Frameworks of Qualifications:The Irish Experience
Azerbaijan Seminar
Baku, 12th June 2007
Stuart GarvieNational Qualifications Authority of Ireland
The presentation
the Irish context
new legislation, new structures
development of a National Framework of Qualifications
Implementation of the Framework
The Framework and international development
The Irish context a small state – population 4.5 million (Azerbaijan 8 million)
centralised government
• weak regional / local structures
separation of ‘Education’ and ‘Training’
• across a range of government Departments
separation of previous qualifications systems
• schools
• further education
• training: agriculture, tourism, fisheries, labour
• higher education: institutes of technology, universities
Focus of provision for learning in Ireland
historically on the needs of young people
• investment of resources
• design of systems and structures
a childhood-to-young adult, pre-employment experience
concentration on school-to-college and school-to-training
development routes
demographic change: peak age cohort now app. 24 yrs.
a coherent national policy approach to qualifications
lifelong learning society
• new kinds of work and career
• need for a more flexible system of qualifications
• need for portability of qualifications
international comparison and alignment
• European policy trends and agreements – Lisbon, Copenhagen and
• Bologna, European Qualifications Framework (EQF)
A Framework of Qualifications – why?
Towards a coherent but flexible system….
what is required?
a framework for the development, recognition and award of
qualifications in Ireland
one framework to encompass all awards for all aspects of
education and training
a simple, transparent frame of reference
New legislation, new structures Qualifications (Education and Training) Act, 1999
three new organisations, 2001
• National Qualifications Authority of Ireland
• Further Education and Training Awards Council
• Higher Education and Training Awards Council
awards Councils bring coherence to the system
• replace seven previous systems of awards
• one awarding body for all further education and training (VET)
The new structures National Qualifications Authority of Ireland
• to develop and maintain a national framework of qualifications
• a system for coordinating & comparing awards
• awards based on outcomes - standards of knowledge, skill & competence
• to promote access, transfer and progression – incl. arrangements for credit accumulation and transfer
two Awards Councils
• to develop new systems of awards
• to make awards at all levels in the Framework
Developing the FrameworkA dual approach:
Strong legislative base: Qualifications (Education and Training) Act 1999
• Sets out and legitimises general basis of framework
Consultation and Research
• Identification of stakeholders: wide-ranging
• - representatives of all sectors of education and training community; social partners; state agencies; learners
• consensus-building and involvement of stakeholders:
• Stakeholder views sought formally and given serious consideration
• Consultative Group; also extensive series of bilateral and multilateral meetings
• transparency
• Communication of research findings, emerging policy approaches, decisions and determinations
The Framework: blueprint for change a new concept of a ‘qualification’, or an ‘award’:
an award is a recognition of learning outcomes
• not a recognition of participation in a programme or in any particular
learning process
• many programmes may lead to the same award
many new awards, new titles, new terminology
not a compendium of existing awards
not just a mapping of relationships between existing awards
no distinction made between ‘education’ and ‘training’
The Framework in outline
a structure of 10 levels
each level based on a range of standards of knowledge, skill and
competence
level indicators
Grid of 10 level indicators, defined in terms of 8 dimensions of
knowledge, skill and competence
Award-types
a central element in the Framework concept
a class of named awards – e.g. Honours Bachelor Degree, or
National Craft Certificate (pre-Framework award)
one or more award-types at each level in the Framework
an initial set of 16 major award-types defined
Classes of award-type
award-types are defined in four classes
• major award-types: for a typical range of outcomes at a level
• also minor, supplemental and special-purpose award-types
all 16 award-types in the outline Framework are ‘major’
the Framework will eventually have a variety of award-types at
each level.
