

120

100 97 98
89 88 90 91 89 90 89 88
82 82
77 77 79
80 76
70 72

60 62
60

40

22 24
20

0
Quality Trailing and RTO is Governance CooperaƟve Compliance Insurance Financial Proper Accurate and TransiƟon
training and student responsive with with management cerƟĮcaƟon ethical from
assessment informaƟon to clients regulator legislaƟon markeƟng superseded
meeƟng and course
student stakeholders
needs
SNR 15 SNR 16 SNR 17 SNR 18 SNR 19 SNR 20 SNR 21 SNR 22 SNR 23 SNR 24 SNR 25

Compliance at iniƟal audit Compliance following recƟĮcaƟon

Conclusions from the first three years of vet regulations. Most providers –some 80%- are experiencing some
difficulties with doing assessment properly
Three groups have emerged in the Australian VET sector.
About one-third of providers appear to be offering
High quality providers who fully comply with the re-
courses that are too short to unable sufficient quality
quired National Standards (around 20% providers)
delivery to ensure quality skills are obtained
Providers who want to comply with the National
The transactions-based regulatory approach is too
Standards but who experience some difficulty at
slow a way to focus adequately on poor quality pro-
least at initial audits (around 60% providers)
viders.
Providers who do not provide quality training and
are unwilling or unable to comply with the National
Standards (around 20% providers)

FURTHER READINGS
ISO 19011 Guidelines for auditing management systems
Standards for VET Regulators 2015
European Parliament; Council of the European Union (2009a). Recommendation of the European Parliament and of the Council of
18 June 2009 on the establishment of a European quality assurance reference framework for vocational education and training.
Official Journal of the European Union, C 155, 8.7.2009, pp. 1-9. http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:C:2
009:155:0001:0010:EN:PDF
HANDBOOK FOR VET PROVIDERS-Supporting internal quality management and quality culture, CEDEFOP 2015
Ishikawa, K. (1985). What is total quality control? The Japanese way. New Jersey: Prentice-Hall.
Krueger, R. A. (1994). Focus groups: a practical guide for applied research. Los Angeles: Sage Publications.
Nonaka, I., Toyama, R., Byosiére, P. (1994). A theory of organisational knowledge creation: understanding the dynamic process
of creating knowledge. In: Dierkes, M. et al. (eds) (2001). Handbook of organisational learning and knowledge. New York: Oxford
University Press, pp. 491-517.

107
 FROM CONCEPTS TO IMPLEMENTATION
108 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
MODULE 11
RECOGNITION OF
PRIOR LEARNING

1. KEY CONCEPTS 110

2. RECOGNITION OF PRIOR LEARNING & EDUCATION 110
3. GUIDELINES 111

109
1. Key Concepts Employers use RPL in order that both they and their
employees benefit from the process. RPL is used in
The Recognition of Prior Learning process (RPL) has such cases to;
been introduced and applied by many countries primar- Advise employees on matching their skills and
ily to facilitate the social inclusion and rapid uplifting of knowledge to existing qualifications and nation-
persons with learning and skills gained in the non-formal al occupational standards
& informal environments. People in the non-formal &
Facilitate employees in using their existing skills
informal sector comprise the majority of those working
and knowledge for career development, pro-
in India today, yet they may have little or no recognition
gression and mobility
for the learning and skills they possess. Along with this,
there are unemployed persons who may wish to get rec- Assist workers to identify existing skills they po-
ognition for the learning they already have, but which is sess that may be relevant to new functions in
not recognised or certificated. This lack of recognition their job role.
excludes them from making a better living or entering
This is achieved through the use of a range of processes
the formal education process. RPL in the formal sector
to identify and match skills & learning to existing Nation-
is applied mainly for access to learning opportunities,
al/Sector/Job standards, including;-
certification and for employment progression purposes
as detailed below. Validating the scope and relevance of an individuals
practical skills through the use of tests and inter-
RPL for recognition of experiential learning
views, mapping skills & learning to a National/Sec-
Many people have learning gained in a range of tor/Job standard, observing tasks, and structured
situations. These situations can include learning discussion.
through, for example, community support activities,
Mapping prior learning, knowledge and skills against
sport, and the workplace. Such learning may be not
learning outcomes of NOS/units of qualifications for
certificated as it occurred outside of a formal learn-
entry to employment
ing process. Nevertheless, all learning has value and
should be recognised no matter when where or how Verification of evidence
the learning was achieved.
RPL & employment

Figure 26: Recognition model for RPL within the NSQF concept

Option A Option B Option C Option D

Full Programme (All NOS) & NOS Award/Part Quali- RPL PART NOS or Learn- First Stage access recogni-
Qualification fication ing Outcome/Element tion. Main focus on NSQF
Credit(s) Level 1 Skills & Related Informal
Knowledge only Learning

NOS 1
QUALIFICATION
NOS 2
Learning / Skills & RPL
(Competency Based)
NOS 3 Element Knowledge
Outcome(s)
NOS 4

NOS 5

NOS 6 etc. Non

formal
Learning
Competency based
assessment (CBA) Competency based
assessment (CBA)
ALL NOS
ONE or more NOS level

Statement recognising All C

Candidate
Qualification / Certificate Credit Award (One existing skills & data recorded on
Competency award
(One or more NOS) or more Learning knowledge only, + Gap Nattional Database
PART QUALIFICATION Outcomes) training plan of L
Learner
FULL QUALIFICATION CREDIT AWARD STATEMENT OF Reccords
RECOGNITION

FROM CONCEPTS TO IMPLEMENTATION

110 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
2. Recognition of Prior Skills & Knowledge residing within a Learning Out-
come of a NOS (Option D)
Learning & Education Learning Outcome(s) recognition as contained
Individuals use the RPL process to gain recognition for within the relevant NOS (Option C)
the existing learning they have, in order that they may;- NOS recognition as contained within a full qualifica-
Gain entry to formal education & training based on tion (Option B)
existing learning Qualification recognition (Option A)
Obtain formal recognition Certificate/Award based
Below are some definitions from bodies responsible of
on existing learning
Education & Training.
Figure 26 details an RPL concept for discussion, and
UNESCO, the United Nations Education Scientific &
based on the NSQF requirements.
Cultural Organisation states that RPL is “the formal ac-
In proposing this RPL concept model, consideration is knowledgement of skills, knowledge, and competencies
given to a number of issues, not least being the real- that are gained through work experience, informal train-
ity in the market place, whereby workers in many sec- ing, and life experience”
tors, particularly in the unorganised sector, may not
CEDEFOP, the European body responsible for Vocation-
comply with the full scope of the requirements of a
al Education & Training policy, states that RPL is “The
National Occupation Standard (NOS), which are de-
confirmation by a competent body that learning out-
veloped mainly for use in a formal learning environ-
comes (knowledge, skills and/or competences) acquired
ment. The bulk of those with non-formal and informal
by an individual in a formal, non formal or informal setting
learning reside in the unorganised sector, and can be
have been assessed against predefined criteria and are
unemployed. RPL will need to provide them with a mod-
compliant with the requirements of a validation standard.
el that enables them to progress. The RPL concept in
Validation typically leads to certification.”
Figure 26 identifies four options ranging from recogni-
tion against a full qualification through to recognising a The Ministry of Human Resource Development, In-
candidates skills and knowledge, obtained through non dia through the National Institute of Open Schooling
formal and informal learning. (NIOS) states that;

