GUIDE FOR THE DEVELOPMENT OF NATIONAL AND SECTORAL QUALIFICATIONS FRAMEWORKS IN THE COUNTRIES

Transcription

1 GUIDE FOR THE DEVELOPMENT OF NATIONAL AND SECTORAL QUALIFICATIONS FRAMEWORKS IN THE COUNTRIES EQF-SPREAD Proposals for the implementation and development of the Sectoral and National Qualifications Frameworks LLP-1-ES-KAI-KAI1EQF

2 INDEX 1. INTRODUCTION AIMS AND CONTENTS OF THE GUIDE SOCIOLABORAL AND POLITICAL CONTEXT OF THE GUIDE EUROPEAN TOOLS FOR QUALIFICATIONS SOCIO-LABOUR SITUATION IN EUROPE GENERAL OVERVIEW SITUATION ON KEY MARKETS KEY OCCUPATIONS BY COUNTRY SUMMARY AND CONCLUSIONS EQF, PRINCIPLES AND CRITERIA FOR REFERENCING EUROPEAN QUALIFICATION FRAMEWORK CRITERIA FOR THE REFERENCING PROCESS MAIN ELEMENTS IN THE PROCESS OF REFERENCING: MALTA AND UK CASES SUMMARY AND CONCLUSIONS THE DEVELOPMENT OF NQFS IN THE PARTNER COUNTRIES SITUATION IN THE PARTICIPANT COUNTRIES CONCLUSION REFERENCING TO THE EQF MALTA MALTA QUALIFICATIONS FRAMEWORK QUALIFICATIONS FRAMEWORKS IDENTIFY SKILLS NEEDS DESCRIPTION OF LEARNING OUTCOMES: KNOWLEDGE, SKILLS AND COMPETENCES SETTING COMMON STANDARDS THROUGH LEVEL DESCRIPTORS THE CREDIT SYSTEM TO VALIDATE ALL LEARNING SUMMARY AND CONCLUSIONS REFERENCING TO THE EQF UNITED KINGDOM (QCF) THE EUROPEAN QUALIFICATIONS FRAMEWORK AND THE QCF THE QUALIFICATIONS AND CREDIT FRAMEWORK CREDIT AND LEVEL DESIGN SPECIFICATIONS OF QCF UNITS ANTICIPATED BENEFITS OF THE QCF EQF-SPREAD. METHODOLOGY FOR REFERENCING METHODOLOGICAL REFERENCES SELECTION OF THE KEY OCCUPATIONS CRITERIA FOR THE CLASSIFICATION OF LEARNING OUTCOMES PRODUCTS OF EQF-SPREAD CONSIDERATIONS ON THE EQF-SPREAD METHODOLOGY SUMMARY AND CONCLUSION CONCLUSIONS CONTEXT OF THE PROJECT MOST VULNERABLE GROUPS IN THE LABOUR MARKET QUALIFICATIONS MISMATCHES BENEFITS FOR WORKERS AND COMPANIES BENEFITS FOR STAKEHOLDERS INVOLVED IN VET AND EMPLOYMENT PROCESSES NATIONALS QUALIFICATION FRAMEWORK AND LEARNING OUTCOMES ADVANTAGES OF EQF-SPREAD METHODOLOGY CHALLENGES FOR THE FUTURE BIBLIOGRAPHY AND DOCUMENTATION GLOSARY OF TERMS ANNEX 1. COMPARATIVE ANALYSIS OF NQF DEVELOPMENT IN PARTNER COUNTRIES ANNEX 2. EUROPEAN QUALIFICATION FRAMEWORK: DESCRIPTORS TABLE 82 ANNEX 3. CURRICULUM VITAE MODEL... 84

3 1. INTRODUCTION EQF-Spread Project is an initiative promoted by the Training and Social Studies Institute-IFES (Spain) in the Lifelong Learning Programme of the European Commission, project number LLP ES-KA1-KA1EQF, for period 2010 to EQF-Spread is being developed in Bulgaria, Spain, Holland, Italy, Malta, Poland and the United Kingdom with the participation of the following organizations: Europroject (Bulgaria), IFES (Spain), De Plannenmakers (Holland), CERES (Italy), Malta Qualifications Council (Malta), Procesy Inwestycyjne Sp. z o.o. (Poland) and Konrad Associates International (United Kingdom). The project has the support of technicians and experts in education and VET and qualifications from public administrations, training centres, consultants, companies, business organisations, trade unions and universities in each of the participating countries. The collaboration of these organisations is focused on providing information, receiving reports and obtaining validation of the results Aims and contents of the guide According to the above description, the general aim of EQF-Spread is to propose, from the point of view of the labour market represented by public administrations, social partners, training centres and companies- a specific methodology and a tool-set for the implementation and development of the EQF in national and sectoral qualifications frameworks [NQF and SQF]. One of the specific aims of the EQF-Spread project is to develop a guide for the development of NQF and SQF in the participating countries, taking into consideration the context of the European strategy for 2020 (ET ), the situation of the occupations in the labour market, the instruments for the development of professional qualifications (EQF, ECVET, EUROPASS) and the status of national frameworks qualifications from different countries. The present guide is named GUIDE FOR THE DEVELOPMENT OF NATIONAL AND SECTORAL QUALIFICATIONS FRAMEWORKS IN THE COUNTRIES and is addressed to stakeholders (public administrations, social partners, training centres and companies) involved in the development of the labour market and lifelong learning programs in Europe. The contents that you can find in this guide are the following: Socio-labour situation in Europe. Comparative analysis about the sociolaboral situation (national reports) and description of the most important occupations in this context (inventory of occupations). EQF: Principles and criteria for referencing. To identify the principles of EQF and 10 criteria for the referencing process of NQF and SQF to EQF. 1 European Commission. Europe

4 NQF Situation in the countries. Comparative analysis of the different qualifications frameworks in participant countries (national reports, CEDEFOP). Referencing to the EQF Malta: Malta Qualification Framework. Setting Common standards through level descriptors: learning outcomes. Referencing to the EQF UK: Considering the Qualification and Credit Framework for England, Wales and Northern Ireland [QCF]: the referencing process. Levels, Sectors, Credits.. EQF-Spread. Methodology for referencing. Identification of the proposed methodology for description of qualifications in EQF-Spread and comparison with the best-fit practices in MQC (Malta) and QCF (UK) cases. Conclusions. Principal advantages of referencing national and sectoral qualifications to EQF 1.2. Sociolaboral and political context of the guide The European Commission recognizes that, as consequence of the global economic crisis, the last two years have left millions unemployed. It has brought a burden of debt that will last for many years. It has brought new pressures on our social cohesion. It has also exposed some fundamental truths about the challenges that the European economy faces. And in the meantime, the global economy is moving forward. How Europe responds will determine our future. Europe 2020)] In the same way, the OECD s latest Economic Outlook 2 concluded the global recovery is firmly under way, but is taking place at different speeds across countries and regions. Historically, high unemployment remains among the most pressing legacies of the crisis. It should prompt countries to improve labour market policies that boost job creation and prevent today s high joblessness from becoming permanent. World gross domestic product (GDP) is projected to increase by 4.2% this year and by 4.6% in Across OECD countries GDP is projected to rise by 2.3% this year and by 2.8% in 2012, in line with the previous forecasts of November This is a delicate moment for the global economy, and the crisis is not over until our economies are creating enough jobs again, said OECD Secretary-General Angel Gurría. There is also some concern that if downside risks reinforce each other, their cumulative impact could weaken the recovery significantly, possibly triggering stagflation in some advanced economies. The most important challenge facing countries continues to be dealing with widespread unemployment, which affects more than 50 million people in the OECD area. Governments must ensure that employment services and training programmes actually match the unemployed to jobs. They should also rebalance employment protection towards temporary workers; consider reducing taxes on labour via targeted subsidies for low paid jobs; and promote work-sharing arrangements that can minimise employment losses during downturns. 2 OECD (2011): Global recovery firmly underway but surrounded by risks, says OECD Economic Outlook. 4

5 On the other hand, according to the statistics from the EU, the situation of employment by sector shows us the following situation: - In the European Union, employment dropped by about 5.3 million people (- 2.4%) between 2008 and The decrease was higher in (-3.9 million) than in (-1.4 million). - The crisis has particularly affected manufacturing sector employment (down 3.9 million, or 10.4%) and construction (about 2 million fewer employed, or a 10.7% drop). The trade sector lost about 1 million employed and the transport and storage sector an additional half a million (3.4% and 4.7% decreases respectively). Nevertheless, those sectors still account for large shares of overall European employment. - Slight negative trends have also been registered in other sectors such as public administration, primary sector, information and communication, finance and insurance or other service activities. In these sectors, employment dropped by between -0.9% and-2.2% corresponding to smaller absolute decreases (ranging from 70,000 to 130,000 jobs). - Despite the crisis, employment in activities related to human health and social work increased by about 1 million or 4.5%. The education sector also added 500,000 jobs, a 3.1% increase. - Other sectors also resisted the crisis. They include administration and support, professional, scientific and technical activities, accommodation and food services and electricity, gas, steam, and air conditioning supply, which all registered employment growth of between 100,000 and 300,000. Employment remained stable in arts and entertainment, household activities, real estate as well as water supply; sewerage, waste management and remediation. 5

6 About the qualifications in Europe, the strategy Europe pointed out that About 80 million people have low or basic skills, but lifelong learning benefits mostly the more educated. By 2020, 16 million more jobs will require high qualifications, while the demand for low skills will drop by 12 million jobs. Achieving longer working lives will also require the possibility to acquire and develop new skills throughout the lifetime. Another important problem is the mismatches between the qualifications of the labour force and the labour market. Following the report titled the Skill matching challenge we can observe that skill mismatch is a complex phenomenon affecting citizens, enterprises, economies and societies. It refers not only to skill gaps and shortages, but also to skills exceeding job requirements. Shortages in some sectors may occur simultaneously with over education in others. When skill mismatch takes time to resolve it imposes real costs on individuals, enterprises and societies (Cedefop, ). In the preface of the document EUROPE 2020 A strategy for smart, sustainable and inclusive growth (ET 2020), the European Commission states that to achieve a sustainable future, we must already look beyond the short term. Europe needs to get back on track. Then it must stay on track. That is the purpose of Europe In this way, the EU needs to define where it wants to be by To this end, the Commission proposes the following EU headline targets: 75 % of the population aged should be employed. 3% of the EU's GDP should be invested in R&D. The "20/20/20" climate/energy targets should be met (including an increase to 30% of emissions reduction if the conditions are right). The share of early school leavers should be under 10% and at least 40% of the younger generation should have a tertiary degree. 20 million fewer people should be at risk of poverty. The ET 2020 strategy recognised that Europe must act in three areas: Employment: Due to demographic change, our workforce is about to shrink. Only two-thirds of our working age population is currently employed, compared to over 70% in the US and Japan. The employment rate of women and older workers are particularly low. Young people have been severely hit by the crisis, with an unemployment rate over 21%. Skills: About 80 million people have low or basic skills, but lifelong learning benefits mostly the more educated. By 2020, 16 million more jobs will require high qualifications, while the demand for low skills will drop by 12 million jobs. Achieving longer working lives will also require the possibility to acquire and develop new skills throughout the lifetime. Fighting poverty: 80 million people were at risk of poverty prior to the crisis. 19 million of them are children. 8 per cent of people in work do not earn enough to rise above the poverty threshold. Unemployed people are particularly exposed to poverty. 3 EUROPEAN COMMISION (2010): COMMUNICATION FROM THE COMMISSION EUROPE A strategy for smart, sustainable and inclusive growth. 4 CEDEFOP (2010) The skill matching challenge Analysing skill mismatch and policy implications. 6

7 1.3. European tools for qualifications The Copenhagen Declaration (2002) sets the priorities on enhanced European cooperation in vocational education and training (VET). This process aims to improve the performance, quality and attractiveness of VET in Europe. It seeks to encourage the use of the various vocational training opportunities within the lifelong learning (LLL) context and with the help of the LLL tools. Afterwards, the Helsinki Communiqué evaluates the Copenhagen process, as well as reviews its priorities and strategies. Since the adoption of the Maastricht Communiqué, progress has been achieved on the common European frameworks and tools for VET. The EUROPASS single framework for the transparency of qualifications and competencies was adopted and work is underway on the European Qualifications Framework, the European Credit System for VET (ECVET) and the European Quality Assurance Reference Framework for VET. The European Qualifications Framework for lifelong learning (EQF) provides a common reference framework, which assists in comparing the national qualifications systems, frameworks and their levels. It serves as a translation device to make qualifications more readable and understandable across different countries and systems in Europe, and thus promote lifelong and life-wide learning, and the mobility of European citizens whether for studying or working abroad. In order to make the EQF work, European countries participating in "Education and Training 2020" are invited to relate their national qualifications levels to the appropriate levels of the EQF and to indicate in all new qualification certificates, diplomas and Europass documents the relevant EQF level. Member States are called upon to create links between the national qualifications systems and the European Qualifications Framework (EQF). By making competencies and qualifications more transparent, the European Qualifications Framework (EQF) is an instrument for the promotion of lifelong learning. This Framework covers both higher education and vocational education and training. It will make it easier for individuals in the EU to communicate the relevant information concerning their competencies and their qualifications. Increasing the transparency of qualifications will enable individual citizens to judge the relative value of qualifications and improve employers ability to judge the profile, content and relevance of the qualifications in the labour market. Education and training providers will also be able to compare the profile and content of their courses and ensure their quality. The adoption of the EQF will increase the mobility of workers and students. The EQF will allow workers to be mobile and at the same time to have their qualifications recognised outside their own country. This tool will facilitate the transition from work to training and vice versa, on a lifelong basis. Operation and implementation. the EQF is a tool based on learning outcomes rather than on the duration of studies. The main reference level descriptors are: Skills, competences; knowledge. 7

8 The core element of the EQF is a set of eight reference levels (see annex 2) describing: what the learner knows; what the learner understands and what the learner is able to do, regardless of the system under which a particular qualification was awarded. Unlike systems which guarantee academic recognition based on the duration of studies, the EQF covers learning as a whole, in particular learning which takes place outside formal education and training institutions. Agreed upon by the European institutions in 2008, the EQF is being put in practice across Europe. It encourages countries to relate their national qualifications systems to the EQF so that all new qualifications issued from 2012 carry a reference to an appropriate EQF level. An EQF national coordination point has been designated for this purpose in each country. 5 Common Principles for Quality Assurance in Higher Education and Vocational Education and Training in the context of the European Qualifications Framework When implementing the European Qualifications Framework, quality assurance which is necessary to ensure accountability and the improvement of higher education and vocational education and training should be carried out in accordance with the established principles 6. Other European instruments for qualification are European Credit system ECVET and Europass. The European Credit system for Vocational Education and Training (ECVET) 7 aims to give people greater control over their individual learning experiences and make it more attractive to move between different countries and different learning environments. The system aims to facilitate the validation, recognition and accumulation of workrelated skills and knowledge acquired during a stay in another country or in different situations. It should ensure that these experiences contribute to vocational qualifications. ECVET aims for better compatibility between the different vocational education and training (VET) systems in place across Europe and their qualifications. By 2012, a technical framework is planned that will describe qualifications in terms of units, and learning outcomes, and it includes assessment, transfer, accumulation and recognition procedures. Each of the units is associated with a certain number of ECVET points developed on the basis of common standards: 60 ECVET points are allocated to the units and the European Commission (2009). 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 (EQAVET). 7 European Commission The European Credit system for Vocational Education and Training (ECVET) 8