Named awards a ‘named award’ is what a learner receives
a named award is for achievement in a specific field of learning –
e.g. Honours Bachelor Degree in Electrical Engineering, or
National Craft Certificate: Electrician (pre-Framework award)
a named award is associated with a level in the Framework
through the award-type to which it belongs
named awards to be developed by the awarding bodies
The Framework – levels and award-types
The National Framework of Qualifications – award-types and awarding bodies
Awards in the Framework - 1 new awards across all 10 levels
• made by the awards Councils (FETAC and HETAC)
school and university awards are accommodated
• general manner of inclusion is set out
policies and criteria published for inclusion in or alignment with the Framework for:
• professional awards
• international awards
Awards in the Framework - 2 Major Awards: principal class of award made at a level
Minor Awards: are for partial completion of the outcomes for a Major Award
Supplemental Awards: are for learning that is additional to a Major Award
Special Purpose Awards are for relatively narrow or purpose-specific achievement
Framework Implementation - I
FETAC has put in place arrangements for Framework awards at
levels 1-6
Implementation arrangements in higher education announced in
July 2004
• being implemented from autumn 2004 and used in 2005 CAO
Junior Certificate and Leaving Certificate included in the
framework
Framework Implementation - II HETAC
• using interim standards for all award-types
• delegating authority to make awards to institutes of technology University existing awards aligned with major award-types
• implemented for Ordinary Bachelor Degree, Honours Bachelor Degrees, Masters Degrees & Doctoral Degrees
• Policy approach agreed
• process underway within universities for Higher Diploma & Post-Graduate Diploma
• process underway for ‘smaller’ award-types DIT implementing all new major award-types; using some smaller ones
Existing & former qualifications
many familiar qualifications will no longer be awarded
intention is to map these qualifications to Framework
levels
most existing and former qualifications now placed
Framework and Quality Assurance - I An important dimension of Framework implementation:
credibility of Framework dependent upon it
Statutory quality assurance arrangements in place for the
following awarding bodies:
– State Examinations Commission
– FETAC
– HETAC
– Dublin Institute of Technology
– Universities
Framework and Quality Assurance - II Authority works closely with stakeholders in developing and enhancing
quality cultures across education and training system
• Statutory quality role in relation to FETAC, HETAC, DIT
• Consultative role in relation to HEA review of universities QA procedures
• Encourage common approaches, best practice throughout system, e.g.,
through Irish Higher Education Quality Network
Also relevant to national policies on internationalisation of Irish education
and training services
– use of Framework (including dissemination of information on placement of
awards and the associated quality assurance mechanisms) as part of the
proposed Education Ireland Quality Mark
Mobility for learners A key objective in the legislation
lifelong learning implies a more diverse learning community
more diverse needs
– to be able to gain an award in different ways, e.g. by accumulating credit for learning outcomes over time
– opportunity for entry – transparent, fair and consistent entry arrangements
– clarity about relationships between awards, and about transfer / progression routes
– accurate and reliable information
task – to maximise opportunities for mobility for learners
Improving mobility for learners need for a cultural shift
need to focus the concept of access on the achievement of an award (not
on entry to a programme)
need to focus measurement of success on outcomes rather than inputs
(e.g. time spent on a programme)
a comprehensive strategy, published in October 2003
– four policy strands: credit, progression routes, entry arrangements, information
provision
The Irish experience: notable features
Framework is part of a broad reform of the system of qualifications
New structures, new organisations
Dual approach – legislation and consultation
Framework contains new awards at all levels, but also many existing awards are included
Key concepts – level, level indicators, award-type, award-type descriptors, named award,
International or Meta-Frameworks Framework for Qualifications of the European Higher Education Area (adopted by
European Ministers, Bergen 2005) - the ‘Bologna Framework’
– verification of compatibility with the Irish national framework – completed November 2006
– One of first two countries doing this on a “pilot basis”
European Qualifications Framework for Lifelong Learning, (‘EQF’ - under development)
– triggered by an Irish EU Presidency conference
– proposal for basic structure nearing completion
– 8 levels, based on learning outcomes
Key role of the Authority in the development of both meta-frameworks
European Meta-Frameworks In both cases
• Primacy with the National Framework of Qualifications
• Quality assurance required in national arrangements
• Qualifications relate to national frameworks and frameworks
talk to each other through meta-frameworks
• Countries self-certify the link of their national frameworks to
European frameworks following established criteria and
procedures
Draft EQF levels
EHEA Framework (Bologna) NFQ Levels
NFQ Major Award-types
1 1 Level 1 Certificate
2 Level 2 Certificate
2 3 Level 3 Certificate, Junior Certificate
3 4 Level 4 Certificate, Leaving Certificate
4 5 Level 5 Certificate, Leaving Certificate
5 Short Cycle within First Cycle
6 Advanced Certificate (FET award); Higher Certificate (HET award)
6 First Cycle 7 Ordinary Bachelors Degree
8 Honours Bachelor Degree, Higher Diploma
7 Second Cycle 9 Masters Degree, Post-Graduate Diploma
8 Third cycle 10 Doctoral Degree, Higher Doctorate
11
2
4
6
3
5
7
8 8
7
6
5
4
3
2
1
9
1
2
4
3
5
6
EQFCountry A Country B
Qualifications(A)
Qualifications(B)
Further Information
all developments are featured on the website of the National
Qualifications Authority of Ireland: www.nqai.ie
Framework website: www.nfq.ie