Option D of the concept model details this approach, “Recognition of Prior Learning (RPL) is the formal as-
and proposes a model that can identify & recognise the sessment and recognition of the skills and knowledge a
existing/job skills and knowledge that such workers may person has regardless of how or where the competen-
possess. Currently this option is targeted at workers as- cies may have been attained, that is, through formal or
piring to Level 1 NSQF recognition. informal training or work experience (paid and unpaid)
voluntary work and life experience”.
The approach proposed is to apply the RPL process,
in the first instance, for judging skills and related knowl- The NQSF Notification No. 8/6/2013-Invt. states that
edge only, that may be Level 1 compliant, and to record “RPL is the process of recognising previous learning, of-
such attainment in the candidate’s portfolio, for later re- ten experiential, towards gaining a qualification”
cording on the National Database of Learner Records
(NDLR). The RPL concept also allows that Gap or Bridg- There are many more definitions of RPL, but what is clear
ing training needs are identified. If the primary focus is is that RPL as a concept is focussed in recognising
on Skills & Knowledge learning recognition in Option D, that all learning has a value learning no matter when,
then the focus of the identified training may focus on the where or how it has been acquired.
remaining components at Level 1.

This may be mainly but not exclusively focused on, writ- 3. Guidelines
ing, reading etc. as contained in the Core/Generic skill
component at level 1 NSQF. These RPL Guidelines have been developed to support
users of RPL and form a component of the RPL Quality
In summary, the draft RPL concept proposed, allows for System. The draft guidelines are developed based on
learning recognition based on; existing information and will be amended over time and

111
are detailed within the following Sections. Any Institution or entity providing RPL will be required to
Section A Accreditation of Institution & Workplace have sufficient RPL resources (physical, human, finan-
Assessment sites cial) necessary to provide a professional & Quality As-
sured RPL service.
Section B RPL Implementation & Practitioner
Guidelines
Section B: Recognition of Prior
Section C Certification, Awards, Credits, and Learning – Implementation &
Statements of recognition Practitioner Guidelines
Section D Development of RPL Materials & Instru-
ments
B.1. RPL Implementation issues
Section E National Database of Learner Records RPL implementation can occur in a range of accredited
(NDLR) environments, including the workplace, through a pro-
vider of RPL services, or in a learning institution. In line
Section A: Accreditation with best practices, an RPL service provider will put in
of Institution & Workplace place a schedule of RPL services on offer in the RPL/
Assessment sites Assessment Institution. Such a schedule will need to ad-
dress the following;
In supporting a sustainable RPL system, it is first required
a) Scope of services (What sectors/jobs the RPL ser-
that all institutions providing RPL services are accred-
vice will cover)
ited to provide these services. This is in line with best
practice Education & Training systems worldwide. The b) Marketing plan (Use of print, radio and other media
RPL system proposed can take place in an assessment to reach market)
centre/institution, a training centre or in the workplace. c) RPL Fee structure
Providers of RPL services will be accredited in line with d) Timetable of RPL services
the accreditation procedures agreed in the QA system.
RPL Assessors and advisors employed in an accredited It is important to plan RPL to be implemented on a man-
Assessment centre will be permitted to provide RPL ser- aged individual basis when assessment is taking place.
vices in the workplace. Where assessment takes place Clarification of evidence presented is best implemented
in the workplace, the workplace will be registered as a on an individual basis. This does not exclude the asses-
provider of assessment services. RPL sites should pro- sor from scheduling more than one person for assess-
vide candidates with RPL options, based on their non- ment, providing that sufficient time is given to ensure that
formal & informal learning/experiences. These options each candidate is assessed in line with the guidelines
include the following:- for assessment. Parts of the advising process can be
done with groups of candidates, where the candidates
a) Access (to learning and employment)
are claiming recognition that is job, or qualification re-
b) Award (credits, full or part qualification) lated. The RPL service provider will also need to have in
c) Progression (within a programme of learning or place sufficient resources that enable the RPL assess-
within employment) ment process to take place. These resources will cover
the following at a minimum;
The purpose of accreditation is to ensure conformity on
all aspects of quality pertaining to RPL and all assess- a) Portfolio of evidence materials (including candidate
ment issues. Accreditation instructions and guides details etc. This and other recording means can be
should cover the following; in paper or electronic form)

Capacity of the Institution or workplace to deliver b) Practitioner instruments per occupation/NOS/

RPL services with regard to the sufficiency and Learning Outcome or Element.
quality of its Human, Physical & Financial resources. c) Learning action planners, where gap or bridging
Practitioners Qualified in line with National/Sector training is required.
policy & Qualifications d) Database of Learning providers.
Performance of the institution or workplace over e) Sufficient human, financial & physical resources
time in the provision and delivery of RPL services. available to implement the planned RPL service.

FROM CONCEPTS TO IMPLEMENTATION

112 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
The outcome of the RPL Implementation process can Figure 27: RPL Practitioners
include one of the following recommendations;-
Access to a formal education & training programme
• Advise, Guide & Support
Access to employment or progression within em- • Recommend Learning or Assessment
ADVISOR
ployment
A Qualification award
A Part qualification award • Review advisement result
• Judge Evidence
A Record of credit against learning outcomes ASSESSOR • Recommend Award or Further Verification
• Assessment or Learning Development
A Statement of recognition

This stage will also allow for the identification of issues • Verify/Validate Assessment process &
such as individual candidates being suitable/unsuitable practitioners
VERIFIER • Assure quality of product & process
for progression through the advisory stage. In many
• Approve outcomes & Compile reports
cases potential RPL candidates are unsure of the RPL
process and do not conform to the requirements for RPL
processing. The briefing stage addresses this and iden-
ments in carrying out their functions. Whether they are
tifies those suitable for further processing through the
advisors, assessors or verifiers, the instruments they use
Advisory stage and onto the Assessment stage if suc-
will need to be approved for use in line with guidelines
cessful.
relating to the development and application of such in-
B.2. Practitioners struments.

RPL implementation is dependent also on having in Advisor Guidelines

place Qualified RPL practitioners. This will be in line with
A primary and defining stage in RPL is the advisory
the accreditation requirements. RPL policy and guide-
stage, developed to provide support to candidates with
lines will identify the Practitioners required.
non-formal and informal learning. The advisor plays a
These practitioners will be: key role as the gatekeeper into the RPL Assessment
process. Advisors will need to make decisions concern-
Occupation Qualified
ing a person’s claim and the evidence they provide. Ad-
Practitioner Qualified (Advisor, Assessor, Verifier) visors are assisted in their functions through the use of
standardised instruments/documents/records. Advisor
There are three primary stages in the proposed RPL sys-
Instruments should be designed to reflect the outcomes
tem, with each stage supported by a competent RPL
of questions and decisions from the advisory process.
practitioner as detailed in Figure 27. As referred to earlier
in Figure 26, the verification process is a planned but The role of the Advisor is to:
random process that supports assures the quality of the
Assist candidates to understand the RPL process
advisory and the assessment processes in line with ex-
and its benefits
isting practices in education.
Assist candidates to gather and compile their Port-
Advise (Advisor)
folio of Evidence
Assess (Assessor)
Critically Review the evidence being provided by the
Verify (Verifier) candidate to support their claims for recognition,
through structured questioning
All RPL services are based on approved National
Qualifications and/or National Occupation Stan- Agree & record the next stage with the candidate
dards. using the instruments provided – remember, - the
Advisor is NOT the Assessor.
All quality assured activities require proof or evidence of
Assist and support the candidate through to the
completion and the programme covered and the recom-
next stage of the RPL process – either Assessment
mendations made. Practitioners themselves may prog-
or Further Learning.
ress to the Award stage via the RPL process. Qualified
practitioners will be required to develop and use instru-