9 associated learning outcomes achieved in a year of full-time VET or its part-time equivalent. Europass 8 Europass consists of five documents that help potential employers; educational establishments and training providers understand which subjects have been studied, what training has been completed or how much experience has been gained working. It also records non-formal learning and language skills. Europass helps individuals highlight their abilities in an effective way. It promotes the mobility of individuals throughout Europe by removing barriers to working, studying or training in Europe. It is free and enables people to present their competences, skills and qualifications in a clear way. The recent Europass+ has identified the strengths and weaknesses of the existing EUROPASS approach and provides an evidence-based approach to its use in different member states SOCIO-LABOUR SITUATION IN EUROPE 2.1. General overview The European market is currently recovering from the global financial crisis that arose in 2008, which was the single most severe recession to affect global economies since World War II. This crisis wiped out much of the economic growth achieved over the preceding decade the GDP of the EU dropped by 4.2% in 2009, industrial production levels were significantly reduced, and unemployment increased by 1.8% (meaning, in practical terms, that approx. 23 million people have lost their jobs since the beginning of the recession in 2008). Although extensive, the situation on the EU labour market has been better than that on other global markets. This appears to be a result of the specific approaches adopted by the EU member states to address rising unemployment. These place a strong focus on mitigation by means of increasing employment flexibility (for example, through cutting working hours or introducing temporary sabbatical schemes, rather than cutting the number of jobs), as well as by reducing salaries in return for employment stability. This appears to have prevented, or at least delayed, significant employment market upheaval across the majority of the EU member states. In spite of the adoption of these measures, however, it is clear that EU labour markets are currently not as robust as they were prior to the recession. The picture in this respect varies between the various EU countries. As mentioned above, certain economies have taken a much stronger blow than others, which has had a clear impact on employment and in particular long-term unemployment rates. Thus, although the general trend is moderately optimistic, there appear to still be areas where the situation is grave. In particular, males, young people, the young, migrants, the low-skilled and those employed on a short-term basis have been most affected by the economic downturn and the rise in unemployment. It is therefore clear that the employment groups that are traditionally the most disadvantaged have been affected to the greatest degree, which 8 EUROPASS: Opening doors to learning and working in Europe 9 See 9

10 highlights the need (which is especially strong in light of the current global economic situation) to address the problem of segmentation of labour markets. The most recent data shows that the EU is slowly starting to emerge from the economic crisis, although there are still significant concerns in respect of certain markets (for example, those of Ireland, Greece, Spain and Italy), which appear to be struggling with significant financial indebtedness. However, despite the crisis, employment in certain sectors appears to be stable or even improving: for example, between employment in activities related to human health and social work increased by about 1 million, or 4.5%. The number of jobs in the education sector also increased by approx. 500,000 (a 3.1% increase). Other sectors also fared well in spite of the crisis. These include the administration and support, professional, scientific and technical activities, accommodation and food services sectors, which noted a growth in employment. Meanwhile, employment levels in the entertainment and real estate sectors remained stable throughout the crisis period. It also appears that the situation in employment markets is gradually improving, with employers becoming more positive about employment prospects and more open about hiring new workers. However, economic forecasts suggest that it may take some time yet before the tentative upswing in economic activity that we are currently experiencing triggers a robust reaction in the labour market Situation on key markets Poland is one of the least professionally active nations in the European Union. The level of economic activity of people in the age range oscillates around 60%, whilst the level of employment is only slightly greater than 55% (as compared to the EU averages of approx. 70%, in both cases). The number of people in permanent employment in Poland is 13,853 thousand. Of these employees, 75.5% are employed on the basis of a formal employment contract. In 2009, 1,823 thousand individuals remained unemployed in Poland, including thousand men and thousand women. The unemployment rate was 11.9%. A particularly alarming emerging trend is the rate of unemployment amongst university graduates, 20% of whom are unable to find employment over a period of 12 months from the time of their graduation. A phenomenon specific to the Polish employment market is employment in the socalled grey-zone, i.e. unregistered employment, which is thought to encompass approximately 9.5% of the total workforce in Poland. This relates above all to young, uneducated people, i.e. segments that are generally disadvantaged on the majority of labour markets. In light of the current economic situation and ongoing demographic processes, as well as the extraordinarily fast pace of technological changes, it is clear that a radical change is required in labour market strategies A possible solution could be evolution in the direction of flexicurity and innovative employment solutions aimed at reducing costs rather than the number of workers. United Kingdom. In spite of the global economic crisis, the UK employment rate remains one of the highest in Europe, at approx. 75%. 10

11 The UK s total workforce is approx. 29 million people, of whom approx. 3 million are self-employed. Of the remainder, approx. 25% are employed within small companies with less than 50 employees, whilst approx. a further 50% are employed by large companies. Of the total number of employees in the UK, over 20% are employed in the public sector. The employment rate of disadvantaged groups, such as single parents and people with health problems and disabilities, continues to increase. However recent changes indicate that the UK labour market in 2011 is heading for a difficult period. For some time, we were able to say that employment growth in the private sector was outweighing the loss of jobs in the public sector. That is no longer true. The public sector lost 111,000 over the three months to June (97,000 excluding temporary jobs for the census), while the number of jobs in the private sector rose by 41,000. The claimant count is 129,200 higher than it was a year ago, and it is not far from its recession peak. Meanwhile, total employment over the three months to August was 47,000 lower than in same three months of Intriguingly, losses in part-time employment are driving the loss of jobs, just as they drove the increase in employment in the first year of the recovery. Part-time employment has fallen by 175,000, with full-time falling by just 2,000 over the three months to August. 10 The employment rate June to October 2011 has fallen to 70.4%. A key issue in the context of the EU employment market is productivity, which still lags behind levels noted in other EU member states. Skills, which are relatively undeveloped in the UK as compared to in neighbouring EU member states such as France and Germany, have been identified as a prominent factor in driving productivity. It appears that another key factor is management style: according to research, differences in management practices between the US and the UK, account for a 10-15% gap in productivity levels between the two countries. An appropriate approach must therefore be adopted, in order to take the current phenomena and contributing factors into account. Specifically, it appears that in the current era of financial crisis, the best solution is to retain workers within the labour market and increase the possibilities of mobility within the labour market is possible. In order for this to be the case, there must be a focus above all on skills. In particular, mechanisms allowing for skills and qualifications to be obtained and improved must be set in place, thereby allowing workers to adapt to changing market conditions. This approach, which is based on research conducted for the Leitch Report (2006), 11 may not be sustained by future public expenditure from 2011, unless employers increase their contribution to skills development. Netherlands. In general terms, the Dutch market is currently experiencing a decrease in employment rates. However, there are a number of sectors where growth is still visible. In particular, it appears that there are very good growth prospects in this respect in the telecoms and transport sectors. On the contrary, the trade sector is experiencing a downturn, as is the services sector. Employment in the care and education sectors remains stable. A specific characteristic of the Dutch employment market is that more jobs are becoming available as the population of the Netherlands ages. However, a problem 10 Stephanie Flanders (2011), Is the labour market coming back to earth? 12 October, 11 See Leitch Report (2006), 11

12 area is that an increasing number of people are opting for higher education, which means that there are many jobs requiring a secondary education that are not being filled. The distribution of labour on the employment market is therefore skewed in favour of roles requiring a higher educational level. Due to the increase in the retirement age in the Netherlands, there is also an increase in the number of older workers on the employment market. There are also more females on the job market, as modern Dutch families tend to require a second salary in order to maintain a high quality of life. The current Dutch employment policy aim is to increase the employment rate to 80%. However, studies show that there will be surplus jobs in the Netherlands, with not enough skilled workers to carry out the relevant functions. The main factors in this phenomenon are, as mentioned above, the aging population in the Netherlands and the excess of individuals with a higher education degree as compared to the spread of jobs on the employment market. These are issues that will need to be addressed in the future so as to ensure that all labour market functions and roles are filled. Spain. Since the onset of the global economic crisis in 2008, the Spanish economy has been going through a major recession brought about by internal factors deriving from the imbalances accumulated during the last stage of expansions and external factors occurring as a natural consequence of the worldwide recession. In 2010, there was an 80% employment rate on the Spanish labour market, and a working population of 23,121,500. The breakdown of employment by sectors was, in 2010, as follows: 72.9% - services sector, 14% - industry sector, 9% - construction and 4.1% - agricultural sector. According to studies, the most popular occupations in Spain are: workers in restaurant, personal, protection and trader services (3,145,000 (17.10%)), scientific and intellectual technicians and professionals (2,651,000 (14.41%)), unskilled workers (2,631,000 (31%)), craftsmen and skilled workers in manufacturing, construction and mining industries (2,352,000 (12.79%)), and support technicians and professionals (2,324,000 (12.63%)). Although there is generally a good level of education amongst Spanish employees, there is significant scope for improvement in this respect: 33% of individuals who have a higher education degree, 28% have secondary education (first stage) and a further 24% have secondary education (second stage). Given the current economic climate, it is clear that the above statistics can be improved in order to bring Spain more in line with the rest of the EU. It therefore appears that a productive strategy would be to focus on bringing about a productive change in educational and training opportunities in order to drive employment market demographics forward. Italy. In 2009, following the onset of the recession, the rate of employment of Italian people aged between 15 and 64 was 57.5%. Unemployment levels are not uniform throughout the country, with decidedly more inactivity in the South (especially in respect of women, young and older people). Studies show that the reasons for this trend are twofold: firstly, there is a significant number of people who are simply not interested in working, and secondly (perhaps more importantly) there are those who 12

13 are unable to work due to the effect on their employment prospects of poor qualifications and educational opportunities. The global economic crisis has had a marked impact on the Italian employment market. Employment rates have decreased in all branches of production and in all geographical areas, although the industrial sector (including the energy and construction sectors) and the agricultural sector appear to have been dealt the hardest blow. There was a more moderate decrease in employment in the service sector (although in this instance, there appears to also be a regional trend, with most job losses occurring in the South of the country). A significant issue that must be addressed at both a policy and practical level is the lack of employment for trained and highly educated young people. At present, university and upper secondary school graduates encounter serious difficulties in entering the labour market and are faced with alternating periods of unemployment and precarious jobs. Italy is also characterised by weak rates of continuous training and infrequent cases where apprenticeship is chosen as a stepping-stone to a stable career. It is therefore clear that in order to improve the overall situation on the employment market, a greater emphasis must be placed on the availability of education and training, including vocational training. Bulgaria. Although in 2008 Bulgaria remained relatively unscathed by the worldwide recession, even managing to attain moderate growth in economic indices and dynamic employment market development, in 2009 practically the entire Bulgarian economy showed the negative effects of the economic crisis. The employment market is no exception, with visible changes occurring in respect of the labour market dynamic and the professional development of individuals. Thus, in 2009 the overall employment rate in Bulgaria for individuals aged between 15 and 64 was 67.4%. The Bulgarian labour market is quite specific and in many cases can pose a significant challenge to employers. Firstly, the Bulgarian employment market is a limited one, due mainly to the small national population (7.8 million). Secondly, the Bulgarian population is aging rapidly, and in addition many young people choose to leave the country and seek better employment prospects elsewhere (for example, in the UK, US, Australia). As a result, the Bulgarian labour market is lacking a skilled workforce in several key areas of the economy. According to recent research, the 2009 economic downturn had the most marked impact on the processing, manufacturing and construction sectors. Key factors in this trend included negative tendencies in the economic development of textile manufacturing, food and beverage manufacturing, equipment and machinery manufacturing, metal, rubber, plastics and other non-mineral resources manufacturing. In turn, the level of job cuts in the construction sector in 2009 was 13.5%. At present, it is clear that the trend is for employers to require their workforce to have higher education. In 2005, employees with basic and low level of education represented 20.95% of the active population, whereas by 2009, this number had dropped to 15.7%. Moreover, the number of individuals with higher education has increased from 23.85% in 2005 to 25.2% in This tendency is mirrored in the Bulgarian employment sector. However, it is clear that more work must be done going forward in order to reinforce these changes and bring about further economic growth on the Bulgarian market, in spite of the new rounds of turbulence currently being noted on global financial markets. 13

14 2.3. Key occupations by country As set out above, each of the labour markets focused on in the context of the Project is characterised by varying demographics and employment spreads. As a result, each market requires a differing breakdown of employment and places emphasis on the importance of different functions to the overall functioning and growth of the economy. The professions identified as key in the context of each project country are as follows: Poland Computer systems designer Poland is characterized by a high number of highly-qualified IT specialists, but is frequently subject to the brain drain, i.e. emigration of skilled workers to other world economy (e.g. the US, UK, Australia). There is therefore constant demand for specialists in this field, with competencies in respect of computer hardware & software, the functioning of IT networks and their creation, implementation procedures and the creation of offers and documentation. Agricultural consultant In spite of the dynamic growth of the Polish economy over recent years, and its relative stability in light of the global economic crisis, the agricultural sector still plays a key role in the Polish market. It is therefore vital that appropriate consultants are trained and retained, in order to ensure that this field is appropriately represented and beneficial agricultural policies are formulated and implemented, thereby leading to overall economic success. Long-term care nurse Healthcare is one of the areas of the Polish economy that has traditionally been, and remains, vital to sustainable growth. Factors such as increasing social awareness of disabilities and an aging population have, in turn, increased the importance of the role of long-term care nurse, which involves care for the terminally ill and disabled, knowledge of therapeutic programmes, as well as cohabitation and social communication skills. Environmental protection technician The profession of environmental protection technician has gained significantly in importance in light of the introduction of the EU energy and climate policy and relevant national legislation and regulations. For this reason, it has been identified as key in ensuring an appropriate direction of growth for the Polish economy. Logistics technician Another key occupation in light of the structure of the Polish economy, and the key significance of commerce in this context, is that of logistics technician. The particular skills identified as being characteristic of this vocation include: knowledge of the system of legislation relating to logistics, management and marketing expertise, accounting and finance skills, abilities in respect of the creation of offers and documentation. 14

15 Netherlands Cleaning assistant The occupation of cleaning assistant one has been identified as a traditional one in the context of the Dutch employment market. It has been selected for focus within the Project as it is relatively accessible for various groups of workers and yet affords good development potential, requiring the frequent extension of knowledge and skills in accordance with technological development as regards cleaning products and techniques. Shop sales assistant The retail sector is characterised by frequent changes, with regards to both product selection and customer demands (societal trends and developments), as well as sales techniques and technologies. As in the case of the vocation of cleaning assistant, this vocation has been chosen as it is accessible for various groups of workers across the Dutch employment market. Educational assistant This is a highly traditional profession in the context of the Dutch employment market. Given the expected deficits in the educational labour market, and the current focus on ongoing professional development as a tool in ensuring sustainable employment market growth, there will strong forces pushing forwards with ensuring vertical mobility in the educational professions. Care nurse for individual care As mentioned above, the Dutch population is an aging one. A key and traditional - role is therefore that of care nurse for the elderly. This characteristic is unlikely to change over the coming decades, as the aging trend continues to develop, so increasing focus must be placed on ensuring adequate training and subsequently care mechanisms are in place. Truck driver for goods Import and export activities play a key role in the Dutch economy. The occupation of truck driver has therefore been selected, as it is vital in the context of ensuring that this sector continues to develop. This profession requires knowledge, skills and qualifications to be regularly updated, in accordance with technological developments in the field of transport and loading/unloading devices, as well as applicable laws and regulations. Spain The occupations chosen as key in the context of the Spanish market are: Agricultural Labourer Despite being mostly a services-based economy agriculture is still an important sector, especially in citric, olive and vine production. Thus a significant number of agricultural labourers is demanded, especially in the times of crops collection. Mechanics technician This is the key occupations for Spanish industries, mostly for mechanical manufacturing industry which use processes and/or technologies of: 15

