INFORM - Issue 13 - National qualifications frameworks: contributing to better qualifications
What value do national qualifications add? An NQF has no value without qualifications inside it. The ETF believes that NQFs should lead to better qualifications that are more relevant to the labour market and flexible enough for holders to progress between qualifications or combine them from different fields. Developing and implementing an NQF requires both technical and social/ institutional processes. NQFs introduce a common language – of levels, outcomes, credits, award types and so on – among stakeholders, in particular employers, sectoral representatives and the education world (ministries, qualifications authorities, schools etc.). This leads to a shared understanding and acceptance of concepts and implementation, policies and strategies. The most important of these is the use of learning outcomes for level descriptors in the framework and the definition of individual qualifications in the different NQF levels. Level descriptors are usually generic, while those for individual qualifications are more specific.
Outcomes tell us what is inside the qualification enhancing comprehension and transparency. This creates the basis of trust essential for the recognition and acceptance of individual qualifications. In an NQF, the levels typically share a common set of descriptors of the knowledge, skills and competences to be acquired by the learner. The same descriptors are used across general education, academic education, VET and adult learning qualifications, underscoring the relationship between them and allowing individuals, employers, qualifications authorities and training providers to compare and link qualifications offered by different institutions. In this way, NQFs help to illustrate potential learning pathways, enabling learners to choose and transfer between different types of qualifications at the same level (for example, between general, vocational and academic qualifications). They can also enable learners to progress to higher-level qualifications in the same field. Thus, NQFs can be a tool to help people manage their own careers.
In most ETF partner countries, a qualification has traditionally been obtainable only by taking a formal training course. But now countries are using NQFs to develop systems to validate non-formal and informal learning, usually for the first time. NQFs apply the same assessment standards to obtaining a qualification, no matter how the learner acquired the knowledge and skills necessary to achieve it. So NQFs can support recognition of skills acquired informally and give a boost to learning beyond formal education, particularly for adults.
NQFs are therefore lifelong learning instruments, linking general education, higher education and VET, defining learning pathways for individuals and encompassing systems and procedures to recognise skills acquired lifewide. Frameworks are also usually associated with quality assurance arrangements. To be included in an NQF and associated qualifications registers, qualifications must be validated against criteria and providers often have to be accredited to award the qualification. Assessments also have to be quality assured, or verified. In many ETF partner countries these are wholly new requirements, which should increase employer trust in qualifications.
In most cases, NQFs are established by laws before real implementation begins. Where ministries lead, the ETF observes two general approaches. One is driven by a labour ministry with an employability agenda, involving sectors and social partners and focussing on occupational standards. The second is led by an education ministry or higher education community and focuses on education standards. Ministries traditionally dominate education and training policy and in most ETF partner countries, social partner engagement in education and training is weak. But NQFs can provide a platform for social dialogue. They are usually developed by a range of actors, including ministries, employers, trades unions, education authorities, VET agencies and individual experts all working collaboratively on the framework, occupational standards and qualifications, thus supporting labour market relevance. Indeed, in some cases, notably Russia and Ukraine, employers have initiated the NQF process and in Turkey sectors play a strong role in developing and awarding vocational qualifications.
This wider stakeholder engagement is beginning to influence the design and content of curricula and qualifications. Traditionally ETF partner countries have used subject- or input-based curricula, but increasingly they are developing occupational standards to make vocational qualifications more relevant. Occupational standards – themselves a type of learning outcome – are normally developed by sectors or professional bodies and involve experts who practice the occupation. Basing qualifications on occupational standards and labour market demand, and linking them to higher-level qualifications and allowing for progression, raises their “market value”. Developing an NQF also deepens institutional capacity, especially in transition or developing countries. Some states establish new bodies such as qualifications authorities to design, construct and coordinate the framework. Others are starting to build different forms of sectoral organisations, while new quality assurance bodies are also emerging. The added value of NQFs is therefore in driving greater quality in qualifications and qualifications systems.