113
Compile a Portfolio of Evidence times through this process using a friendly inclusive
manner.
Where there are no literacy issues, it may be useful to
use the Portfolio process to gather and document the Question the detail of the claims. This questioning
candidate’s evidence. Otherwise evidence should be process should be applied using an open question
provided in visual form, for example by demonstration, style for clarification purposes and to assist the ad-
use of pictures, drawings etc. In either process question- visor make candidate progression decisions. The
ing will be used to support any physical evidence. advisor is not determining the competence of the
candidate – this is the role of the assessor, should
In any event it is required to gather the personal details of the candidate progress to the assessment stage.
the RPL Candidate for record purposes.
Record all decisions made on the Match Claims
The purpose of the portfolio is to gather & record candi- form and sign off. This becomes evidence in the as-
date details & the evidence presented that is relevant to sessment stage.
the claim for recognition being made by the candidate.
Plan Progression
The Portfolio can be in paper or electronic format. The
advisor will use a range of instruments and approaches The purpose of Planning Progression is to close the ad-
in order to gather the information and evidence to sup- visory stage of this process by agreeing an action plan
port the claim. The advisor will; that progresses the candidate to the next stage of the
Record the candidate’s personal details, education RPL process- whether this is to Assessment or to Learn-
& training history including non-formal and informal ing development. The advisor will;
learning and their employment history. Summarise and check that there is agreement with
Brief the candidate on the process and Benefits of the candidate on all the Planning outcomes
RPL. Agree the progression of the candidate to either As-
Work with the candidate to extract the evidence re- sessment or Learning Development.
quired to support the claim Record this agreement on the Candidates Action
Plan. Both the Advisor and the Candidate will sign
Orientate the Candidate to the required NOS
and date the action plan.
The purpose of Orientation at the Advisory process is Progression to assessment requires selecting and
to clarify the candidate’s comprehension of the required recording the Competency Standards that the can-
Standards against which they are making claims. didate will be assessed against.
Review and discuss the appropriate registered The candidate will be provided with an appointment
Qualifications and Standards with the candidate for assessment indicating the time, date, venue and
Check the candidates knowledge and comprehen- contact details.
sion of the evidence criteria against which the can- The dates agreed per group of candidates for as-
didate will be assessed sessment will be recorded on the Assessment
• Resolve any problems arising, so that the candidate Schedule-Group.
is clear how the Advisory process works. Where gap or bridging training is required, this is
agreed planned for & recorded in the candidate’s
Match Claims
record.
The purpose of Matching Claims is to agree with the can-
The Advisement Instruments can include the Portfolio of
didate the claims that the candidate is making, matched
Evidence, Matching Claims check-sheets, background
against the appropriate Qualification &/or Standard(s)
occupational questions and sample answers are other
Matching is based on the information and evidence pro- inputs provided to assist the Advisor, to plan the pro-
vided by the candidate. gression of the candidate to either Assessment or to Fur-
ther Learning. The outcomes of the Advisory process are
Review the Portfolio details, in particular employ-
either a recommendation to Assessment or to Further
ment and Learning history to back up the claims the
Learning.
candidate has made. Support the candidate at all

FROM CONCEPTS TO IMPLEMENTATION

114 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Box 17: The Advisor as a professional The Role of the Assessor is to:
Prepare the candidate for the assessment
No matter what the situation Advisors are presented with,
Brief and advise and instruct candidates on the as-
they must be professional, fair and impartial in all deci-
sions. On the one hand the progress people will make is sessment process
effected by the decisions you made by the Advisor-on the Orientate the candidate to the Qualification/National
other hand, scheduling people for assessment that do not Occupation Standard requirements.
have the evidence to back up their claims is a waste of
money and time, and does no favours to the people making Review/authenticate the evidence provided
the claims. Plan for the assessment
Select relevant assessment instruments
Figure 28 summarises the Advisory Purpose, Stages Make assessment decisions
and Process Record assessment results
Generate suitable action plans
Figure 28: RPL Advisory process
Provide inputs to any appeals

PURPOSE STAGE PROCESS

Advise
Portfolio Compilation:
• Brief & support candidate on • Candidate’s details
RPL, gathering evidence & Gather evidence/ • Education &Training History
compiling portfolio Compile Portfolio • Non-formal & informal Training/
• Process & benefits development
• Employment History
• Discuss Claims/Evidence

Discuss
• Exit level outcomes Orientate Candidate to
Orientate to Unit • Qualifications & relevant
• Assessment criteria
Standards • Competency Standards
• Competency evaluation &
outcomes • Orientation Check Sheet

Match Claims
Evaluate claims
• Complete match claims per
• Against Competency
Match Claims candidate per occupation
Standards using instruments
• Complete Q & A
provided
• Guides per Occupation

Assist / support candidate to Action Plan

the next stage • Award
• Discuss learning & career • Assessment
options Plan Progression • Learning Development
• Plan assessment or learning • Assessment Appointment record
development • Group Assessment schedule per
occupation

Assessor Guidelines Evaluate the way in which the assessment was

conducted
The Assessor is the judge of the evidence provided by a
candidate as their claim for recognition, following the Ad- Review Evidence
visory/Evidence gathering process. In the first instance
the assessor will judge the Advisors recommendations. The assessor will review the evidence presented, and
Assessors are assisted in their functions by the use of accept or query the recommendations made by the ad-
standardised instruments/documents/ records. Asses- visor. Where the Assessor does not accept the advisors
sors will be qualified against the Qualification/NOS for recommendations, both the Advisor & Assessor must
the Assessor & registered on the NDLR. meet to clarify and agree the following:-