16 manufacturing machining processes, forging, embossing, assembly, metallic constructions, transformation and the processing of metals. Home care worker This occupation profile entails a large number of unskilled workers who carry out activity in Spain without professional accreditations. The need to professionalise this occupation has led the Government to introduce the Dependency Law whose development entails the professional accreditation of workers in all autonomous communities. Trainer The trainer profile represents a group of professionals who are responsible for the adaptation of qualifications in the country, in particular in the context of the Professional Training System for Employment. In is particularly important also in the context of the process of professionalisation of social workers. Building Labourer The labourer occupation is very important in Spain from the perspective of lifelong learning and employment. The serious crisis in the sector has seriously affected this occupation and makes its reconversion necessary for a worker with a high level of specialisation and with professional accreditations in new technologies, safety, the environment and new materials. These professions were chosen with a number of criteria in mind, notably: the position of the occupation in production processes, non-formal learning in the occupation and needs for accreditation and certification of learning outcomes in the Spanish qualifications framework. Italy Labour consultant The role of labour consultant is a traditional occupation that involves the use of new competences, notably in respect of the use of specialist software, as well as of new knowledge as regards fast-moving changes in respect of fiscal and legislative procedures. This profession has been selected as, due to the increasing flexibility of the labour market, there is a need for qualified labour consultants in all sectors. IT Architect The IT sector is subject to intense changes and provides a range of challenges. IT architects are required in order to maintain the current growth tendency, work on international projects, advocate new skills and competencies and be the creators of innovation. Construction technician The role of construction technician is a traditional one, and one that is subject to continuous changes in light of changing environmental and health & safety laws. This is a key function due to the vital economic importance of the construction sector to the Italian market, and covers a wide range of competencies and responsibilities. Qualified crop growers Notwithstanding the above, the Italian economy is in many ways still a traditional one and as such is relatively heavily based on agricultural activity. The function of 16

17 crop grower is therefore a traditional function and one that is the focus of state policy, including the recent State-Regions Agreement. Fitness instructor In the Italian market, fitness instructors often have limited professional qualifications that are not recognised at national level and insignificant past experience. However, this profession has been identified as being key in maintaining the health and wellbeing of the Italian population. There is therefore a definitive movement in direction of the provision of sufficient training in order to ensure minimum standards in fitness instructor training and subsequent fitness training of the public. Graphic and web designer Owing to the key importance of the Internet in marketing and trade activities today, the role of web designer has become more and more prominent over recent years. The web designer is subject to constant challenges (including high levels of time competitiveness) in order to create innovative, creative and attractive end products, and must therefore be characterized by a combination of creativity and technology awareness. Bulgaria Engineer Manager (in construction) The occupation of engineering manager is a highly popular one in Bulgaria due to the recent expansion in the construction sector, which has resulted in a steady increase in demand for professionals specialising in engineering. It is also a popular choice with graduates due to the relative financial security ensured. Sales representative The profession of sales representative is also a highly popular one in Bulgaria, and is characterised by a very high number of offers on HR and recruitment platforms, in spite of the ongoing financial crisis. Once again, salary-related factors play an important part in the appeal this vocation has to graduates and employment market participants. IT Developer Bulgaria is an important outsourcing destination for ICT companies from all over the world. This occupation is characterised by highly specific knowledge and fast developing skills, and is represented by a limited number of professionals. Demand for specialists in this sector has not decreased even during the recession, and perhaps as a result - the occupation of IT developer remains one of the most popular professional choices in Bulgaria. Baker The Bulgarian food industry is one of the largest traditional sectors of the economy and boasts the greatest number of employees, but was significantly affected by the global recession. The vocation of baker has been selected within this sub-sector as it is apparent from job listings that there is currently a high level of demand for qualified specialists in this field. 17

18 Truck Driver The Bulgarian transport sector is one of the few sectors characterized by positive economic development over the past two years. The occupation of a truck driver is a very popular one and there is a high level of demand for it on the employment market. United Kingdom Malta UK has adopted a different approach and concentrated not so much on identification of key occupations but on specifying which sectors suffer the most from skills shortage and need qualifications improvements. Agriculture Workforce employed in agriculture is aging and predominantly occupied by males with low level of technical skills. For a longer period migrant workers balanced this trend, but they have recently moved back to home countries or to other sectors. Engineering manufacture Workforce in this sector is also aging and quite settled. For this reason the sector experiences a mismatch between skills supply and demand. Construction This sector used to have an unfortunate image of low pay, poor working environment and little job security. Moreover it is also sensitive to macroeconomic changes and thus subject to workforce flows. That is why the sector has problems attracting diverse, talented and flexible workforce despite competitive wages it can offer. VET Teachers & Trainers This is a key occupation with a Licence to Practice introduced in 2007 so that improving the knowledge and competencies of the workforce is now public policy. The main target group would be aging and settled workforce that needs to improve skills and diversify job roles. Health & Social Care Like in Spain this occupation needs to be professionalised. The society is aging whereas elderly people are encouraged to live and independent live as long as possible thus they need assistance of social workers. However employees in this sector very often lack basic skills like numeracy and literacy on more advanced level Women s hairdresser An ever growing profession that needs to be regulated.. Pre-press machine operator An old occupation that needs to look at new skills as to be competitive in the labour market. 18

19 Construction craftsman An important occupation that evolves over time. Conservation technician Due to the importance given to national cultural sites, there is a need of having qualified restorers. Child care Worker An ever growing occupation, especially with many parents participating in the labour market Summary and conclusions In recent months, it has become very clear that the EU financial and labour markets are still significantly weakened by the ongoing financial crisis. The position in this respect varies across the various EU countries, with certain economies hit much harder than others. This has had a marked impact on employment and in particular long-term unemployment rates. The groups that appear to be particularly at threat are those that are typically the most disadvantaged on the employment market: males, young people, migrants, the low-skilled and those employed on a short-term basis have been most affected by the economic downturn and the rise in unemployment. There is therefore a clear need for the issue of segmentation on employment markets to be addressed. An additional issue of equally key importance is that of skills deficiency in the context of specific markets. This problem, too, must be addressed in order to bring greater equilibrium to the employment markets in member states. In light of the current economic situation and ongoing demographic processes, as well as the extraordinarily fast pace of technological changes, it is clear that a radical change is required in respect of the strategies applied in the context of the employment market. A possible solution could be evolution in the direction of flexicurity and innovative employment solutions aimed at reducing costs rather than the number of workers. Furthermore, at this time of financial crisis, it appears that the best solution is to retain workers within the employment market and facilitate relative mobility within this employment market. This requires a specific focus on skills. In particular, mechanisms allowing for skills and qualifications to be obtained and improved must be set in place, thereby allowing workers to adapt to changing market conditions. 3. EQF, PRINCIPLES AND CRITERIA FOR REFERENCING 3.1. European Qualification Framework The EQF represents a new approach to European cooperation in the field of qualifications. The introduction of a set of learning outcomes based reference levels/descriptors spanning all forms of qualifications and the entire range of qualifications levels have not been attempted previously. Successful implementation of the EQF therefore requires that everybody involved shares a clear understanding of: 19

20 the objectives and main intended functions of the framework; the principles and logic applied when defining the framework (how were the descriptors constructed, how should they be read?); the requirements to implementation (in terms of stakeholder involvement, transparency, quality assurance and peer review). The EQF has been designed to act as a reference for different qualifications systems and frameworks in Europe. It takes into account the diversity of national systems and facilitates the translation and comparison of qualifications between countries. In this sense the EQF is a framework for frameworks and/or systems and it can therefore be defined as a Meta-framework. (A qualifications framework can be seen as part of a qualifications system in which the levels of qualifications are explicitly described in a single hierarchy.) This meta-framework will enable qualifications systems with their implicit levels or/and national and sectoral qualifications frameworks to relate to each other. In the process of implementing the EQF it is intended that each country will reference its national qualifications (in terms of diplomas, certificates or awards) to the eight EQF levels via national qualifications frameworks or the implicit levels in the national qualifications systems. This means that in the first stage levels of national qualifications frameworks or parts of qualifications systems will be referred to the EQF levels. In the long run, all qualifications awarded in Europe should have a reference to the EQF Criteria for the referencing process. The EQF Recommendation invites Member States to refer their national qualifications levels to the EQF by To meet this deadline and to ensure that the referencing process is designed in such a way that it can be understood and trusted by stakeholders in all countries involved, the EQF Advisory Group has agreed on a set of criteria and procedures to guide this process. In addition to listing the 10 criteria/procedures agreed by the EQF Advisory Group, this note contains a brief explanatory part clarifying context and intentions. These criteria aim to ensure that the information and documentation that is put into the public domain is validated by the competent authorities, is relevant, is transparent, can be compared and generates trust. This emphasis reflects that the success of the EQF depends on the ability of the countries to refer their qualifications systems and levels to the EQF in a demonstrable, explicit and defensible way; that means in a way that the information can be judged as valid or not by those not familiar with a country's qualifications. The referencing criteria are essential in the sense that they indicate the general direction of the referencing process. It is however important to note that criteria have to be proved through practise. This means that an agreement on a set of referencing criteria represents only a first step and that the application of the criteria needs to be followed up through guidance and systematic exchange of experiences and good practises. The National Coordination Points as well as the test and pilot projects play an important role in pursuing this. 12 European Commission: Explaining the European Qualifications Framework for Lifelong Learning 20

21 Criteria and procedures for referencing national qualifications levels to the EQF 1. The responsibilities and/or legal competence of all relevant national bodies involved in the referencing process, including the National Coordination Point, are clearly determined and published by the competent public authorities. 2. There is a clear and demonstrable link between the qualifications levels in the national qualifications framework or system and the level descriptors of the European Qualifications Framework. 3. The national qualifications framework or system and its qualifications are based on the principle and objective of learning outcomes and linked to arrangements for validation of non-formal and informal learning and, where these exist, to credit systems. 4. The procedures for inclusion of qualifications in the national qualifications framework or for describing the place of qualifications in the national qualification system are transparent. 5. The national quality assurance system(s) for education and training refer (s) to the national qualifications framework or system and are consistent with the relevant European principles and guidelines (as indicated in annex 3 of the Recommendation). 6. The referencing process shall include the stated agreement of the relevant quality assurance bodies. 7. The referencing process shall involve international experts. 8. The competent national body or bodies shall certify the referencing of the national qualifications framework or system with the EQF. One comprehensive report, setting out the referencing and the evidence supporting it shall be published by the competent national bodies, including the National Coordination Point, and shall address separately each of the criteria. 9. The official EQF platform shall maintain a public listing of member states that have confirmed that they have completed the referencing process, including links to completed referencing reports. 10. Following the referencing process, and in line with the timelines set in the Recommendation, all new qualification certificates, diplomas and Europass documents issued by the competent authorities contain a clear reference, by way of national qualifications systems, to the appropriate European Qualifications Framework level Main elements in the process of referencing: Malta and UK cases Malta referencing process 13 Malta launched its comprehensive national qualifications framework for lifelong learning (NQF) in June 2007, encompassing all levels of formal, informal and non formal education and training (see chapter 4)

22 The Malta Qualification Framework followed a set of criteria which was agreed upon by the EQF Advisory group and which provide a methodological guideline for the referencing process. These ten indicators include aspects such as: 1. the responsibilities and the legal competence of the relevant bodies involved; 2. a demonstrated direct link with the EQF; 3. learning outcomes-based qualifications and the link to the validation of informal and non-formal learning and credit systems; 4. transparent inclusion of qualifications in one of the levels of the framework; 5. a quality assurance policy that corresponds to European principles;6. the quality assurance body shall approve the referencing process; 6. the involvement of international experts in the referencing; 7. the publication of a report on the referencing process (this report); 8. a public listing at European level indicating those Member States which completed the process; and 9. the referencing process must be completed by the established EU timeframes. In the methodology we focused on the roots of the level descriptors of the MQF as the political, economic, cultural and social priorities of a Nation which is now part of the European Union. Such level descriptors were read keeping in mind: the economic and social development of a small nation within the larger Union; the impact of the EQF and the QF-EHEA level descriptors on the culture and system of our education; the relevancy of the level descriptors of the MQF to the EQF and the QF-EHEA; the portability of such level descriptors to lifelong learning, the validation of informal and non-formal learning and greater transparency of qualifications within a changing labour market. What followed was an evolution of this process supported by the equally challenging developments of the EQF and the QF/EHEA namely the Copenhagen and Bologna processes backed by the Lisbon strategy. MQC adopted a methodology in which level descriptors were shown on two columns next to each other to facilitate comparison of both the level descriptors of the EQF and of the MQF. Such a comparison is based on the EQF learning outcomes paradigm of the Knowledge, Skills and Competences. The learning outcomes of the MQF introduces the term applying knowledge and understanding and distinguishes between types of skills such as those in communication, judgement and learning like the level descriptors of the QF/EHEA, and equates competencies with autonomy and responsibility. The level descriptors of the MQF are also referenced to the Qualifications Framework for the European Higher Education Area (QF/EHEA). This aspect gives more transparency and value to qualifications accredited and quality assured by MQC. The changing character of qualifications from national, to European and international, from theoretical to practical, from learning inputs to learning outcomes and the greater emphasis in investment in a highly-skilled labour force that meets current and future industry requirements necessitated stakeholders involvement and MQC s participation in and organisation of national, European and international activities. This methodological approach is evident in the detailed table shown below. Such events in 22