115
 The completeness of the Portfolio of Evidence and/or The assessor will record where insufficient evidence is
The relevance and sufficiency of the evidence pro- provided, and relate this to the appropriate Learning
vided Outcome. Each IAI will also contain guide questions and
model or typical answers to assist in this process. As-
Other related issues
sessors should compile their own bank of assessment
A way forward instruments, necessary to provide a quality assured evi-
dence judgement process. IAI’s will also contain details
Orientation
and materials to enable a further verification assessment
The assessor will conduct a comprehensive orientation to occur, where award judgements cannot be made due
to the Qualification/NOS or Learning Outcome against to non-complying evidence. These further verification
which the claim for recognition is being made. This will assessment assignments will contain some or all of the
be a more technical Orientation than that conducted by following -
the advisor. Drawings/pictures/other visual media containing the
The assessor will orientate the candidate to ensure detail of the assessment assignment
the candidate is fully aware of the requirements re- Technical verification Question examples covering
lating to assessment criteria and quality judgements essential embedded knowledge
that will be made by the assessor
Verification Question examples covering the re-
The results of the orientation stage are recorded as quired learning outcomes
and signed off by the candidate and the assessor.
The RPL guides and instruments are based upon judg-
Maintain this record as evidence
ing evidence of learning outcomes achieved against the
Plan & Implement Assessment requirements of the relevant National Occupation Stan-
dard. This can lead to a recognition decision. The instru-
It is critical that the candidate clearly understands the ments the assessor will use will assist in the judging of
RPL assessment process, and their role in this process. the evidence in an integrated manner. All judgements will
The candidate should be provided with detailed Instruc- be recorded and depending on the scope of the assess-
tions, either written or verbal, and the assessor should ment, a record of judgement decisions against each
ensure that sufficient resources are available to support Learning Outcome within each National Occupation
the implementation & judgement process. The candidate Standard/Qualification.
will be briefed regarding general and specific Instruc-
tions to assist the candidate understand what is required Evidence Review Record
in the presentation of the evidence and its evaluation/
An evidence review record provides the record of deci-
judgement. The form/type of evidence judgement /as-
sions leading to a judgement, and is also a record of
sessment to be used will be agreed by the candidate
such judgements. The Evidence review record is com-
and the assessor. In general, an assessment that
pleted by the Assessor and the Candidate. The Asses-
verifies the claim by simulating the skills required
sor will:
in a job situation, backed up by supporting process
knowledge, will provide the assessor with sufficient Record the types of assessment used in judging the
evidence upon which to make a judgement. evidence
Record against the evidence provided, if the evi-
When conducting an assessment against a claim made,
dence is Valid, Authentic, Sufficient and Current.
it is preferable that standardised Assessment Instru-
ments are used by the assessors. The use of the stan- Be a basis for a recommendation leading to fur-
dardised instruments allows for the validation of assess- ther verification assessment, learning develop-
ment data and instruments. Integrated Assessment ment, or an award recommendation. Assessors
instruments (IAI’s) contain the tools and other judge- will make, record and sign off the recommendation,
ment/assessment criteria used in evaluating the quality along with the candidate, in the Candidates Action
of the evidence provided. Each IAI will assist the asses- Plan
sor in the making of judgements in an integrated manner Maintain the Evidence Review Record as proof of
involving the skill, relevant/required knowledge and other the Assessment decisions made.
components required for a comprehensive assessment.

FROM CONCEPTS TO IMPLEMENTATION

116 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
This record is proof of the judgement or assessment of mend Gap training/Learning Development and will
evidence, as recorded by the Assessor and agreed by need to record the Learning Development needs in the
the candidate. candidates Action Plan. This plan needs to be agreed
with the Candidate.
Evaluate Outcomes
Box 18: The Assessor as a professional
The Assessor will finalise judgement decisions, agree
this with the candidate and record this as the record of
As a qualified and registered Assessor, the Assessor is
achievement on the candidates file. If, for example there
expected to provide decisions that are fair and impartial,
are three Learning Outcomes that the candidate has and are agreed with the candidate. The Assessor is also
provided sufficient evidence for, but one Learning Out- expected to do this in a professional manner, and in a way
come where the evidence does not meet the require- that is open to verification or query.
ments, the assessor can ask the candidate to complete
To achieve this, the Assessor will be qualified both as
a Further Verification Assessment. The outcome of this an Assessor and in the Occupation that the Assessor is
process is a recommendation by the assessor. making judgements on. The Assessor must ensure that the
decisions taken regarding the acceptance or rejection of
Record Recommendation the sufficiency, validity, currency and authenticity of a can-
didate’s evidence are recorded in the candidate’s portfolio,
Where sufficient evidence is provided the assessor will or other approved RPL record.
make a recommendation leading to an award. Where the
evidence does not meet the requirements for award Figure 29 summarises the RPL assessment purpose,
recommendation purposes the assessor can recom- stages and processes.

Figure 29: RPL Assessment process

PURPOSE STAGE PROCESS

ASSESS

Portfolio/Evidence Review:
• Candidate’s details
Check portfolio to confirm claims • Education History
made and validated. • Training History
Review Evidence
• Non-formal Training and Development History
• Employment History
• Match Claims

Discuss: Orientation
• Learning outcomes • Orientation Record Sheet
Orientate to • View and discuss model criteria and standards
• assessment criteria
Standards • Discuss qualification and Standards
• competency evaluation
• Explain technical terms

Assessment Implementation
Prepare the candidate and plan for Plan & Implement • Implement assessment assignment
assessment. Assessment • Assessment Assignment
Questions and Answers (Tech)

Use appropriate assessment methods: Assessment Evidence

• Questioning Evaluate
Assessment • Portfolio and evidence
• Observation • Assessment Check Sheet and record
• Product sampling. Outcomes
• Evaluate assessment and record outcomes

Assist and support Candidate. Recommendation

• Feedback to candidate Record • Award recommendation
• Results forwarded for award Recommendation • Learning Development

117
Verifier Guidelines Verifiers to the appropriate awarding body. All Verification
reports will contain data resulting from:-
The Verifier supports the RPL process through review-
ing the overall RPL process in an independent manner. Candidate feedback
The Verifier underpins the credibility and relevance of Advisors
the RPL process/result to the Quality Assurance body, Assessors
Awarding body, the candidates, the provider, and to the
Awards data
broad community. The Verifier will need to put in place
the operational systems of checks and balances that as- Instruments used
sure this process and its outcomes. Verifiers are assisted Data capturing quality & integrity
in their functions by the use of standardised instruments/
Further Verification Assessment assignments
documents/ records. The Verifier can be an internal Veri-
fier or a Verifier from outside the RPL institution. Whether Learning Development progression plans
the Verifier is internal or external, they will be Qualified RPL Process Observation
in line with the Verifier Qualification or Standard and be
registered with the appropriate Quality Assurance body. The Verifier will;
Schedule the verification process by agreement with
The role of the Verifier is to:
the RPL institution & practitioners
Assure the quality of the RPL process, the instru-
Observe the RPL process at various stages
ments used and outcomes recommended when
RPL has been implemented within an enterprise or Record & log non compliances
institution providing RPL services. Resolve non-compliance issues locally
Conducted the verification in line with the QA policy Record and report outcomes to resolve non compli-
on assessment. ances
Review the RPL process with candidates and the Collect, analyse, organise and evaluate information.
other RPL practitioners and obtain their feedback.
Plan, prepare and conduct verification.
Record and report on the RPL process
Advise and support practitioners.
Approve or put on hold recommendations made,
Review verification systems and requirements.
prior to the issuing of certificates.
Prepare external verification requirements.
(In line with standard practice, once a certificate has
Report according to procedures.
been issued, it may only be withdrawn on grounds of
fraud) Approve or amend RPL outcome recommendations

Verifiers will liaise with other practitioners within their

enterprise or institution that are involved with the quali- The Verifier as a professional
fication process and have regular meetings with them As a member of the RPL practitioner team, Verifiers will
to plan and schedule the RPL verification process and carry out their duties in a quality assured manner that as-
to resolve outstanding issues including candidates with sists in supporting the other team members and results in
special needs. The Verifier will gather & provide data on candidates having a fair and comprehensive RPL service.
The Verifier links to the Quality Assurance / Awarding body
an agreed basis that verifies the quality of the results and plays a key role in supporting the credibility and relevance
the assessment process. Reports will be provided by of RPL.

FROM CONCEPTS TO IMPLEMENTATION

118 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 Figure 30: Verification process

PURPOSE STAGE PROCESS

VERIFY

Plan & prepare the verification process regarding

Plan the process for verifying the
outcomes of RPL advisement & Plan, Prepare &
Scope, nature, processes, techniques &
assessment conduct verification
implementation.

To support and quality assure the Advise & support

process and outcomes of RPL as Advise & support practitioners and providers regarding QMS
they impact on practitioners & assessment practitioners elements including planning, resources,
providers & agencies competency, qualifications & data capturing and
reporting

Provide Quality assurance guidance Report, record & Provide verification

& reports re-verification results apply verification reports to awarding body for action in line with
existing TVET QA procedures

Ensure verification reports are Support & quality assure

actioned and line with approved Review & assure the
the outcomes of the assessment process in a cost
Quality management systems. quality of systems &
effective and efficient manner
outcomes

Section C: Credit Transfer, Certification, Awards, an award. There may be a need to consider what pro-
Credits, Statements of recognition cess best suits the supporting the allocation of credits to
all qualifications, NOS and Learning Outcomes/Elements
C. 1. Credit Transfer within NOS, particularly when applying RPL using option
C or D. A Credit points system will allow for the accumu-
“Credit transfer is the process of recognising prior learn-
lation of credits, progression to an award as detailed in
ing that has been credit rated by the assessment & cer-
Option B. Such a system will need to be incorporated
tification bodies to do so. The transfer of credit points
into the National Assessment & Certification system
from one qualification or learning programme into an-
legislation, for future use during the RPL process.
other helps to minimise duplication of learning.”(NSQF
notification No. 8/6/2013-Invt). C. 2. Statement of recognition
The importance of credit transfer in supporting RPL A statement of recognition is one that is provided to an
is critical. Being able to accumulate credit for learning RPL candidate, where skills and knowledge are judged
through the RPL process provides the basis for pro- as insufficient for an award, but identify skills, knowledge
gression by the learner. This is true whether the learning and learning by the candidate within one or more learn-
forms the whole or a part of a NOS or a Learning Out- ing outcomes.
come/Element, the recognition and recording of the as-
sessment outcome is critical. The NSQF notification (9 Section D: Development of RPL Materials
i) supports the transferring of accumulated credits.
D.1. Types of RPL Materials
Credits or credit points can have a particular refer-
ence to the notional hours allocated to learning and RPL materials consist of those instruments and records
learning attainment. Where sufficient required cred- used by RPL Practitioners during the RPL process.
its are accumulated, this may lead to certification or These materials are taken from the databank of assess-

119
ment materials developed over time by the practitioners, Section E National Database of Learner
and referenced to specific qualifications. As a part of Records (NDLR)
their practitioner qualification, RPL practitioners are re-
quired to be competent in the development of such ma- It is planned to establish and maintain a Qualifications
terials. RPL materials will be developed and referenced register, which will be “the official national public record
to each NOS & stored in a safe secure environment in of all qualifications aligned to NSQF levels, qualification
line with existing QA procedures. pathways and accrediting authorities” NSQF Notification
No.8/6/2013-Invt. It may be useful to link the planned
These materials can include;- register to a National Database of Learner Records,
RPL marketing materials thereby establishing formal links between qualification
and records and for learners to access for use in plan-
Candidate Portfolio (paper or electronic)
ning progression activities. In developing the model &
Advisor Instruments per NOS by Learning Outcome/ the detailed guidelines for an NDLR, there will be a need
Element to take account of all learner achievements, whether
Assessor Instruments per NOS by Learning Out- achieved through the formal learning system or through
come/Element RPL.

Verifier Instruments The NDLR can sit within the LMIS.

D. 2. Maintaining the RPL databank. i) An NDLR can provide learners with access to their
achievements, including via RPL, based on National
The source of the RPL materials will be the databank. Qualifications
This databank will be referenced to the NQF Qualifica-
ii) Learners can download proof of their achievements
tions register. The databank will be developed to include
for use when seeking employment or access to fur-
a range of questions and related media including draw-
ther learning
ings, pictures etc. organised by type and qualification
for use in the development of standardised RPL instru- iii) Data can provide source material for use by govern-
ments. The databank will be continually updated to pro- ment in skills development planning and prioritising
vide a reliable & secure source of assessment materials resource allocations.
for use in the RPL process. Maintaining the RPL data-
bank will be done in line with the QA procedures govern-
ing the National Assessment & Certification system.

Figure 31: RPL Model

Accreditation VET Institutions &

Authority Workplace

Provide Guidelines & Implement

Criteria for Accreditation accreditation process

2. External Audit of Self 1. Self Assessment of

Assessment data QMS Commence
accreditation
process
3. Non compliances
Non addressed
Compliance
Compliance

4. Accreditation 5. Accreditation
recommendation issued Awarded

FROM CONCEPTS TO IMPLEMENTATION

120 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Figure 32: Accreditation model

Qualification
Award,
Enjoyment or
Further Learning

RPL

Advise

Formal Assess
Learning
Verify

Non-formal,
Learning
informal

FURTHER READING
Department of Education, Employment and Workplace Relations (Australia) (DEEWR). 2008. Development and state of the art of
adult learning and education. National report of Australia. (UNESCO’s 6 international conference on Adult Education, CONFINTEA
VI). Canberra, DEEWR.http: www.unesco.org/fileadmin/MULTIMEDIA/INSTITUTES/UIL/confintea/pdf/National _Reports/Asia%20
-%20Pacific/Australia.pdf. (Accessed 17 April 2015.)
Duchemin, C. 2014. Country report France. European Commission, Cedefop and ICF International, European inventory on valida-
tion of non-formal and informal learning 2014. http://libserver.cedefop.europa.eu/vetelib/2014/87058_FR.pdf
(Accessed 16 April 2015.)
European Union. 2012. Council recommendation on the validation of non-formal and informal learning. Official Journal of the Eu-
ropean Union, C 398/1. http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:C:2012:39 8:0001:0005:EN:PDF (Accessed
16 April 2015.)
Ganzglass, E., Bird, K. and Prince, H. 2011. Giving Credit When Credit Is Due: Creating a Competency-Based Qualifications
Framework for Post-Secondary Education and Training. Washington DC, Center for Postsecondary and Economic Success
(CLASP).
Villalba, E. 2009. Learning at the core: knowledge management as an employer strategy for lifelong learning. M. D. Lytras and
P. Ordóñez de Pablos (eds), Knowledge Ecology in Global Business: Managing Intellectual Capital. Hershey, Pa, IGI-Global, pp.
132–56.
Villalba, E., Souto-Otero, M. and Murphy, I. 2014. The 2014 European Inventory on validation of non-formal and informal learning:
prospects and trends on validation in Europe, Berufsbildung in Wissenschaft und Praxis, Vol. 15, No. 5, pp. 16–19.