23 which MQC and stakeholders were involved were fundamental for MQC to keep up with developments in the field and to ensure that the referencing process reflects the needs and aspirations of our education and employment policies. The local stakeholders contributions were also a key element in the shaping of the Malta Qualifications Framework and its referencing to the EQF and the QF/EHEA. Involvement in the design of learning outcomes, qualifications, occupational standards and the MQF itself gave stakeholders a sense of ownership which facilitated the synergy between education and training and industry, thus creating mutual trust and new forms of transparency. The Referencing Report and the process leading to it were also based on research leading to the publication of four policy documents published by MQC which make up the Valuing All Learning Series as well as discussions based on the proposed principles. The Volumes on the Malta Qualifications Framework focused on: 1. A National Qualifications Framework for Lifelong Learning; 2. Vocational Education and Training 3. The Quality Assurance Policy; 4. The Validation of Informal and Non-formal Learning. 14 UK referencing process In 2007 the UK Government signed up to the establishment of a European Qualifications Framework (EQF), along with the principle of referencing national qualifications systems to it by In 2008/9 three exercises were carried out to reference the UK qualifications frameworks to the EQF in accordance with the criteria and procedures developed by the EQF Advisory Group. This report describes the official referencing of the Qualifications and Credit Framework (QCF) to the EQF in England and Northern Ireland. Separate reports describe the referencing of the frameworks in Wales and Scotland, and a report summarising the position for all the UK frameworks will be published later in The QCF was introduced in 2008 with the intention that it will include all qualifications in England, Wales and Northern Ireland other than higher education qualifications, which are covered by the Framework for Higher Education Qualifications (FHEQ), and the qualified status granted by professional bodies. It introduces a standard currency for achievement in the form of a framework of levels based on learning outcomes, as well as a system of credit and principles for recognising previous certificated and uncertificated learning. The QCF has nine levels, with the first (Entry) level subdivided into Entry 1 3. Entry 1 represents the most basic level of achievement, and level 8 the most advanced. Final referencing of the QCF to the EQF The NCP notes that the EQF does not include a level or levels corresponding to QCF Entry 1 and 2, which are recognised as important in supporting learners who have low levels of basic skills or lack confidence. It therefore encourages the EQF Advisory Group to consider how achievement at these levels might be recognised in the EQF. 14 MALTA QUALIFICATIONS COUNCIL (2009). Referencing of the Malta Qualifications Framework (MQF) to the European Qualifications Framework (EQF) and the Qualifications Framework of the European Higher Education Area (QF/EHEA) 23

24 The EQF has a set of common principles for quality assurance which national qualification systems are expected to follow. The NCP has assessed the quality assurance policies and procedures used in England and Northern Ireland and confirms that they conform to these principles. This report has been endorsed by the competent national bodies in England and Northern Ireland, and will be placed on the QCDA and CCEA websites. The European Commission will be informed that the referencing process has been completed and a link to the report will be provided. The UK report, comprising the reports from Wales, Scotland and England and Northern Ireland, will be formally submitted to the European Commission at the end of the year. The national framework or qualifications system and its qualifications are based on the principle and objective of learning outcomes and linked to arrangements for validation of non-formal and informal learning and, where these exist, to credit systems. The UK has a history of using learning outcomes that goes back to the mid-1980s, and it is now standard practice for qualifications to be specified in terms of what learners need to be able to demonstrate in order to achieve them. The QCF is explicitly based on a system of units, specified in terms of learning outcomes that are assembled into qualifications through rules of combination. Achievement of single or multiple units is recognised by the award of credit. Learners who achieve credits are entitled to have them recognised towards any qualification that includes the relevant units within its rules of combination. The QCF supports the recognition of previous learning from certificated and noncertificated sources where learners can show that they have met the learning outcomes within the unit(s) that they are seeking. The principles underpinning this are explained in the document Claiming Credit: Guidance on the Recognition of Prior Learning within the QCF (2010) PRINCIPAL EFFECTS OF THE REFERENCING PROCESS: TRANSPARENCY AND VALIDATION OF LEARNING (CRITERION 3) The results proposed in EQF-Spread project try to facilitate the transparency of qualifications and mobility of workers. In this sense, this project is identified with criterion 3, which considers that The national qualifications framework or system and its qualifications are based on the principle and objective of learning outcomes and linked to arrangements for validation of non-formal and informal learning and, where these exist, to credit systems. Learning outcomes are the core mechanism of European instruments aiming at the transparency, comparability, transferability and recognition of competencies and/or qualifications, between different countries and at different levels (European Commission, 2002). As common language or currency, learning outcomes are expected to aid mobility between the varied VET systems of different countries as well as between sectors and 15 QCDA (2009). Report on referencing the Qualifications and Credit Framework to the European Qualifications Framework for Lifelong Learning. 24

25 levels of education within countries. European tools aim at removing geographical, institutional and sectoral barriers to education, training and learning. This is important for easing access to lifelong learning, promoting smooth learning progression and enabling the valuing and recognition of learning. The fundamental basis to these instruments and a key to achieving these ambitious objectives is the shift to a learning outcome based approach (Cedefop, 2009d, p. 106). To implement European instruments such as the European qualifications framework, the European credit system for VET and the European quality assurance reference framework, countries are encouraged to define national qualification frameworks and qualification standards based on learning outcomes. As they provide the basis for assessment and certification, qualification frameworks and qualification standards can be expected to exert an influence on teaching and learning. According to the broad definition of curriculum, qualification standards can be considered as part of the curriculum, since they contribute to steering the learning process and are related (or should ideally be related) to the other elements of the curriculum. Previous research has already revealed evidence on developments towards adopting qualification standards and national qualification frameworks based on learning outcomes in many European countries (Cedefop, 2009c). Hence, European strategies and instruments are an important background and motivation for reforming VET curricula by introducing learning outcomes. In the country studies, this was found to be especially true for those countries which did not develop their own national approach to competence-based education and to learning outcomes until recently. Poland, Romania and Slovenia provide good examples of such countries trying to adopt European terminology and instruments in the wake of radical reforms of the entire VET system, supported by European funds. Countries with an older tradition of competence-based curricula, such as France and Germany, are also making reforms to cope with EU developments and new requirements, preserving their own understanding of learning outcomes and competencies. 16 Arrangements for validation of non-formal and informal learning. Validating nonformal and informal learning is increasingly seen as a way of improving lifelong and lifewide learning. More European countries are emphasising the importance of making visible and valuing learning that takes place outside formal education and training institutions, for example at work, in leisure time activities and at home. Validating informal and non formal learning is of increasing importance across Europe. Further, the commitment of large numbers of countries to OECD activity in this field and participation in the European Commission s peer learning cluster indicate that validation is seen as an important element of national policies on education, training and employment. The fact that validation can be seen as part of education, training and employment policies is significant and illustrates the bridging character of this approach. Expansion and diversification of education and training policies towards a broader, lifelong learning perspective, widens the focus from the delivery of qualifications by formal education and training institutions to include other, more flexible routes to qualification. These are sensitive to different ways in which people have developed their knowledge and skills and the way they live their lives. To ease such flexible 16 CEDEFOP (2010) Learning outcomes approaches in VET curricula. A comparative analysis of nine European countries. 25

26 pathways, validating non formal and informal learning makes visible the learning gained outside learning institutions. Across a country this represents a vast untapped resource of invisible knowledge and skills and, in addition to the rights of individuals to have their learning recognised, its increased visibility could lead to significant economic and social benefits for individuals, communities and countries. Routes from learning to certification. Validation of non formal and informal learning is organised differently across Europe. The system for validating outcomes can be designed as an integral part of the existing formal education and training system; when this is the case it is seen as another nationally endorsed route to recognition of learning outcomes and possibly to certification. In some countries validation of non formal and informal learning operates in parallel with the formal system. It is managed differently but uses some of the infrastructure from the formal system, such as educational benchmarks or standards for formal qualification. It can also be an entirely separate process leading to distinctive recognition that bears no institutional, standards or certification link to the formal system. Source: Cedefop,

27 Stakeholder roles. The number of stakeholders and agencies involved in validating non formal and informal learning can make it difficult to see the whole picture from any one perspective. The integrated view presented in Table 1 maps out and extends current boundaries of thinking on how, where and why validation occurs. Five distinctive but interrelated levels of management by stakeholders are described: individual learners, organizations, education and training, national and regional policymakers and European policy-makers. This integrated view can be used to broaden understanding of the practical challenges of validating non formal and informal learning when developing and implementing validation approaches at all levels 17. Source: Cedefop, CEDEFOP (2009). European guidelines for validating non formal and informal learning 27

28 3.5. Summary and conclusions In order to achieve a successful implementation of the national and sectoral qualification framework in the European countries, all the stakeholders have to share a clear understanding of the objectives and main functions of the European Qualification framework (EQF), the principles and the way it should be used. Stakeholders have to be aware of the requirements for the implementation of EQF, and also of the advantages for VET systems and for employment within the context of European Strategy (ET 2020). The adoption of the EQF model will increase the transparency of qualifications and facilitate the mobility of workers and students. EQF will allow employees to be mobile and at the same time to have their qualifications recognised outside their own country. EQF will facilitate the transition from work to training and vice versa, on a lifelong learning basis. Because of the constantly changing character of qualifications all over the world, events like investment in a highly skilled labour force is necessary to keep up with the developments in the sectors. This will lead to satisfied needs and aspirations we set in our education and employment policies. By creating links between the national en European qualifications systems, training programmes can be designed more transparent and can therefore be used more efficient by the different employers in each different country. The EQF advisory group provided a methodological guideline including 10 indicators, which should be followed by the European countries. The 10 criteria for the referencing process aim to ensure that all information and documentation is considered relevant and transparent can be compared and generates mutual trust among the stakeholders. The 10 referencing criteria, outlined in section 3.2. are essential during the implementation of EQF. Criterion 3 considers learning outcomes as the core mechanism for the transparency of qualifications and for the mobility between the varied VET systems and labour market of different countries. On the other hand, the recognition of prior learning is an important means of enhancing levels of economic activity in the labour market, regardless of Levels of qualification, and improving citizens motivation through engagement with lifelong learning. The cases of Malta and UK demonstrate how leaning outcomes systems are providing good results in the labour market due to a flexible process of certification and accreditation of qualification of workers, facilitating the opportunities in the labour market and in the education and training systems. In conclusion, the adoption of the EQF will increase the mobility of workers and students, facilitating the transition from work to training and vice versa, on a lifelong basis 28

29 4. THE DEVELOPMENT OF NQFS IN THE PARTNER COUNTRIES This chapter aims to outline the current stage and major developments of the national qualification frameworks in EQF Spread partner countries. It offers an overview of the main features of levels and descriptors, referencing to the EQF and the lessons learned for each country. In the conclusion it summarises some important differences and similarities between the countries, drawing as well on the basic challenges identified in the future development and implementation of the frameworks. EU countries are increasingly tending to see NQFs as key instruments influencing national policies and reforms in education, training and employment. They have committed themselves to developing and introducing national qualifications frameworks for lifelong learning responding to the EQF. At the same time, the emerging NQFs reflect the national systems they are supposed to operate within. Although differences can be observed in specific NQFs objectives and in the NQFs design features, it is generally accepted that frameworks should introduce an explicit set of qualifications levels and level descriptors, that they must reflect the learning outcomes approach and that a broad range of stakeholders (from education, training and employment) must be involved Situation in the participant countries Malta Introduction. Malta launched its comprehensive national qualifications framework for lifelong learning (NQF) in June 2007, encompassing all levels of formal, informal and non-formal education and training. Four working documents on MQF were published, focusing on the conceptual framework, a reform strategy for VET, a quality assurance policy for VET, and level descriptors for key competences at levels 1, 2 and 3 of the MQF. Levels and descriptors. The Maltese NQF has eight levels of qualifications. The MQF has been influenced by the eight-level classification of the EQF but it responds directly to a long-standing system of a Maltese qualifications system. The MQF level descriptors are more detailed than those of the EQF and more contextualised to the Maltese culture and national social, economic and political priorities. Each level descriptor is defined in terms of knowledge, skills, competences and learning outcomes. The level descriptors measure complexity, volume and the level of learning expected for the particular qualification. They give a broad profile of what an individual should know and do with varying degree of autonomy and responsibility. Referencing to the EQF. Malta was the first Member State to prepare one comprehensive Referencing report to reference its qualifications to the EQF and the QF-EHEA. It was officially launched by the Minister of Education in November The direct correspondence with the EQF levels was established. MQF EQF Lessons learned and the way forward. The development of the MQF has served as a catalyst for education reform and innovation as well as to build a new culture of 29

30 learner-centred qualifications and improve permeability between VET and HE. There were the following four main issues of controversy at national context: (a) (b) (c) (d) the parity of esteem of vocational education and general education. Experience already shows that VET and HE institutions have strengthened their cooperation. There is now more evidence that VET qualifications are recognised as entry points into HE not only within VET institutions but also in university courses. Academic qualifications are widely considered as entry points into VET programmes; validation of informal and non-formal learning is not easily accepted by the general education route and is not generally recognised as well as the academic higher levels of the MQF. The proposal for the new school leaving certificate gives, for the first time, value to all formal, non-formal and informal learning activities. a credit system to cut across the MQF is seen as a challenging task for private and public training providers to redesign their qualifications accordingly; the concept of why there is a need for sectoral frameworks when Malta already has an NQF. This issue is still debated. UK England and Northern Ireland Introduction. The qualifications and credit framework (QCF) is a jointly regulated credit and qualifications framework for England, Wales and Northern Ireland. The framework covers all levels and types of qualifications, except for higher education qualifications which are covered by the Framework for higher education (FHEQ) and linked to the Bologna process. The QCF recognises skills and qualifications by awarding credit for qualifications and units. It is thus supposed to enable people to gain qualifications at their own pace along flexible routes. The QCF went through a two-year test and trial period and was formally adopted in autumn Levels and descriptors. The QCF comprises nine levels from entry level (sub-divided into entry level 1-3) to achievement at level 8. The five upper levels are intended to be consistent with the levels of the framework for higher education qualifications. The level descriptors are concerned with the outcomes of learning and not the process of learning or the method of assessment. The indicators for each level are grouped into three categories: (a) knowledge and understanding; (b) application and action; (c) autonomy and accountability. Apart from the system of levels, the QCF consists of a system of units and credits. QCF also includes principles for assembling qualifications from units, specifying which units must be achieved for each qualification. A set of principles for recognising prior certified and non-certified learning is also included. Referencing to the EQF. The QCF was referenced to the EQF in February 2010: QCF EQF Entry level 1 Entry level 2 Entry level

31 The higher education framework (FHEQ) is not formally referenced to the EQF. As the five upper levels of the QCF are consistent with the FHEQ, an implicit and indirect link is established. Important lessons learned and the way forward. The adoption of the QCF demonstrates the need to develop NQFs further. As a second generation framework, the QCA introduces much stronger credit transfer elements, moving beyond the scope of the former NQF. This evolution has gone on for more than a decade, underlining the need for a long-term perspective in this field. While the QCF is now linked to the EQF, this is not the case for the FHEQ. Whether this will remain a permanent solution is unclear. Scotland Introduction. The SCQF was originally implemented in 2001 but has been gradually revised and refined in the period following this. The SCQF is organised as a company which is a unique solution in Europe; a charity was set up in The framework covers all levels and types of qualifications. The SCQF is not a regulatory framework. It assists in making clear the relationships between Scottish qualifications and those in the rest of the UK, Europe and beyond, thereby clarifying opportunities for international progression routes and credit transfer. The SCQF sees itself as an integrating framework. The framework supports everyone in Scotland, including learning providers and employers. Levels and descriptors. There are 12 levels in the Scottish framework, described on the basis of common level descriptors, which apply to all types of learning programmes and qualifications. It is worth noting that the SCQF, in the same way as the other UK frameworks, operates with access (entry) levels. Levels 1-3 are seen as important in addressing individuals with particular learning needs and as an important part of an overall lifelong learning strategy. For some, the access level can function as a way back to formal education and training. Referencing to the EQF. The SCQF was referenced to the EQF in February 2010 as a part of the overall UK referencing process. Scotland has completed its selfassessment against the EHEA as part of the Bologna process. This work is now being taken account of within the referencing of the full SCQF to the EQF. The work of the group resulted in the following referencing: SCQF SCQF EQF Wales Introduction. The CQFW is a descriptive voluntary framework which was developed by bringing together a number of sub-frameworks already in existence in Wales: the framework for higher education qualifications (FHEQ); the National Qualification Framework (NQF) for regulated national courses; and the quality assured lifelong learning. It embraces both academic and vocational qualifications and can be described as comprehensive. 31