121
 FROM CONCEPTS TO IMPLEMENTATION
122 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
MODULE 12
PILOT PROJECT IN
RECOGNITION OF
PRIOR LEARNING
FOR DOMESTIC
WORKERS

1. BRIEF DESCRIPTION OF PILOT EXPERIENCE CARRIED OUT BY THE NATIONAL SKILL

DEVELOPMENT AGENCY 124
2. KEY CHALLENGES AND RECOMMENDATIONS FOR EACH COMPONENT 126

123
1. Summary & make the SSC financially viable in the years ahead. The
NOS used for the pilot is a combination of these original
Observations on the curriculums and measures the competencies identified
Recognition of Prior for an experienced domestic worker. The assessment
Learning – Pilot for tools created for this pilot have their origins in the
courses run by the consortium members. In essence
Domestic Workers thus RPL assessment marks the different between an
To date, the NSDA RPL pilot project has assessed 920 absolute beginner who has never stepped foot inside
domestic workers in the NCR with an 80% pass rate. a home to work and someone who has worked as a
These participants will soon be given certificates and a domestic helper for at least a year.
tracer study will begin that tracks the participants post
There are important lessons and observations that can
assessment at weeks 5, 15 and 25. Until the tracer study
be drawn from the pilot and these will be useful in helping
has been completed it will not be possible to provide
the SSC as it comes together. The observations will help
complete and conclusive results. However, some
the SSC understand what the market can bear at this
important observations can be made that will be useful
early stage and will also inform future RPL assessment
as the soon-to-be-approved SSC for Domestic Workers
programmes. It is also important that the findings of this
begins its important work.
pilot are taken into account when creating policy around
As this RPL pilot pre-dated a formal and approved SSC, RPL where it affects the informal workforce. There can
it was necessary to first create National Occupational be no doubt of the necessity and urgency of putting
Standards so as to have some standard competencies an RPL assessment process in place for the domestic
to use for the assessment process. The NOS used was workers. The RPL process, as it develops will provide
created using the collective experience of the consortium excellent data which will help to identify the job roles and
members, several of whom have been training domestic competencies and it is an excellent starting point in the
workers for many years. The training courses held journey to create a complete market map and to formalize
by the consortium members over the years had all and legitimize this sector. Even if the results of this pilot do
been designed to meet specific market requirements. not show immediate increases in income for the workers
They were all demand-led and were created as viable or provide further mobility or legitimacy at this stage (as
working models at the request of clients, both private per the hypothesis set at the beginning of the pilot) the
and corporate (as in the case of facility management consortium remain convinced that these benefits will
companies). In the absence of any government come in the future as awareness and understanding
sponsored training programmes for domestic workers, about the assessment process grows. Furthermore,
these organisations responded to repeated requests for lessons learned from the Domestic Workers RPL pilot will
training by creating original curriculum and developing inform RPL assessment programmes for other informal
methodology that was designed specifically for the workers in the unorganised sector. Independently
domestic workers. The cost and length of the courses employed plumbers, carpenters, electricians, domestic
are aligned with the amount the employer/employee drivers, rickshaw pullers and street vendors are amongst
will pay and the length of time the worker can be free those whose work environment mirrors that of domestic
to take the course. The methodology of each training workers. The challenges of mobilisation, literacy and
course used as a base for the NOS created for this pilot scale will be very much the same.
is unique and designed to take into account the specific
Much thought will need to go into creating RPL
characteristics of the individuals being trained including
assessments for the informal workforce and the RPL
their lack of formal training and low level of literacy.
process will necessarily look quite different than it does
The very fact that the courses offered by the consortium for the organized sector. However, it is the informal
members are in constant demand even today and create workforce who has the most to gain by having their skills
small profits for the organisations points to the fact that recognised and certified. It will be the first crucial step
there is an identifiable need in the market for trained to creating an aspirational career path and, through this
domestic workers and that training domestic workers process they will, for the first time, be able to understand
can be a viable financially for an organisation if the that there is a journey ahead that will allow them to
course matches the market need. This is important for increase their income, improve their work environment
the SSC to consider as it will be essential to find ways to and develop their skills. Improving literacy and creating a

FROM CONCEPTS TO IMPLEMENTATION

124 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
bridge to formal education will be the final step to helping through the development of easy-to-use apps. The
domestic workers join the organized sector. awareness campaign could include some degree of
education for the employer, advocacy for the basic
Some observations drawn from the pilot are listed below
rights of workers as well as provide information on
as well as a detailed analysis on the key challenges faced
standards, available courses and RPL assessment
during the pilot and some specific recommendations on
centres
how these challenges could be overcome.
Literacy cannot be assumed in this community.
From the outset it was clear that the participants
Training programmes, NOS and assessment tools
understood the value of the assessment and were
must all be developed with this fact in mind. Lack
keen to obtain the certificate. Everyone who came
of literacy is only part of the issue. Domestic work-
to the centre wanted to go through the process and
ers lack any formal training and as a result lack the
obtain a certificate even if they were not working in
behaviours and discipline to sit through long ses-
the domestic industry. Those participating clearly
sions. It will be essential to understand how mem-
communicated that the process was interesting
bers of this community learn and all resources and
and were confident that the certificate would lend
tools must be designed to gather the most accurate
them legitimacy in the job market. Further to this,
information in order to help formalize this sector.
they believed that having the certificate increased
the likelihood of obtaining and job and that showing It is important to recognise the importance these
it to potential employers was likely to help them gain workers place on their independence and to find
a higher salary. The tracer study will show if these ways to create/support a more formal employment
assumptions on the part of the worker are borne out environment while retaining their personal freedom.
in the market. It is unlikely that large organisations will be employ-
ing these individual and therefore most will continue
In order for RPL assessment to help the domestic
working as free agents. Therefore, RPL assessment
workforce it is essential the at an SSC for Domestic
will be the main way in which we are able to map the
Workers begins the process of mapping the NOSs
current skill levels and the data gathered will inform
so that training programmes and RPL assessment
the design of future training programmes. Going
tools can be developed in line with these standards.
forward, up skilling or training programmes aimed
It is imperative that the NOSs reflect the current
at improving their negotiating skills, life skills and
market environment and that access is given to
increasing their level of engagement and account-
both live-in and live-out workers. Specific NOS must
ability will be important. Teaching them to take care
be developed for live in and live out candidates.
of themselves, their families and their finances will
Gathering evidence of prior learning was a major ensure they remain productive members of society.
challenge and yet it forms an essential part of the
Physical resources are essential to carry out RPL
RPL process. The assessment process was able to
assessment and subsequent up skilling. Central and
go some distance to gathering the information but
State government can help by identifying unused in-
the lack of other support evidence in the form of
frastructure that can be turned into support centres
employer feedback or past work certificates proved
offering RPL assessment, training and education in
impossible to obtain. Employers were uninterested
each community. Developing simple technology-
in helping the workers and unwilling to take the time
based solutions for RPL assessment and training
to fill in the feedback form even though the ques-
will ensure inclusion across the country.
tions asked were very basic. Finding ways to obtain
additional evidence would increase the credibility of The professional development of freelance of train-
the RPL assessment process. ers and assessors and their inclusion on a national
database is essential to ensure consistent and high
A nation-wide awareness campaign is required to
quality delivery. The role of these individuals’ needs
legitimize the domestic work force and, as men-
to be mapped and standards to be created. Spe-
tioned above, to increase employer engagement. As
cializations, such as working with the semi-literate
there are no major industrial players in this segment
need to be identified and modules for training to be
a method for reaching individual employers must be
designed.
devised. Technology could play a part in this goal