32 Levels and descriptors. There are nine levels in the CQFW: entry plus eight levels. There are common level descriptors which apply to all types of learning programmes and qualifications. Referencing to the EQF. The CQFW was referenced to the EQF as a part of the overall UK referencing process in February The following links was established between the CQFW and the EQF (this corresponds to the link between QCF and EQF). CQFW CQFW EQF As with England and Northern Ireland, the group which was established to scope the link between the FEHQ and EQF concluded that no additional benefit from linking to the EQF could be identified. This decision can, however, be reviewed in the future, depending on the developments of the EQF and the feedback from potential users of the frameworks. Bulgaria Introduction. Bulgaria is currently developing a comprehensive, learning outcomes based national qualifications framework (NQF) covering all levels of the education and training system and their corresponding qualifications/degrees. A draft set of descriptors for VET levels of the NQF were designed in January They are based on learning outcomes and are constructed by degrees of vocational qualification. The work on the general education levels is forthcoming, taking into account the new secondary education structure to be set by a Law on school and pre-school education development to be adopted. Levels and descriptors. The NQF draft comprises eight levels and takes into account the specific features of the national education system. Levels 6 to 8 in the draft are described according to the descriptors of the QFEHEA and levels 1 to 5 in terms of knowledge, skills and competence. The expected learning outcomes of qualifications reflect the legal acts governing different subsystems of education and training. The draft also takes into account the ISCED 97 approach to provide correspondence between the NQF levels and ISCED, thus seeking to combine the outcomes based approach with input-factors. Referencing to the EQF. The referencing to the EQF is seen an integrated part of the overall work on the NQF. EQF NQF ,8 The first level of the EQF does not exist in the Bulgarian qualification framework; therefore, the first Bulgarian level is equal to the second EQF one. The NQF draft was ready in June 2011, the consultation process will finish by the end of October

33 MECU MECES EQF-Spread has been funded with support from the European Commission. This Main lessons and the way forward. One of the aims of the NQF is to provide greater system transparency. While the Bulgarian developments seek a comprehensive NQF addressing all levels and types of qualifications, the extent to which the framework will facilitate increased and simplified vertical and horizontal progression and transfer between education and training subsystems is not clear. The use of separate level descriptors for different parts of the framework may weaken the ability of the framework to influence existing borderlines between institutions and learning environments. The development of sectoral qualifications frameworks (SQF) is considered very important. By SQFs the sectoral qualifications in economic sectors will be described in a more clear and transparent way for all target groups and stakeholders, using a learning outcomes approach and linking them to the credit system where applicable. Spain Introduction. Spain is currently developing an NQF for lifelong learning (Spanish qualifications framework, MECU), based on learning outcomes. It will link and coordinate different education and training subsystems. The higher four levels of MECU will be linked to the qualifications framework for higher education (MECES), which is being put in place separately. A preliminary draft of the QF for HE has been prepared and is being discussed with all relevant stakeholders. Levels and descriptors. An eight-level framework has been proposed to cover all main types of Spanish qualifications. The four highest levels will be compatible with the Spanish QF for HE. Level descriptors are defined in terms of knowledge, skills and competence. They have been inspired by the EQF level descriptors, but adopted to suit national context. This is particularly the case for skills, where the ability to communicate in different languages and analytical skills are emphasised. Competence is defined as autonomy and responsibility and including learning skills and attitudes. Broad generic descriptors for NQF will be supplemented with more detailed descriptors for subframeworks if needed (e.g. for professional qualifications). The descriptors for levels 5-8 are compatible with the Dublin descriptors, so these MECU levels can be compared to the MECES levels. The learning outcomes approach is seen as an essential part of the development of the NQF and is supported by all relevant stakeholders. Referencing to the EQF. The draft referencing report is expected to be prepared by The Directorate General for Vocational Education and Training was appointed by the government to coordinate and launch the process and act as the national contact point (NCP). NQF Education System EQF Level CNCP level PhD Level 8 -- Master Level 7 Level 5 Bachelor Level 6 Level 4 VET Higher level Level 5 Level 3 VET Medium level Level 4 Level 2 Compulsory secondary education (ESO). Level 3 Level 2 Level 1 Primary education Level

34 Main lessons and the way forward. Since Spain is at an early stage of development of the NQF for LLL it is too early to speak about particular problems. However, there is a challenge to link the two NQF development processes and to strengthen cooperation between all relevant stakeholders from all subsystems. Italy Introduction. Work aiming at establishing an Italian national qualifications and certification framework has been going on since In Italy, the State is responsible for the definition of the qualification achieved through the education system, whereas regions are responsible for VET. A concrete result of the development processes, on the way since 2006, is the recent reform in upper secondary education (72) introducing new levels defined by learning outcomes and reflecting the EQF level descriptors. It introduces three main secondary school pathways: general (lycées), technical and vocational education pathway, leading to five-year diplomas and learning outcomes linked to the EQF. Moreover, the vocational education and training system managed by Regions will operate according to agreed national occupational and training standards (consistent with the EQF levels). Three-year vocational qualifications and four-year vocational diplomas will be awarded. The implementation will start in September 2010 and will continue up to The work on the QF for HE has been under way since The first draft was prepared in 2008 and broad consultation process with the main stakeholders of the university sector was organised. Levels and descriptors. The structures of the NQF levels and level descriptors have not yet been defined, although there are components in place. Italy uses a learning outcomes approach and the EQF level descriptors as a basis for further developments. In the QF for HE, Dublin descriptors are used nationally for three cycles agreed within the Bologna process. More specific descriptors are being defined for each programme by universities. Short cycle qualifications will be defined by sub descriptors taking into account differences in specific elements of qualifications (e.g. workload, length, access etc.). Referencing to the EQF. The referencing report is expected to be prepared by Higher education qualifications have already been linked to the EQF levels; the three cycles of the Bologna structure have been referenced to EQF levels Main lessons and the way forward. The first lesson learned is that the establishment of the NQF is a very important national issue to give individuals a transparent way to obtain qualifications and to progress in their careers. However, it is still very complex and ambitious. The law that reformed Title V of the Constitution (2001) made this process even more complicated in view of the relationships between the State and the Regions (some regions are working to establish their own regional qualifications systems). This reform, combined with the autonomy of several stakeholders (regional authorities in regulating training; universities and schools; etc.) created a difficult situation to manage. The stakeholders involved are aware of the fundamental importance of a national system that should constitute the real infrastructure for different educational and labour market policies. Language differences and use of coherent concepts across sectors and stakeholders cause some challenges. 34

35 Recently introduced education and training reforms gave an indication that Italian VET and HE systems are increasingly being aligned with the European objectives on transparency and comparability expressed by Bologna process and the EQF. Netherlands Introduction. The Netherlands started preparations for a comprehensive NQF in January A first proposal was requested by and presented to the Ministry of Education in May The NQF is considered a crucial precondition for carrying out this referencing. In May 2011 an advisory report is written by the advisory commission for NLQF EQF. In this report the advisory group describes the NQF as it is submitted to the Ministry of Education Culture and Science. The comprehensive framework currently being developed builds on the qualifications framework for higher education developed (from 2005) in the context of the Bologna process. This culminated in the national qualifications framework for higher education in the Netherlands, which was verified by an independent external committee of peers, February The NVAO, the accreditation organisation for the Netherlands and the Flemish community of Belgium, guarantees implementation through the accreditation process, which is obligatory for all formally recognised higher education. Levels and descriptors. The levels and descriptors must be able to reflect the current Dutch education and training system in a realistic way. The introduction of a coherent set of learning outcome-based levels is seen as a key element in the framework as it will introduce a common language and a common reference which has been lacking. While taking into account the descriptors used by the EQF, the Dutch descriptors will have to reflect national traditions and approaches. The NLQF draft comprises nine levels. In the advisory, the descriptors are described in terms of knowledge, skills and responsibility and autonomy. Skills in the NLQF are developed into the application of knowledge, problem solving skills, learning and skills development, information literacy and communication skills. Referencing to the EQF Compared to the EQF, the NLQF contains an additional level. This level is an entry level which in short means; knowledge of a living and working environment. These levels are described in the advisory report. EQF NQF Entry Level The referencing process will formally start in the third quarter of 2010 and is expected to result in a draft referencing report to be presented to the EQF Advisory group at the end of the fourth quarter of It is emphasised that this referencing will be totally dependent on the introduction of a coherent set of learning outcomes-based levels covering the whole education and training system. The need to carry out the referencing to the EQF in parallel to the development of the NQF is seen as a particular challenge. Compared to Ireland and the UK, where NQFs were already in place before the referencing started, the complexity of the Dutch process is substantially increased. 35

36 Main lessons and the way forward. The NLQF is still in a developing stage. At the moment the NLQF advisory group is awaiting a response from the consultation and the Ministry of Education Culture and Science. Some stakeholders have questioned the added value of the initiative, highlighting the fact that the Dutch qualification system has undergone significant reform in recent years (both for VET and HE) and that yet further reform may prove counterproductive. In contrast, others see the new NQF as able to build on and added value to these reforms. The success of the Dutch process in the coming years will largely depend on whether the latter perspective comes to dominate the debate. Stakeholders close to the process stress the need to develop a comprehensive communication strategy in the coming period to ensure that as many stakeholders as possible are involved in developing the framework and setting it in place. A large majority agrees with the number of levels in the NLQF. It is important that, once EQF is widely implemented to investigate whether the National Qualifications are properly graded. The content of the NLQF should be described in a way that it is understandable for educators but more important for the business. Poland Introduction. A key element of system-based standardisation of professional qualifications in Poland was the execution by the Ministry of Employment and Social Policy of the project Elaboration and dissemination of national professional qualification standards, which was co-financed from the European Social Fund. The standardisation of professional qualifications can be treated as an introduction to the elaboration and implementation of a National Qualification Network that is compatible with the European Qualification Framework. Works on this were initiated in Poland in The Polish NQF has been initiated in direct response to international developments, the Bologna process and EQF. A draft proposal for a qualifications framework for higher education was finalised in 2007, but not implemented. Instead it was decided, following the adoption of EQF in April 2008, to pursue a comprehensive framework. This new NQF would build on the conclusions of the higher education framework but go beyond this and include all levels and types of qualifications. The expert proposal for the model of the Polish NQF is currently in the second phase of works (due to end ). Levels and descriptors. The draft NQF proposal, accepted by all main institutional stakeholders, consists of seven levels. The level descriptors are mainly inspired by the EQF and consist of the following key categories: (a) (b) (c) knowledge: (i) scope; (ii) depth of understanding; skills: (i) communication; (ii) problem solving; (iii) using knowledge in practise; attitudes: (i) identity/autonomy; (ii) cooperation; (iii) responsibility. Any other sectors (general education, HE, VET) are encouraged to develop the descriptors according to their specific needs and profile but always with clear reference to the core descriptors. This is exemplified by VET where the complexity of work tasks, autonomy in professional work and readiness to take responsibility for individual and group work (including intellectual, emotional and ethical aspects) have been taken into account. These specifications reflect the basic concepts of professional qualification standards introduced in Poland in recent years. It is important to note that all levels are open to vocational education and training. Referencing to the EQF. The referencing report is expected to be prepared in

37 Main lessons and the way forward. The NQF work has provided a platform for dialogue between stakeholders, in particular in education and training, normally working in separate bureaucratic and institutional segments. The NQF introduces an instrument for coordination which, so far, has been lacking. Potentially this may provide the basis for a more coherent system, reducing barriers to lifelong learning. A number of concrete challenges have been identified: - elaboration of a full balance of qualifications available in Poland, which will lay the foundations for the creation of an official register in the future; - analysis and drafting of legislative changes necessary for the implementation of NQF; - creation of institutions coordinating and overseeing works in respect of the NQF, and then ensuring their proper functioning; - gradual filling of the NQF with learning programme content, validation and quality assurance processes, to the point where a full description of the qualification system in Poland is created, in accordance with the requirements of the NQF Conclusion The EQF Spread Partner Member States stand at different stages of the NQF development process as demonstrated in the following Table: I. Conceptualisation and design Spain Italy Netherlands Poland NQF stages of implementation II.Consultation III. Official adoption and testing Bulgaria IV. Practical implementation UK Malta The Netherlands still has to decide finally on the precise scope and structure of their frameworks. In Italy debates on how to move forward are continuing: lack of agreement regarding the relationship between the regions and the federal level has delayed clarification. Poland, and Spain have largely decided on the overall scope and structure of their frameworks and are now focusing on completing (definition and agreement) level descriptors, the division of roles of different stakeholders, the responsibilities of institutions and the relationship between different subsystems (VET and HE in particular). Bulgarian NQF draft was finalised in June 2011, the consultation process will continue by the end of October A dividing line can be identified between countries in the use of learning outcomes or competence based approaches. The Netherlands and Spain have already carried out major national reforms based on learning outcomes and are using this for the new NQFs. Italy has carried out some learning outcomes based reforms, while Poland is relatively new to the learning outcomes approach. These different starting positions may influence the way NQFs move from conceptualisation to full practical implementation. It is interesting to note that the attention given to learning outcomes approaches is becoming stronger; Poland, for example, has initiated a broad programme to promote the use of learning outcomes in higher education, 37

38 systematically working with institutions and practitioners. UK has been working on EQF implementation for several years. The adoption of the qualifications and credit framework (QCF) for England and Northern-Ireland (in 2008) illustrates how frameworks evolve, in this case by firmly integrating credit transfer into the structure and accompanying practices. Many of the objectives of the different NQFs are quite similar, but also certain specific national objectives can be identified. An important objective for instance is the use of the framework developments to strengthen and better integrate validation of non-formal and informal learning. Most countries target a comprehensive NQF covering all levels and types of qualifications and based on a single national structure of qualifications levels and descriptors. In a number of cases framework developments have already been initiated in sub-systems and have occasionally developed into sub-frameworks, notably for higher education (as part of the Bologna process) and for VET. The NQFs differ in terms of number of levels. Italy and the Netherlands, still have to make a decision on the number of levels to be used in their frameworks. Most other countries have proposed or adopted eight levels. Only the UK (10-12) and Poland (7) have chosen different numbers of levels as most appropriate to the national needs. The level descriptors prepared so far show that countries are not merely copying EQF descriptors. Instead what can be observed is the development of descriptors specific to the national context and therefore varying considerably in terms of conceptual approach and detail. While this is a positive and necessary development, the available cases also include a strong common perspective. Concepts and words differ somewhat but the same basic approach is used when distinguishing between levels of qualifications. This is particularly noticeable in the way the third column (competences) of the EQF is interpreted nationally: terms like context, autonomy and responsibility play a key role in distinguishing between levels and for establishing a common core language to be used at national and European level. Major issues and challenges that stand ahead to all partner countries which are to implement their NQFs are the following: European NQFs are being developed under considerable external pressure. The speed may prove negative in the sense that countries may be tempted to create pro forma qualifications framework not sufficiently embedded in national structures and practices. The success of the NQF depends on the shift to learning outcomes. While being accepted as relevant by most countries and in most sectors, practical implementation is uneven and sometimes slow. The success of the NQFs depends on their ability to aid support functions like validation of non-formal and informal learning and credit transfer arrangements. The development of comprehensive frameworks runs the risk of becoming less fit for purpose for sub-systems (general education, VET and higher education). A challenge in the coming period will be to balance the need for overall permeability and the need for sector-wise specialisation and specificity. 38

39 Involvement of stakeholders varies between countries. NQF success is directly linked to the success in involving stakeholders and in being willing to discuss existing challenges openly. There will be a need to develop systematic monitoring, research and evaluation strategies. Indicators need to be developed to allow for better understanding of conditions for success (and for reaching end-users; individuals, employers). The success of the NQFs also requires that the following issues are addressed: Financial support for the development and implementation of the NQFs; NQFs developments embedment in the broader skills developments strategies linked to technological change, skills shortages in Member States; how NQF can better link inputs and outcomes; how can NQFs be used to develop new curricula and assessment procedures; how can NQFs be made visible to end users. The partner countries are at an early stage of NQF development (with the exception of Malta and UK). Only developments in the next few years will fully demonstrate the reform potential of the national frameworks and the extent to which they can improve existing education, training and qualifications structures and practices. Yet, the challenges indicated so far and the lessons learnt should be carefully taken into consideration in the development and implementation processes. Designing and implementing an NQF implies something more than agreeing on a set of technical features. Setting up an NQF is about creating a platform for dialogue involving a group of stakeholders as broad as possible. The depth of these dialogues is an important first indicator of the importance attributed to the NQF in different countries. High level of involvement (including disagreement and controversy) signals that the framework is taken seriously and will probably influence existing structures, practices and interests; a lack of dialogue, involvement and ownership may indicate a potentially limited future impact of the framework REFERENCING TO THE EQF MALTA 5.1. Malta Qualifications Framework The Malta Qualifications Framework (MQF) was launched in June 2007 as a first step in a long process to construct a whole quality system of qualifications as well as a culture that tallies with it. The following process of referencing the MQF to the European Qualifications Framework (EQF) is the consequent important step in rationalising the Framework with principles, indicators and mechanisms that will make the Framework relevant and effective to the Maltese educational system in a European context. This step was taken in September 2009 with the launch of Malta s Referencing of the MQF to the EQF and the QF/EHEA, published by the Malta Qualifications Council 18 For a comprehensive analysis of the implications of the development of NQFs for EQF, see Raffe D, Gallagher J and Toman N (2007/8), The Scottish Credit and Qualifications Framework: Lessons for the EQF, European Journal of Vocational Training, 42-43, pages

40 (MQC). This report was presented to the EQF Advisory Group that year, making Malta the second country, after Ireland, to reference its National Qualifications Framework (NQF) to the EQF, and contemporarily the first country to reference to the QF/EHEA. Malta s Referencing Report as a simultaneous approach towards referencing to both of these over-arching frameworks has been taken as an example by other countries referencing their frameworks. Malta s framework is also based on eight levels, just as the EQF, and comprises of both general/academic and vocation education, establishing the concept of parity of esteem between the two parallel streams. Malta has also updated its referencing report in December 2010, being the first country to present an update of its referencing process in implementation phase to the EQF AG in February Apart from generic updates, this consisted mainly of three innovations. The first is an elaboration of the role of stakeholders; the second a proposal for a national awards system based on the MQF; and the third being the introduction of validation of informal and non-formal learning in the school leaving certificate and portfolio being awarded following completion of compulsory education. Malta shall also be compiling and setting up a National Database of Regulated national Qualifications and Recognised Awarding Bodies. The MQF referenced to the EQF induces the concepts of level descriptors, learning outcomes, progression, transparency, recognition, and accountability. These concepts relate what is learnt and how it is learnt into what one is capable of knowing or doing. The scope of Malta s referencing report is therefore threefold: the first to ensure that qualifications are valuable and worthwhile learning experiences; the second that learning becomes borderless and frameless allowing learners the freedom to learn without bureaucratic, or superfluous constraints; the third is to build a culture of quality both in the provision and in the formation of a workforce capable of meeting the challenges of an increasingly sophisticated knowledge society and labour market Qualifications Frameworks identify Skills Needs One of the main thrusts of the referencing process is the application of a learning outcomes approach to describing qualifications. In Malta, the learning outcomes approach is gradually, yet steadily, becoming the dominant factor in describing qualifications and in ensuring that the referencing of such qualifications to the level descriptors of the qualifications framework is transparent, coherent and understandable. A major characteristic of the learning outcomes-based qualifications is the requirement that qualifications are demand-driven. At the end of a learning process the learner should have acquired those learning outcomes that would enable him or her to sustain their position within a changing labour market. A Council Resolution on new skills for new jobs emphasized the need for investing in human capital to enhance employability, to forecast skills needs and address and minimize skills gaps by matching qualifications with industry s needs. Such political decisions have an impact on the National, European and International competitiveness and economy, especially in times of economic crisis when investment in re-training and up-skilling is considered as a long-term sustainable solution. During the economic 40

41 crisis, even in Malta some companies operating on a four-day week have utilized the fifth day for training, an initiative which is supported by the national government. This gives evidence of the necessary public-private partnership that should be encouraged on an ongoing basis, not only as a measure in time of crisis. Many policy makers and researchers argue that skills needs assessment should be the product of Governments, employers or individuals; others argue that individuals and firms should identify skills gaps. In Malta there is consensus for a partnership between education and training providers and industry in identifying and forecasting the skills needed in fifteen to twenty years time. The forecasting results should be reflected in learning outcomes-based qualifications. Thus, learning outcomes must be future-oriented and must be the result of such dialogue between the training providers and stakeholders. A product of such synergy will be the outcomes of two ESF projects co-ordinated by MQC. The VQPACK deals with the visibility of demand-driven VET qualifications and SKILLS+ deals with the design, publication and promotion of occupational standards Description of Learning Outcomes: Knowledge, Skills and Competences Learning outcomes are statements that describe what a whole qualification represents in terms of the application of its components, namely knowledge, skills and competences. According to the definition of a NQF a learning outcome is what a learner understands and is capable of doing at the end of a learning process. Therefore learning outcomes prepare individuals for both employment and for further education and training. One way of measuring the learning outcomes of VET is through apprenticeship and of HE by course entry requirements. The learning outcomes system is inclusive as it integrates all learning with flexible learning pathways including informal and non-formal learning and there is not bound by time. Key competences, such as communication, especially in good English, are what employers look for, but they must be complemented by personal qualities such as selfpresentation and team work, which more often than not are the result of informal (experiential) learning and not necessarily acquired from school. The issue of selfpresentation applies to all sectors as the image is a key factor for employability. It is a prerequisite for all those working in particular sectors such as the tourism sector especially the catering industry which implies issues of hygiene. These qualities together with the key competences are important for every level of education but are even more necessary for individuals at Level 1 of the MQF to become employable. One of the key challenges today is to continue being employable and to face this challenge, one must be flexible and adapt to the fast business cycle and participate in the re-skill, re-educate and re-structure cycle.63 The Directorate for Quality and Standards in Education (DQSE) acknowledged the value of key competences, personal qualities and informal and non-formal learning. Thus MQC had a consultative role in the process of recognising such learning by certifying it in the newly re-designed School Leaving Certificate and Profile, which forms part of the national reform in the education system in Malta. Knowledge involves the understanding of basic, factual and theoretical information and is normally associated with formal learning and therefore with text books, with contact learning hours and as one progresses along the learning pathway one can engage in 41

42 research, and participate in seminars and conferences. However, knowledge can also be obtained from informal and non-formal settings. Skills involve the application of the acquired knowledge and understanding in different contexts. A skill may not necessarily be the result of formal learning and knowledge as described above. It may be the result of repetitive work in an informal setup. Competences involve concepts such as whether one is competent to exercise the skills with or without supervision, with or without autonomy and with or without responsibility. At the end of 100 months of compulsory education one is expected to achieve the basic key competences which are fundamental for pursuing studies at a postsecondary level and for employability in low-skilled basic jobs. The fact that an individual has a successful achievement in these key competences has an impact on the individual s performance, on the overall service at the work place, on one s employability and finally on the national economy. Thus there are supplementary courses such as the Merhba course provided by the Malta Tourism Authority which gives basic knowledge, such as basic Maltese history and communication skills to people who provide a service in the tourism sector. Such short courses and other similar initiatives give basic knowledge to people who are generally experienced and have skills and competences, foster the continuous professional development, and promote lifelong learning Setting Common Standards through Level Descriptors As a pre-requisite for the referencing of qualifications to the MQF and to the EQF the qualifications must be learning outcomes-based. Learning outcomes are statements that describe what a learner knows and is able to do at the end of a learning process. They are a combination of Knowledge, Skills and Competences. Knowledge is described as theoretical or factual. Skills are the ability to apply knowledge and use know-how to complete tasks and solve problems. Competences are associated with autonomy and responsibility. The nature of the level descriptors is generic as a neutral reference point so that they can be applied to all forms of qualifications whether formal, informal and non-formal as well as to all sectoral qualifications. They have the objective to set standards describing the progressing level of difficulty. The level descriptors of the MQF are more detailed than those of the EQF. This aspect provides further clarification and makes them more user-friendly and easy to use. Another feature of the MQF s level descriptors is that they are focused on the individual, the verb in singular form shows that the level descriptors are designed with the individual in mind. The level descriptors can be equated to qualifications criteria that measure complexity, volume and the level of learning expected for the particular qualification. They give a broad profile of what an individual should know and do with varying degrees of autonomy and responsibility. The MQF level descriptors are presented side by side to the EQF to facilitate a comparative understanding of both systems. Malta s level descriptors were built upon those published by the Government of Malta in Legal Notice 347 of 2005 when a first attempt to create a National Qualifications Framework was undertaken at that time. Malta s Qualifications Framework has been influenced by the eight-level classification of the EQF but it responds directly to a long-standing system of a Maltese qualifications system. As a matter of fact the original level descriptors of the MQF were approved in 42

43 June 2007 when the official National Qualifications Framework was launched by the Minister of Education. Assessment of progression is facilitated by the numbering of each component within the knowledge, skills, competences and learning outcomes fields which enhances comparison between levels. However, the level descriptors of the MQF are distinguished from those of the EQF because they include a list of learning outcomes which summarises the knowledge, skills and competences and which points out specific skills such as communications skills, judgmental skills and learning skills which progress throughout the framework. Progression in the MQF is not recorded in terms of knowledge, skills and competences but in terms of knowledge and understanding; applying knowledge and understanding; communication skills; judgmental skills; learning skills and autonomy and responsibility. The learning outcomes in all the MQF Level Descriptors are stated in the following order: 1. Knowledge and Understanding; 2. Applying Knowledge and Understanding; 3. Communication Skills; 4. Judgmental Skills; 5. Learning Skills; and 6. Autonomy and Responsibility The following table illustrates (in the highlighted text) a comparison between the Malta Qualifications Framework level descriptors and those of the European Qualifications Framework, portraying an example of Level 1. It is important to underline that the Maltese level descriptors reflect the education system and culture of Malta but can be substantially referenced to the EQF Level descriptors. In comparing the two sets of level descriptors, note has been taken of the Maltese longer version of describing the level of difficulty expected at each of the eight levels of qualifications. The style of writing level descriptors is typical of a system of education which lays particular emphasis on the explicit written context of describing qualifications. 43

44 The underlying principle behind the MQF and the EQF Level 1 qualification is that the learner is expected to have basic learning outcomes. The term basic is defined as elementary yet fundamental and which serves as a starting point. One should possess basic knowledge from one s immediate environment or from basic textbooks, and apply this knowledge to complete a limited range of simple routine tasks and to follow instructions. Both communication and key competences at this level are also basic. The tasks are accomplished following step by step guidance, and therefore one will not have full responsibility for one s actions. The responsibility will be shared with the person guiding the tasks. For the ensuing level descriptors and descriptions of each of the MQF Levels, one should consult Malta s Referencing Report (with special attention to pages 87-96) which can be accessed via the following link: 44

45 5.5. The credit system to validate all learning Malta s Qualifications Framework captures all levels and sectors in education. This referencing process consolidates the already existing credit system for HE that helps mapping existing and new qualifications to the Framework. Credit is a feature that measures the volume and the workload of learning and gives currency to qualifications. Assessment of learning outcomes entitles the learner to credit and therefore to a qualification recognized by the MQF. Credits are awarded for the assessment of outcomes achieved. MQC shall accredit full or partial qualifications offered by accredited institutions. Credits must be considered as the building blocks of qualifications and they can be accumulated and transferred. However, one must point out that transfer of credits depends on the mutual recognition of qualifications of the sending and the receiving institutions to be established through the signing of a bi-lateral memorandum of understanding. The MQF does not prescribe transfer of credits, as it deals with exit points, as access is at the discretion of the institution concerned which is regulated by its policies; however the MQF facilitates transfer of credits. Qualifications Frameworks which lack the feature of credit accumulation and transfer result in many dead-end qualifications which discourage lifelong learning. Employers tend to relate more with units of learning rather than simply full qualifications. This is so since units are flexible and can thus cater for industry s needs. The modern labour market seeks soft or transferable skills and specialist knowledge and skills. The value of credits for the MQF is based on the ECTS model so that credits are harmonised and compatible with other international education systems. The value of ECTS credits that 1 ECTS credit requires 25 hours of total learning has been agreed in the Bologna Process by the 46 participating countries. As a benchmarking device MQC is using this ECTS value of 25 total learning hours across all levels of the framework. This single credit system is easy to use and facilitates permeability between VET and HE. Full certification at level 1 is expected to reflect 40 credits of learning per year. From levels 2 to 7 learners are expected to undertake 60 credits of learning per year to achieve full certification at a given level. The value of 1 credit is equivalent to 25 hours of study of which, according to the Bologna Process 6.25 hours are contact hours and hours is the time allocated to self-study such as reading, research, seminars, conferences, tutorials, assignments, tests and related organized activities including informal and non-formal learning. This is calculated on the assumption that a learner follows 40 hours of full-time learning per week for 37.5 weeks per year, which is equivalent to a total of 1500 learning hours. Anything less than 40 credits per year for level 1 and 60 credits per year for levels 2 to 7 does not lead to full certification, and therefore such partial certification does not necessarily give access to the next level. In the case of VET, Malta is piloting the implementation of the ECVET system. At piloting stage, the approach being adopted is even more flexible here, where the benchmark is that of 1 credit being equivalent to 25 hours of study, but which does not as yet reflect specific divides between contact hours and self-study. This is due to the different needs of varying forms of VET education. Nevertheless, mutual trust is 45

46 garnered through the quality assurance of the achievement of the specified learning outcomes by the learner. All courses beyond 4 credits are being brought forward to the Malta Qualifications Council for quality assurance and level-rating. 1 credit = 25 hours of total learning* (contact hours, practical sessions, mentoring, self-study such as reading, research, seminars, conferences, tutorials, assignments and assessment and related organized activities such as informal and non-formal learning) For MQF Levels 2 to 7 60 credits per year X 25 hours of learning per credit = 1,500 hours total learning per year For Level 1 40 credits per year X 25 hours of learning per credit = 1,000 hours total learning per year The number of hours for compulsory education refers to the number of contact hours Malta s Referencing Process also advocates the inclusion of key competences within the learning process at varying levels in VET in order to provide the learners with a holistic nurture of education and equipping them with the necessary basic and ancillary skills. The number of credits and the minimum number of hours varies according to the percentage of Key Competences, such that Level 1 has 70% of the established credits 46