125
2. Key Challenges Lack of time to properly train mobilisers : the
training course was only 4 hours long and was not
really sufficient to help the mobilisers understand
Mobilisation (and therefore be able to communicate) the impor-
tance of the assessment process.
Key Challenges Faced
Participants did not possess identification: (par-
Reaching potential participants: In RPL assess-
ticularly true of migrant live-in workers). This made
ments where there is a recognised industry and
documentation difficult and there were concerns
specific industry bodies, reaching the participants
about the integrity of the data as there was no way
is relatively straightforward. Participants can be
to verify the individuals undergoing the assessment.
accessed by meeting them at their place of work.
However, given the nature of the domestic workers Everyone wanted to participate: Although it is a
industry, where the workplace is individual homes good sign, the challenge was that informal workers
the task was much harder as the potential partici- of all types wanted to be assessed so as to obtain
pant base was widely spread across various com- the certificate. This created some issues with crowd
munities. Added to this was the fact that employ- control.
ers were reluctant to give their workers time off to
Recommendations
attend the assessment centres. In some cases, a
door to door approach was required to gain trust Permanent community/support centres: These
and identify workers for the pilot. NGO’s and com- could be set up (in partnership with NGOs already
munity groups were central and extremely helpful working in the area) in the colonies where there are
yet ultimately the success of the mobilisation pro- large numbers of domestic workers. These centres
cess came down to individuals deciding to take part could double as assessment centres, training cen-
and finding a way to attend the sessions. tres and advocacy centres and would help to ac-
cess large numbers thereby eliminating the need to
Gaining trust in the communities: Many of these
go door to door. It is essential that the assessment
domestic workers and communities suffer from
centres are very local as participants do not have
overexposure from black market agents as well as
time to travel far to gain certification. Permanent as-
well-meaning NGO’s. We found the potential par-
sessment centres would help lend credibility to the
ticipants skeptical and wary and it took time to gain
process and go some distance to increasing trust
their trust even when working with the team from
in the community. The mobilisers and assessors
the Domestic Workers Union.
would also have a base to work from which would
Time required to register, counsel and assess help improve their skills through peer to peer learn-
was significant. As workers could not get away ing as well as help them feel that the role has dignity
from the jobs for very long, the project board de- by having a office-type base to work from.
cided to register, assess and provide life skills work-
Allocate time and resources: It is normal for a pilot
shop in one session
to be short of both. However, in future RPL assess-
Participants were only available on Sundays: ment programmes it will be important to lay careful
Sometimes they could not attend at all due to em- groundwork on which to build the systems required
ployer demands for a complete RPL process. Considerable time is
Accessing appropriate mobilisers: Finding com- needed to build teams that are able to mobilise,
mitted and responsible mobilisers who would work counsel and assess consistently and to build com-
with the project consistently was a real challenge. munity awareness. Once RPL assessment becomes
The work of mobilising in this industry is not consid- a permanent part of the skill ecosystem it would be
ered dignified and the working conditions are chal- sensible to ensure due time is given to build teams,
lenging as they necessarily need to operate in low systems and processes. Building a solid base will
income communities. This time of year the heat and ensure the assessment process actually serves the
access to water proved a particular challenge. Ide- purpose for which it is intended and the inclination
ally individuals from the same communities would to simply chase the numbers must be avoided. The
be used as mobilisers but there was too little time to quality of the assessment is central to ensure the
develop a sufficient number of these individuals who process really leads to the inclusion of the informal
could commit to the entire project worker into the organized workforce.

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126 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 Extensive Awareness Campaign: An extensive in most of the communities. The cost of putting in-
city-wide awareness campaign needs to be mount- frastructure in place was prohibitive.
ed to educate workers and employers. Success
stories from workers achieving the certification and Recommendations
explaining the subsequent benefits would be most Create permanent community centres: These
effective here. centres, located in communities with a large num-
Incentives: These would help increase the number ber of domestic workers, could be used for RPL
of participants attending the session and could be assessment, training and up skilling, advocacy and
in the form of a meal, reimbursement of transport empowerment of the local community. Funded by
costs or loss of income support, up skilling. Central or State Government, these centres could
be administered in partnership with NGOs already
Immediate Assessment: Is it essential that as-
operating effectively in the area and could double
sessment takes place with two days of mobilisation
as migrant support units (funded by State Govt
given the mobility of the workforce. The consortium
possibly?). Basic infrastructure could be provided
found that workers would not return on the second
and each activity given a locked space to hold
day early on in the pilot which forced the decision to
equipment. An outdoor area could be created to
register, counsel, assess and train all in one day.
hold families and children and medical and welfare
Mobilise for multiple job roles: There were chal- camps held on a monthly basis
lenges in separating the general (level1) domestic
worker from others with more specialized experi-
ence. Everyone wanted a certificate even if it was
NOS & Assessment Tools
not for a job they were currently doing. Therefore, it
Key Challenges Faced
would be more efficient to run several RPL assess-
ments for multiple job roles from the same centre to Lack of SSC: The lack of an SSC for Domestic
avoid workers from other segments attending the Workers meant that NOS had to be drawn up spe-
assessments just to receive the certificate. cifically for this project. The project board’s market
experience informed the process but testing out
the RPL assessment on new and untried NOS was
Assessment Centre
not ideal. At the outset of the pilot it was widely felt
by the project board that the assessment was too
Key Challenges Faced
basic and did not draw enough of a distinction be-
Finding a centre easily accessible to the commu- tween a completely unskilled worker and a worker
nity: Given the participants paucity of time the as- at Level 1.
sessment centre needed to be near to their homes
Constraint of time and resources to create the
and places of employment. Participants would not
tools: Original, sector-specific images would have
travel beyond 1-2 km to attend the sessions.
enhanced the effectiveness of the assessment tool
Safety of the project team and equipment in the but there was neither time nor funding within this
premises: There were concerns that women work- pilot to do this.
ing on the pilot could not be left alone on in the as-
Process was labour intensive: Total time required
sessment centre and locking up the equipment was
per participant was 5 hours not including mobili-
essential and represented a challenge as the cen-
sation. Registration/counseling - 2 hours: Assess-
tres used did not have locked cupboards.
ment - 1 Hour and Life Skills Workshop – 2 hours.
Size and composition of the centre: Finding the Time also dictated how the assessment tool was
right amount of space was a problem. Minimum designed and utilized. Given the time frame the tools
space requirement was 300cm2. Time constraints were designed to be 80% visual/written (keeping in
meant that there were 25 participants per assess- mind the very low level of literacy) and 20% practi-
ment group. Participants usually brought their chil- cal demonstration. It was agreed by the consortium
dren and their families so space was used up by that this was the only way to get people through the
non-participants. process in a few short months. In this sector a more
Lack of basic infrastructure and costs associ- hands on assessment would be optimal therefore
ated: Lighting, water, fans, electricity were sporadic these numbers should be reversed but this would
make scale impossible. Added to the challenges of