47 i.e. 70% of 40 credits which is 28 credits. Similarly the allocated time is also estimated as 70% of the total number of learning hours, which for Level 1is 1000 hours. A learner needs 700 of learning hours to achieve the set Key Competences at Level 1. This principle applies also to all levels and to the Sectoral Skills and Underpinning Knowledge aspects of the course. To find the number of credits for each competence, the total established credits for each level is divided by 8, which is the number of Key Competences. One of the components of the Key Competences at VET Level 1 is 3.5 credits (28 credits divided by 8). The same applies for all the 5 VET levels up to the VET Higher Diploma and for Certificates Levels 1 to 3. Malta s Referencing Report encourages trainers and teachers to adopt a system whereby taking into account that Key Competences are divided between those which are content-based and those which are transversal, credits can be distributed according to the level of Knowledge, Skills and Competences required by a particular group of learners. Nevertheless, teachers and trainers should consider this proposal as a flexible approach to ensuring that all learners achieve Key Competences during their course of studies. Key Competences should be considered as separate and unifying units at the same time, and therefore a mix and match of Key Competences would be desirable such as second language + cultural awareness; entrepreneurship + learning to learn; science and technology + digital competence Summary and conclusions The realms of education and training are an ever-evolving policy area, closely linked to labour market developments. Malta acknowledges the referencing process of the MQF to the EQF as an ongoing process. The latest version of the referencing report reflects the developments in 2010, yet an annual update of the report is expected to capture the emerging implications of the referencing process, particularly at post-referencing and implementation phase. Malta therefore recognises the importance for a sharp communication strategy and supports through an array of projects, namely supported through national funds, Leonardo da Vinci Lifelong Learning Programme projects, ESF projects and support by the European Commission through the EQF portal and possible grants for National Coordination Points (NCPs). The dissemination of information and consultation feature as a key aspect of the Maltese process, both at national and European level. This is the only way to rope in stakeholders in making the referencing process relevant to the Maltese scenario by sharing ownership. An imminent updated legislative framework is expected to widen the remit of MQC to include the validation of informal and non-formal learning and the setting up of Sector Skills Units, the accreditation of institutions and programmes; as well as quality assurance of qualifications other than that of compulsory education. The latter will serve as a system of checks and balances which promoted both national and international mutual trust. Malta is also seeking to align the use of various tools developed at national and European level which are relevant to the policy field and tie in the enhancement of the EQF, such as ECVET, EQAVET and ESCO. Such inter-related tools promote a common language which enhances transparency, mobility, quality and European 47

48 integration. Through the use of the level descriptors for all forms of learning including the validation of informal and non-formal learning, education is enhancing a more inclusive society as all learning is being valued irrespective of the setting within which it is acquired. 48

49 6. REFERENCING TO THE EQF UNITED KINGDOM (QCF) 6.1. The European Qualifications Framework and the QCF 19 Vocational and work-related qualifications are changing to become more responsive to the specific demands of employers and learners. They re becoming more relevant to employers needs and more accessible to a wider range of learners. An essential tool in this reform of vocational qualifications is the Qualifications and Credit Framework (QCF) the new framework for creating and accrediting qualifications in England, Wales and Northern Ireland. It is at the heart of a major reform of the vocational qualifications system, which will become simpler to understand and use, more accessible to a wider range of learners, and more relevant to learners and employers needs. The QCF has been referenced against the European Qualifications Framework (EQF). The EQF links European countries qualifications systems to each other and makes it easier to cross-reference qualifications between countries. The key aims of the EQF are to help develop a European-wide workforce that is mobile and flexible and to aid lifelong learning. The EQF will work as a translation device that makes qualifications easier to cross reference between countries. This will help workers and learners who are moving between countries, from job to job and from one educational institution to another. It will also help workers to explain and demonstrate their knowledge, skills and competences to employers in different countries and learners to understand their further education and training opportunities in other countries. For employers and learning providers, the EQF will make it easier to compare the level of qualifications from different national systems. This will support labour market mobility both between and within countries and sectors, and enable a much better match between supply and demand for knowledge, skills and competence. The EQF uses eight different levels that are based on the knowledge, skills and competence required to achieve the qualification. The eight levels cover the entire span of qualifications from basic (level 1, for example school leaving certificates) to advanced (level 8, for example doctorates) levels. Each level should, in principle, be achievable through a variety of education and career paths. The focus is on learning outcomes what a person holding a particular qualification actually knows and is able to do rather than on inputs such as the length of study. It s important to note that: the EQF doesn t replace existing national qualifications systems or require them to be adjusted in any way; it doesn t include qualifications or describe specific qualifications or an individual s competence referencing to the EQF is a voluntary process; the EQF has no regulatory function; 19 The Qualifications and Curriculum Development Agency. The European Qualifications Framework and the QCF 49

50 individual qualifications aren t referenced to the EQF the levels of a country s qualifications framework are referenced to the EQF s levels. How is the UK involved in the EQF? The QCF has been referenced to the EQF by the national coordination point (NCP) established in the UK. A country s NCP is the official body responsible for referencing their framework to the EQF. An NCP was established to reference the QCF to the EQF, jointly led by the Qualifications and Curriculum Development Agency (QCDA) in England, and the Council for the Curriculum, Examinations and Assessment (CCEA) in Northern Ireland, with membership from across the education, training and skills sector. The table below shows the NCPs in the UK. 20 How does the QCF align with the EQF? In England and Northern Ireland the referencing process has been completed, using criteria issued by the European Commission, and a report on the outcomes published ( The report sets out the stakeholders involved, the methodology for the referencing process, including the consultation that was undertaken, and the way in which the criteria were addressed. What happens next? The NCP for England and Northern Ireland will complete the final part of the referencing process by 2012 by exploring how all new qualification certificates, diplomas and Europass documents contain a clear reference, by way of national qualifications systems, to the appropriate EQF level. Once the NCP has related the QCF to the EQF, individuals, employers, and education and training providers across the UK will be able to compare individual qualifications both from different countries and from different education and training systems The Qualifications and Credit Framework 21 The QCF is a framework designed to support a demand led approach to skills based on the building up and transfer of credit awarded for learning in a flexible, responsive and inclusive manner. 20 The Referencing report for the UK as a whole is available from 21 Qualifications and Curriculum Development Agency: Report on referencing the Qualifications and Credit Framework to the European Qualifications Framework for Lifelong Learning. 50

51 The Qualifications and Credit Framework was formally introduced in 2008 following a two-year trial period. The QCF formed a major strand of the UK Vocational Qualifications Reform Programme, so its initial focus has been on vocational and related qualifications. The QCF is designed as an inclusive and flexible regulated framework of units and qualifications that are capable of recognising the widest possible range of quality assured learner achievements. It introduces a standard currency for achievement in the form of a framework of levels based on learning outcomes, as well as a system of credit. In addition to being the national framework for qualifications (other than higher education qualifications) in England and Northern Ireland, the QCF therefore has a wider application as a unit-based credit framework. The essential design principles of the QCF are: a system of levels, based on learning outcomes. The QCF contains nine levels: an Entry level (subdivided into Entry 1, 2 and 3) for achievements below those normally associated with general educational and vocational qualifications, plus numerical levels 1 to 8. Level descriptors define the complexity of learning or achievement required at each level. Entry 1 is the most basic in terms of the outcomes required, and level 8 the most advanced. a system of units and credit. One credit is based on 10 hours of learning (consistent with UK credit accumulation and transfer practice), regardless of where or how the learning takes place. All units in the QCF have a unique unit title, learning outcomes and associated assessment criteria, a credit value and a level. principles for assembling qualifications from units. All QCF qualifications must be based on units in the QCF, with rules of combination being applied to specify which units must be achieved for each qualification. principles for recognising prior certificated and non-certificated (that is, informal and non-formal) learning. a standard system of qualification titles. Titles consist of the qualification s level, a designation (Award, Certificate or Diploma) relating to its credit size (see Figure 1), and the subject or occupational area that the qualification covers. recognising organisations for particular functions in the QCF. Organisations may be recognised to develop units; to award qualifications; or to combine either or both of these functions with developing the rules of combination that define qualifications. a system of quality assurance that applies the same standards of operation and comparability to all units and qualifications within the QCF separation of design/awarding and regulatory functions. 51

52 Level and credit in the Qualifications and Credit Framework Source: Qualifications and Curriculum Development Agency 6.3. Credit and level The QCF is a new way of recognising skills and qualifications. It does this by awarding credit for qualifications and units (small steps of learning). It enables people to gain qualifications at their own pace along flexible routes. At present, it is hard to understand all the different types of qualification that learners hold - what level they are, how long they take to complete, what content they cover, and how they compare to other qualifications. The new framework will help present qualifications in a way that is easy to understand and measure. Every unit and qualification in the framework will have a credit value (one credit represents 10 hours, showing how much time it takes to complete) and a level between Entry level and level 8 (showing how difficult it is). There are three sizes of qualifications in the QCF: Awards (1 to 12 credits) Certificates (13 to 36 credits) Diplomas (37 credits or more). So in the new framework you can have an award at level 1 or an award at level 8. This is because the qualification type 'award, certificate, diploma' represents the size of a qualification, not how difficult it is. Each qualification title contains the following: the level of the qualification (from Entry level at the bottom to level 8 at the top) the size of qualification (award/certificate/diploma) details indicating the content of the qualification. 52

53 Simply by looking at the title of a qualification you will be able to see how difficult it is, how long it will take the average learner to complete, and its general content. To understand the level of difficulty of the units and qualifications in the new framework it might be helpful to know that GCSEs (grade A*- C) are level 2, GCE A levels are level 3 and a PhD is a level 8. Knowing this can help to position the difficulty and challenge of each level in the framework Design specifications of QCF units QCDA, the Department for Children, Education, Lifelong Learning and Skills (DCELLS) and the Council for Curriculum Examinations and Assessment (CCEA) have developed a guidance for those stakeholders writing units of assessment to meet the requirements set out in the Regulatory arrangements for the Qualifications and Credit Frame. 23 These guidelines focus on the principles and process of unit development and draw significantly on the documentation produced as a result of the Credit and Qualifications Framework for Wales (CQFW) project, the Northern Ireland Credit Accumulation and Transfer System (NICATS) project, the Scottish Credit and Qualifications Framework (SCQF) and additional guidance produced by QCDA during the first year of implementation of the QCF. The qualifications regulators have produced guidance on designing inclusive vocational qualifications to ensure organisations develop units that do not discriminate. It is anticipated that stakeholders will use these guidelines alongside this set of guidance, when developing good quality units for the QCF. The design specifications for QCF units of assessment are set out in the template in Annex A. The template is divided into two sections. The first section is for the set of achievements based on the specifications detailed. The second section of the template is for recording the additional information that accompanies the achievements. Some of the fields in the additional information section need to be completed such as the unit aim, while others are optional, such as the assessment requirements. Units can be generic and applicable to a range of contexts and qualifications. It is useful to consider the potential diversity of uses of a set of achievements when writing units. A unit of assessment does not dictate a particular curriculum, approaches to teaching and learning or assessment methods. These design specifications allow skills- or performance-related and knowledge- or understanding-related achievements from diverse contexts to be represented in a common format, making explicit how a learner achieves credit for a given unit. These sets of achievements can then be combined into coherent and meaningful qualifications. 22 Design specifications of QCF units from the Regulatory arrangements for the Qualifications and Credit Framework 23 Qualifications and Curriculum Development Agency: Guidelines for writing credit-based units of assessment for the Qualifications and Credit Framework. 53

54 The regulatory arrangements for the QCF allow skills- or performance-related and knowledge- or understanding-related achievements from diverse contexts to be represented in a common format, making it explicit how a learner achieves credit for a unit. These sets of achievement are then combined into coherent and meaningful qualifications. A unit of assessment does not necessarily dictate a particular curriculum or the approaches to teaching and learning. In many instances units can be generic and applicable to a range of contexts and qualifications. It is useful to consider the potential diversity of uses of a set of achievements when writing units. Definition of a unit The qualifications regulators require all organizations operating within the QCF to comply with all those design specifications relevant to their responsibilities. Units form the building blocks of all qualifications in the QCF. All units must have a unit title.. All units must contain learning outcomes. All units must contain assessment criteria. All units must identify a single level for the unit. All units must identify a credit value for the unit which specifies the number of credits that will be awarded to a learner who has achieved the learning outcomes of the unit. No design features may be added to this standard format. The unit format also includes additional information about the unit. Units of assessment and assessment methods. In order to provide greater flexibility assessment methods used with units vary and are not prescribed in the QCF, although the choice of method is influenced by the type of achievement and the purpose of the qualification to which it contributes. Each unit must be capable of being assessed independently from other units. Learners will be awarded the credit for each unit they achieve, irrespective of the unit s relationship to a qualification. This credit is awarded to recognize a set of achievements alone, and will be recorded by the awarding organisation on the personal learning record. For example, credits for a unit called Painting practice could be independently awarded, recognising the skills associated with that one skill in the arts. However, a range of other units, relating to other skills such as drawing practice, would have to be achieved before a full qualification in art and design could be awarded Anticipated benefits of the QCF For learners the QCF will: offer more freedom, choice and flexibility give easy access to information about the commitment needed for different routes to achievement, letting learners balance that commitment with family, work and other responsibilities allow them to build up credits at their own pace and combine them in a way that will help them get where they want to be 54

55 enable them to transfer credits between qualifications to avoid having to repeat their learning record all their achievements on an electronic learner record, encouraging them and others to value their past achievements For learning providers (schools, colleges, workplaces) the QCF will: enable them to design more flexible programmes, suitable to the individual needs of learners help them improve retention and progression rates by recognising smaller steps of achievement more frequently track all learners' achievements through the use of a unique learner number (ULN) and an individual's electronic learner record, giving providers standard information about each learner's past achievements help them describe achievements to employers and learners in a language that is easy to understand For employers the QCF will: help them to measure quickly the level and size of achievements of prospective employees enable them to get in-house training recognised within a national framework describe levels of achievement in terms everyone can understand make training options and pathways clear, helping employees and employers find the right training for their learning and business needs. A recent evaluation of the progress of the QCF has identified the following issues: The QCF has been populated with credit-based qualifications within a very short period of time. Awarding organisations and unit submitters did not always have full opportunities to learn from early experiences of the QCF. In some cases this may have had an impact on the extent to which the regulatory arrangements were satisfied. A unit that does not satisfy fully the design requirements of the QCF will not necessarily result in a poorly delivered or assessed unit. Often the supplementary materials produced by awarding organisations or assessment delivery by learning providers compensates for deficiencies in the way that the unit was designed. This raises questions about the value of aspects of the regulatory arrangements. The full range of flexibilities available within the QCF is not currently being used. There is an upward trend in the use of some design features. However, we need to consider whether the benefits of regulatory requirements that provide for infrequently used flexibilities outweigh the costs that might be incurred. The role of sector skills councils (SSCs) in the approval of QCF qualifications has resulted in confusion with regard to accountability. Some awarding organisations have felt compelled to use units and/or design qualifications that they did not consider to be fit for purpose. 55

56 The regulatory arrangements for the QCF are not in line with the more strategic approach to regulation that is being introduced. For example, the regulatory arrangements are based on the premise that all qualifications will be accredited by the regulators before they are made available to learners. This is no longer the case. The strategic approach to regulation requires the regulators to hold each awarding organisation accountable for its qualifications. The reported confusion about accountability when shared units are used must therefore be addressed. 24 As far as the future development of the QCF is concerned, the unit specifications are not necessarily as consistent with the design principles quoted above as is desirable. In particular, a restricted range of flexibility, for example in the use of shared units, is currently under-utilised and may involve questions over the value of current regulatory arrangement. There is also a tension in the operation of the QCF between the needs of the labour market as represented by the Sector Skills Councils [SSCs] and the accountability and return on investment by the awarding organisations who are often working in a competitive market. The current under-use of the provision for the Recognition of Prior Learning [RPL] may be a reflection of these issues, as well of the extent to which the complexities of funding arrangements may have resulted in an unwillingness of training providers to use these opportunities. 7. EQF-SPREAD. METHODOLOGY FOR REFERENCING. According to Cedefop 25, most countries of the EU are currently in a stage for the implementation and development of their National Qualifications Frameworks (NQF) and Sectoral Qualifications Frameworks (SQF); however, few of them have a NQF, which will allow for the convergence with the European Qualifications Framework (EQF) in 2010 and The main obstacles that hinder the implementation of the EQF in the EU countries are the lack of trust and the lack of a common approach among the public administrations, social partners, universities, companies and training centres. One of the objectives of the EQF-Spread project is to propose a methodology from the point of view of the labour market, taking into account the following aspects for the implementation and development of national and sectoral qualification frameworks: Status of occupations in the labour market, taking into account the economic crisis and the expected recovery and the aims established in the ET Need for transparency of qualifications and mobility of workers in the labour market using the description of qualifications in terms of learning outcomes. 24 Office of Qualifications and Examinations Regulation (Ofqual) (2011), The 2010 Evaluation of the Qualifications and Credit (QCF) Regulatory Arrangements, May, page 5, This report is published jointly by the qualifications regulators in England, (Office of Qualifications and Examinations Regulations (Ofqual)), Wales (Department for Education and Skills (DfES), and Northern Ireland (Ofqual for vocational qualifications; and the Council for the Curriculum Examinations and Assessment (CCEA) for all other qualifications). 25 CEDEFOP (2008). Introduction to the EQF. The role of Cedefop. Ankara. Cedefop. Countries with a National Qualifications Framework are Ireland, UK (England, Scotland and Wales), France and Malta. ZAHILAS LUKAS 26 EUROPEAN UNION (2008): Recommendation of the European Parliament and of the Council (April 2008) on the establishment of the European Qualifications Framework for lifelong learning. 56

57 Links with European instruments EQF, ECVET and Europass. Development of recognition systems of learning outcomes (knowledge, skills and competences) acquired through labour experience, non-formal and informal learning. Strengthening mutual trust among stakeholders for the implementation and development of NQF/SQF. And the consolidated experiences in the implementation of NQF / SQ in several countries of the UE as Malta and the UK Methodological references Following the document The dynamics of qualifications: defining and renewing occupational and educational standard (Cedefop, 2008). The formulation of educational standards as learning outcomes is seen as an effective way to aid the link with employment requirements, as they target competences. Standards of learning outcomes can be defined as statements of what a learner knows, understands and is able to do on completion of a learning process and are defined in terms of knowledge, skills and competences (Cedefop, 2008). Learning outcomes are at the heart of what is generally called competence-based education, meaning that education should enable students to acquire the competencies needed in their future profession and in society as a whole (Biemans). The focus is thus shifted from what is being taught and how it is being taught (input), to what a student will know and will be able to do (output/outcome). Other important references for the development of EQF-Spread methodology are extracted from the document: The shift to learning outcomes (Cedefop, 2008): 27 Functional analysis Mostly, functional analysis is used to derive learning outcomes or competencies for vocational education and training. This method has been in wide use in the UK for some time and, as indicated earlier, has often been used in some donor funded reform projects on labour market and VET developments This Report is available from 28 A note of caution is sounded by the following observation - The different forms of occupational analysis, if they are effective, provide a clear reference point for identifying learning outcomes for VET qualifications. There may be drawbacks: employers and other experts may still not be clear about current let alone future skills needs; the functional analysis may tend to define only the minimum knowledge and skills needed, or may tend too much towards technical or generic skills; and the competences needed for a specific job may not coincide with the competences needed by a well-rounded individual in today s society. Some analysts also draw attention to the risk of too high a degree of specification of outcomes which can lead to qualifications that are cumbersome to implement without necessarily becoming sufficiently transparent to the user (Allais, 2007). (Cedefop 2008:74) For recent research on the implications of Learning Outcomes for Qualification Frameworks, see the International Labour Organisation [ILO] Qualifications Framework Research Project (2009 -), especially Allais S et al (2009), Learning from the First Qualifications Frameworks, Employment Working Paper No. 45, pp.31-64, Employment Sector, Skills and Employability Department, Geneva: International Labour Office. 57

58 Bloom s taxonomy. In recent times, Bloom s taxonomy has been the most widely known way of categorising knowledge and skills. It has certainly had a direct impact on framing some approaches to learning outcomes, and we can expect that even where the formulation was not known directly to stakeholders developing learning outcomes schemes, it may still have had an indirect influence. The EQF formulation. It is well known that the EQF is expressed as a table of eight levels, each one defined by a series of statements relating to knowledge, skills and competences. The emphasis of learning outcomes is rightly identified with the need to define such outcomes within an inclusive approach to lifelong learning, rather than to be tied to particular kinds and phases of institutions, curricula and qualifications. EU key competencies. As part of the Education and training 2010 programme, the EU has also developed a set of key competences, working with expert groups representing Member States and through consultation (European Commission, 2005). The EU has preferred the term competence. The descriptors used for the eight key competencies are based on the categories knowledge, skills and attitudes. To date, no attempt is made to define them by level, except in the separately worked up areas of languages (Lenz and Schneider, 2004) and ICT 29. In addition, other important reference is the dictionaries of competencies, which are widely used, in big and medium companies in all the industrialised countries. It is considered that the competency dictionary may be a source of definitions to avoid gaining unique competitive advantage. In this sense, Hay Mcber (Spencer and Spencer) dictionary it is organized in several categories as: Customer focus, Communication, Team orientation, Technical expertise, Results orientation, Leadership, Adaptability and Innovation Selection of the key occupations The EQF-Spread starts with the selection and classification of the key occupations in the labour market in each participant countries. The key occupations were identified with the following references: name of occupation, level of ISCO classification, functional area, main function and tasks performed in each occupation, business activity in each occupation, according to the NACE classification, estimation of the EQF level, educational level required in the occupations, according to ISCED levels, evolution of the occupation whether is a traditional, new or emerging occupation. The occupations selected in the partner countries, distributed by sector, are the following: 29 CEDEFOP 2008, The shift to learning outcomes: Conceptual, political and practical developments in Europe. 58

59 Sector Agricultural Building Industry Transport Sales IT Hotel Services: Health Education Maintenance Key occupations Agricultural consultant Agricultural Labourer. Agricultural operative Building Labourer Construction Management. Engineer Manager (in construction) Baker Logistics technician Mechanical Engineering Technician Mechanics technician Truck driver for goods Truck driver Shop sales assistant Sales representative Computer systems designer Developer Hotel / restaurant manager Care nurse for individual care Environmental protection technician Long-term care nurse Social worker for care-dependent persons Social worker for care-dependent persons Educational assistant Trainer Cleaning assistant For the description of the learning outcomes in each occupation, EQF-Spread has used the categories of knowledge area, knowledge description, skills and competences. Knowledge area: reference area for the description of the qualification in learning units, composed of: knowledge, skills and competences. Each knowledge area is formed by a learning unit, composed of knowledge, competencies and skills. Knowledge. Know-what. Knowledge is the result of assimilating information through learning processes. It includes facts, principles, theories and practices related to a specific work field. It is identified with the educative system (formal learning). Skills. Know-how-to-do. It is the application of knowledge and the learning outcomes acquired through labour experience, in cognitive and practical terms. We should find them in the field of permanent training and in the job learning process. Competence. Know-how-to-behave. It is the application of knowledge in a working environment 30. This concept means the autonomy level in the 30 Tejada Fernández, J.; Navío Gámez, Antonio. «El desarrollo y la gestión por competencias profesionales: una mirada desde la formación». Grupo Cifo-UAB. Revista Iberoamericana de Formación. 59

60 performance of the job post and also the personal, social and organizational competencies required in each occupation. EQF-Spread considers knowledge and skills as different ways to identify the ability of workers to demonstrate their professional performance; and, on the other hand, the competences were considered as the way to face changing professional contexts in different aspects such as versatility and flexibility. Knowledge area OC01KA01 Preparation of the site, planting and the sowing of crops Example in the occupation of Agricultural labourer 31 Knowledge Skills Competences* OCO1KA01DK01 To define the specific types of soils, amendments and fertilisers and describe the site preparation operations. OCO1KA01DK01 To describe the different elements and crop sheltering and protection systems. OCO1KA01SK01 To carry out cleaning and clearance operations. OCO1KA01SK01 To carry out the basic works for infrastructure installation. OCO1KA01COM01 Autonomy level Competence in a reduced group of relatively simple working activities related to normalized processes OCO1KA01COM01 Personal competences. Ability of learning to learn. Draw up of the learning outcomes. Once qualitative and documentary investigation has finished, it is necessary to draw up the learning outcomes according to the following table, so the international inventory will present the same format in all cases. Example of action verbs for describing knowledge and skills and dimensions of the competence Knowledge Skills Competences To analyse To compare To know To state To build To define To describe To adapt To apply To classify To compare To compose To finish To draw up To contrast Autonomy Level Personal competences. Social competences. Organizational competences. In the task of describing and writing learning outcomes (knowledge, skills and competencies) EQF-SPREAD project seeks a common lexicon, using the following references: the principles of the European Qualifications Framework (EQF), verbs of action identified in Bloom's Taxonomy (cognitive domain) and the dictionary of skills Hay McBer, recommended by the OIT / Cinterfor. Description of knowledge. According to the terminology of MEC, knowledge means the outcome of the assimilation of information through learning. Knowledge is the body of facts, principles, theories and practices that is related to a field of work or study. In the context of the European Qualifications Framework, knowledge is described as theoretical and/or factual. For the description of knowledge in the EQF-SPREAD project we have used action 31 EQF-SPREAD (2011) Inventory of occupations. 60

61 verbs within the fields of knowledge, comprehension and of the analysis of the situations. Description of skills. According to the terminology of EQF, skills means the ability to apply knowledge and use know-how to complete tasks and solve problems. In the context of the European Qualifications Framework, skills are described as cognitive (involving the use of logical, intuitive and creative thinking) or practical (involving manual dexterity and the use of methods, materials, tools and instruments). For the description of skills in the EQF- SPREAD Project we have used action verbs within the fields of implementation, synthesis and evaluation Description of competences. The definition of EQF identifies competence as the proven ability to use knowledge, skills and personal, social and/or methodological abilities, in work or study situations and in professional and personal development. In the context of the European Qualifications Framework, competence is described in terms of responsibility and autonomy 32. In EQF-Spread we are proposing to use the following categories to describe the learning outcomes competences: Autonomy level. - No autonomy - Autonomous within the limits - Autonomous: responsibility and coordination. - Great autonomy to define projects. - Great personal autonomy: execution and evaluation. Key competences Communication in mother tongue. - Communication in foreign language. - Mathematics competence, science and technologies. - Digital competence: key competencies in ICT. - Ability of learning to learn. - Social and civil competences. - Sense of initiative and entrepreneurship. - Cultural expression. Social competences. - Customer Service Orientation. - Developing Self and Others. - Impact and Influence. - Initiative. - Interpersonal Understanding. - Interpersonal Understanding. - Self-Confidence. - Teamwork and Collaboration. Organisational competences. - Analytical Thinking. - Conceptual Thinking. - Concern for Order. - Flexibility/Adaptability. - Organizational Awareness. - Sets and Works to Meet Challenging Goals. - Team Leadership. - Teamwork and Collaboration. 32 Nowadays companies are working in changing environments, within organisations with a net structure, with high level of qualification workers and in high qualified equipments. Organizations must be able to innovate, learn and provide creative and intelligent solutions to each problem. This has caused that the Human Resources departments are looking for solutions to management and personal motivation problems. 33 EUROPEAN COMMISSION (2005): Recommendation proposal by the European parliament and the Council on the key competences for lifelong learning. Brussels, COM(2005)548 final 61

62 7.3. Criteria for the classification of learning outcomes In order to use a common structure for the description of learning outcomes, we will use the following codes: Occupation (OC), Knowledge area (KA), Knowledge (DK), Skills (SK) and Competence (COM). Diagram for the description of the qualification in the occupation Example of selected occupation Selected Occupations OC01 Agricultural Labourer. OC02 Mechanics technician OC03 Social worker for care-dependent persons Example of Identification of knowledge areas Occupation OC01 Agricultural labourer 34. Knowledge areas OCO1KA01 Preparation of the site, planting and sowing of crops OCO1KA02 Irrigation, fertilisation and application of treatment in crops OCO1KA03 Crop care and gathering 7.4. Products of EQF-Spread EQF-Spread uses the outcomes of this project in order to support the stakeholders in the implementation and development of the national and sectoral qualifications frameworks in each participant country. All the products are available in the web site in all the languages of the association. This site is free and everyone may access to all the services in the web site, find information about the project objectives, activities-, partners involved in it, tools and products, and express their opinion in the forum created for improving the outcomes of this project. 34 The contents derive from the qualification: AGA163_1 AUXILIARY AGRICULTURE ACTIVITIES. 62

63 EQF-Spread web site The tools and products available in this site are the following: Tool for the self-evaluation of knowledge, skills and competences. Tool for elaboration of the Europass CV. (see annex 3). A guide for the development of NQF and SQF in the countries. National reports and the international inventory of occupations. A guide for the European VET guidance Considerations on the EQF-Spread methodology Next you can see the partners valuation about the EQF-Spread methodology related to four important topics: advantages and disadvantages of the methodology, develop of sectoral qualification framework, importance of mutual trust, and vocational training, vocational guidance and competitiveness of the European companies. Regarding the advantages and disadvantages of using a methodology based on the EQF descriptors, partners appreciate the convenience of working with the National Occupational Standards 35. In the light of the experience of the NQFs in the UK [QCF & SCQF] the main requirement is for the coherent and systematic use of National Occupational Standards [NOS]. Such a methodology should be flexible enough to allow for variations in the culture and practice of occupations within Sectors. The main disadvantage is that such a methodology is usually based on a Functional Approach, which may distort the acceptable range of variations in professional practice in 35 National Occupational Standards (NOS) describe what a person needs to do, know and understand in their job in order to carry out their role in a consistent and competent way. In essence, they inform best practice by bringing together skills, knowledge and values. Lifelong Learning UK has worked in consultation with a wide range of employers, partner organisations, and stakeholders to develop NOS. This ensures they are relevant and fit for purpose. 63