127
 assessing practical skills the participants lack of ex- assessors were coming and going throughout the
perience with formal learning & assessing environ- exercise which may have compromised the integrity
ments meant that it took more time than expected of the process
and required the assessors to be particularly sen- Role of the assessor is not aspirational: The role
sitive to the participants which translated into ex- of an RPL assessor is currently not aspirational so
tended training for the assessors. Participants were motivating the assessors to adhere to the process
skeptical and anxious when they first arrived at the and to be consistent was difficult.
Centre and time was required to put them at ease.
Working Conditions: The working environment of
Prior to using the assessment tool, the assessors
the assessment centre with its lack of infrastructure
had to explain all aspects very carefully and were
was a challenge. Safety was a concern and acces-
required to demonstration even how to mark “Xs”
sibility of the centre sometimes challenging. The
on a page.
environment did not help when recruiting assessors
Recommendations and often acted as a deterrent to finding the right
candidates for the job.
Creation of standardised NOS : These will ur-
gently need to be created by the SSC in order to Training Programme too short: The assessors un-
have an effective RPL assessment process and it is derwent a 4 hour training session but it was felt that
crucial that they reflect the job roles as they exist in at least 8 hours of training was required to help the
the market today. The NOS will also need to be ge- assessor gain sufficient understanding of the sec-
neric enough to be utilized across the country and in tor and sensitize them to work within the domestic
both tier 1 & 2 cities. Once the NOS are approved, community.
an assessment tool for each will need to be cre-
Recommendations
ated. The NOS used by the pilot could be adapted
and elaborated and separate NOS and assessment Job Role Development: Ideally the assessor and
tools created for live-in and live out domestic work- skills trainer job roles are fully developed and be-
ers. Competencies around the use of some basic come aspirational. In order for these jobs to be
household equipment would need to be included in considered important and aspirational a career path
the NOS going forward. It will be key for the SSC to needs to be drafted out. The roles could be inter-
focus on the need for visual and practical tools given changeable between skill training and assessing and
the low levels of education and literacy so prevalent training modules need to be created for each spe-
in this sector cific role. Where possible outstanding candidates
from the community being assessed should be put
Basic & simple Technology: Through the use of
into a longer term training programme to become
video images and software specially created for the
trainers and assessors. Evidence suggests that
sector a larger segment of the workforce could be
when trainers originate from the sector and commu-
more easily accessed. By using simple software
nity they emerge as leaders and give participants a
and taking some time to teach participants how to
view of what can be achieved with commitment and
use a computer mouse, objective and standardised
hard work. If the tools used are appropriate, they
assessments could take place faster and for many
can become manage the assessment correctly their
more participants per day. Create one assessment
understanding of the community allows them to ac-
tool that can be used and adapted across the coun-
curately gather data and assess skill sets.
try.
Database of experienced RPL Assessors: A
Assessors centrally held database of certified RPL assessors
and skills trainer would help SSC and organisations
Key Challenges Faced source skilled individuals that match their require-
ments and allow for trainer/assessor mobility.
Freelancers: Free-lance assessors were used in the
pilot. They were graduates who had worked in the Assessor Training Time Increased: At least 8
industry. Although they approached the project in hours of training is required as stated above. The
the right spirit, their lack of exposure to the informal time required will vary from community to commu-
workforce was a challenge. Because the assessors nity and depend on the level of formal training or
were free-lance there was a lack of continuity and education the community has previously received.

FROM CONCEPTS TO IMPLEMENTATION

128 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
FURTHER READING
European Commission, Cedefop and ICF International. 2014a. European inventory on validation of non-formal and informal
learning: 2014 update. www.cedefop.europa.eu/en/events-and-projects/projects/validation-nonformal-and-informal-learning/
european-inventory (Accessed 16 April 2015.)
European Union. 2012. Council recommendation on the validation of non-formal and informal learning. Official Journal of the Eu-
ropean Union, C 398/1. http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=OJ:C:2012:39 8:0001:0005:EN:PDF (Accessed
16 April 2015.)
Rubenson, K. 2001. Lifelong learning for all: challenges and limitations of public policy. Proceedings of the Swedish Ministry of
Education and Science European Conference, Adult Lifelong Learning in a Europe of Knowledge, March, pp. 23–5.
SAQA. 2012. Government notice. no. 802, Policy and criteria for the recognition of prior learning. Pretoria, SAQA.
Singh, M. Forthcoming. Global Perspectives on Recognising Non-formal and Informal Learning: Why Recognition Matters. Dor-
drecht, Netherlands, Springer Open.

Singh, M. and Duvekot, R. 2013. Linking Recognition Practices to National Qualifications Frameworks: International Benchmark-
ing of Experiences and Strategies on the Recognition, Validation And Accreditation (RVA) of NonFormal and Informal Learning.
Hamburg, Germany, UIL and Inholland University of Applied Sciences.
UNESCO Institute for Lifelong Learning (UIL). 2012. UNESCO Guidelines for the Recognition, Validation and Accreditation of the
Outcomes of Non-formal and Informal Learning. http://unesdoc.unesco.org/images/0021/002163/216360e.pdf (Accessed 16
April 2015.)

129
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130 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
Acronyms

AICTE All India Council for Technical Education

CATS Credit Accumulation and Transfer Scheme
CEDEFOP Centre European de Development de la Formation Professionnelle
CNCP Commission Nationale de Certification Professionnelle
CoP Community of Practice
CPD Continuous Professional Development
CQF Credit and Qualification Framework
CQP Certificat de Qualification Professionnelle
CS Credit system
CSTARI Center staff training and research institute
CVET Continuing Vocational Education and Training
DACUM Developing a Curriculum
DEQA, Deutsche Referenzstelle für Qualitätsicherung in Beruflichen Bildung
DEQA-VET German Reference Point for Quality Assurance in VET
DQR German (Deutsche) Qualification Register
ECVET European Credit System for Vocational Education and Training
ECTS European Credit and Transfer System
ECVET European Credit System for Vocational Education and Training
EHEA European Higher Education Area
EQARF European Quality Assurance Reference Framework
EQAVET European Quality Assurance in Vocational Education and Training
EQF European Qualification Framework
EQF AG European Qualification Framework Advisory Group
ESCO European Skills/Competences, Qualifications and Occupations
ET Education and Training
ETF European Training Foundation
EU European Union
GCC Gulf Cooperation Council
HE Higher Education
ISO International Organisation for Standardisation
IVET Initial Vocational Education and Training

131
KSC Knowledge Skill Competence
LLL Lifelong Learning
MS Member States
NARIC National Academic Recognition Information Centre
NCVT National Council for Vocational Training
NGO Non Governmental Organisation
NSDA National Skills Development Agency
NOS National Occupational Standards
NCP National Coordination Point
NQAI National Qualification Authorities of Ireland
NQF National Qualifications Framework
NQR National Qualification Register
NSDA National Skills Development Agency
NSQF National Skills Qualifications Framework
NVQ National Vocational Qualifications
NZ New Zealand
NZQA New Zealand Qualification Agency
OfQUAL Office of Qualifications and Examination Regulations
OMC Open Method of Coordination
OS Occupational Standards
PQF Pacific Qualification Framework
QA Quality Assurance
QCF Qualification and credit framework
QP Qualification Pack
QQI Quality and Qualifications of Ireland
QF Qualification Framework
RNCP Registre National des Certifications Professionnelles
RTO Registered Training Organisations
SSC Sector Skills Council
TP Training Providers
SADC South African Development Community
SAQA South African Qualification Agency
SCQF Scottish Credit Qualification Framework
TQFSSC Transnational Qualification Framework for the Small States of the Commonwealth
TVET Technical Vocational Education and Training
UGC University Grants Commission

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132 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS
 FROM CONCEPTS TO IMPLEMENTATION
134 A HANDBOOK FOR NATIONAL QUALIFICATIONS FRAMEWORKS DEVELOPERS