Green Paper on the · While this paper addresses all qualifications related to the NFQ, the main emphasis is on tertiary qualifications and directly related matters. Black bold text

Green Paper on the Qualifications System

April 2020

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GREEN PAPER ON THE QUALIFICATIONS SYSTEM

TABLE OF CONTENTS

Preface ..................................................................................................................................................................2

1 Introduction.....................................................................................................................................................3

2 Whydoweneedtodiscussthequalificationssystemnow? ....................................................................5

3 Whatdowehopewillbeachievedfromthediscussion? ..........................................................................6

4 ExplainingsomekeyconceptsanddefinitionsusedinthisGreenPaper ...............................................7

5 Asketchoftheinfrastructurefortertiaryqualifications ........................................................................15

5.1 WhatistheNationalFrameworkofQualifications(NFQ)?................................................................15

5.2 WhatqualificationscanbeincludedintheNFQ? ..............................................................................16

5.3 WhatistheIrishRegisterofQualifications(IRQ)? .............................................................................17

5.4 WhateducationalstandardsapplytoqualificationsincludedintheNFQ? ....................................17

5.5 Howdopeoplegaintertiaryeducationalqualifications? ..................................................................20

5.6 WhatoccupationalstandardsexistinIreland? ..................................................................................20

5.7 Whatinfrastructureisinplaceforpredictingskillsneeds? .............................................................21

5.8 WhatEuropeaninfrastructureforqualificationshasbeenestablished? .......................................22

5.9 WhatisQQI’srole? ................................................................................................................................24

6 Questionsforstakeholders .........................................................................................................................26

6.1 Summaryofthequestions ...................................................................................................................26

6.2 Questionswithcommentary ................................................................................................................26

7 Next steps .....................................................................................................................................................33

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PrefaceInIrelandandinternationally,qualificationsarewidelysought,usedandrecognisedforamultitudeofsocial,economicandculturalpurposes.

Theyserveaseducationalgoals,andcommunicateachievementofknowledge,skillorcompetenceofvaryingmagnitudes.Theycanattesttothesuccessfulcompletionofinitialacademicorprofessionalformation,andalsoindicatecontinuingprofessionaldevelopment.Theycanhelparecruiterdeterminewhetherapersonhastheskillsrequiredtodoajob.Theycansignaltoaneducationalinstitutionthatanapplicantisadequatelypreparedtoenrolonaprogramme.Theycanaffirmindividuals’senseofself-worthandcontributetosocialinclusion.Theyarerelevanttolifelonglearningandcanserveassteppingstonestowardsmoreadvancedqualifications.Theycantakeavarietyofforms,withdigitalbecomingincreasinglypopular.Andtheymediatetrustbetweenqualificationsusers.

Becausetheyareubiquitous,wecaneasilytakequalificationsforgrantedandoverlookthehumanandmaterialelementsthatsupportthemandmaintaintheirrelevanceandtrustworthiness.

Theachievementsthatentitleapersontoaqualificationcanoccurinawidevarietyoflearningenvironments;ineducationalinstitutions;intheworkplace;inthehome;invirtuallearningenvironmentsandsoon.Qualificationsneedtobeunderpinnedbypedagogicallysoundeducationalprogrammesthataccommodatethediversityoflearnersthatexistinoursociety.Theyneedtobebasedontrustworthyassessmentoflearning.Theseunderpinnings,however,arenottheprincipalsubjectofthispaperexceptinsofarasnecessarytounderstandthequalifications.

Theemphasisinthispaperisonqualifications:oncharacterisingqualifications;onagreeingandmaintainingstandardsforqualifications;onrelationshipsbetweenqualifications;ontherecognitionofqualifications;onthesignallingvalueofqualifications;andonqualifications’influenceonlearningpathways.

WebelievethisisapivotaltimetofocusonhowIreland’stertiaryqualificationssystemisperforming.WewouldliketousethisGreenPapertolaunchaconversationwithqualificationsusersabouttertiaryqualifications,whetherthat’sfurthereducationandtrainingqualifications,highereducationandtrainingqualifications,orprofessionalqualifications.

Weaimtoengagealltypesofqualificationsusersinthisdiscussionincludinglearners,employers,parents,practitioners,occupationalassociationsandprofessions,providersincludingtheirstaff,regulators,tradeunions,theinternationalcommunity,andsooneitherdirectlyorthroughrepresentativebodies.

InthisGreenPaperwehavesetoutwhatwethinkisimportant.Now,wewantqualificationsuserstohelpuscompletethepicture.Duringthisperiod,wewillarrangebilateralmeetingswithkeystakeholdersaswellasevents(e.g.webinars,onlineworkshopsorotherkindsofeventsasprevailingconditionsallow)tofacilitatediscussionamongdiversestakeholders.Weencouragestakeholderstoarrangetheirowneventstofacilitatediscussionoftheissuesandcollectionofideas.

Followingtheendoftheconsultationprocesswewillpublishthefindings,athematicanalysisofthefeedbackandourresponsesettingoutthenextsteps.Wewillupdatethetwopapersandusethemtoinformourworkinprovidinginfrastructureforqualificationsandforcontinuingdialoguewithkeystakeholderstohelpbringaboutenhancementstothequalificationssystemthroughourcollectedcollaborativeefforts.

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1 IntroductionThisGreenPaper(adiscussionpaper)outlinestheIrishqualificationssystemandposessomebroadquestionsonpossibleopportunitiesforitsenhancement.ThecompanionTechnicalPaper(TechnicalPaperontheQualificationsSystem)providesmoredepth.

QQIwouldliketousetheGreenPapertolaunchadiscussionaboutIreland’squalificationssystembecausewebelievethatthisisapivotaltimetofocusonhowitisperforming.Weaimtoengagealltypesofqualificationsusersinthisdiscussion:learners,employers,parents,practitioners,occupationalassociationsandprofessions,providersandtheirstaff,regulators,tradeunions,theinternationalcommunity,andothers,eitherdirectlyorthroughrepresentativebodies.

QQIisinaparticularlygoodpositiontofacilitatediscussionaboutthequalificationssystembecauseitisthestateagencywithresponsibilityfor:

- the external quality assurance of tertiary1 education;

- themaintenanceoftheNationalFrameworkofQualifications(NFQ);

- themaintenanceofnationalpolicyandcriteriaforaccess, transfer and progression in relation to learners;and

- certificationoffurthereducationandtrainingqualificationsintheNFQ.

WhilethispaperaddressesallqualificationsrelatedtotheNFQ,themainemphasisisontertiaryqualificationsanddirectlyrelatedmatters.

Blackboldtextindicatesaterm-of-artfortheGreenPaperthatisdefinedintheTechnicalPaper’sglossary(iffrequentlyrecurring)orinanendnote.TheTechnicalPaperalsocontainsalistofabbreviations(e.g.NFQ).

AmongthemotivationsforpublishingthisGreenPaperare:

• theneedtounderstandbetterhowourtertiaryqualificationssystemworks(asacomplexadaptivesystem)andhowitisevolvingtomatchsociety’slifelonglearningandqualificationrecognitionneedswherethepaceofchange,beittechnological,scientific,economic,cultural,environmental,learnerdemographicorsocial,cansometimesappearalarminglyfast;

• theneedtodevelopanewpolicydirectionforQQI’sCommonAwardsSystem(CAS)andassociatedstandardsunderpinningthefurthereducationandtrainingsystem;

• theneedtoexplorethetransparencyofstandardsinhighereducationwithstakeholders,inthecontextoftheemergenceofmultiplenewawardingbodiesinthetertiarysectorincludingtheinstitutesoftechnology(nowdesignated awarding bodies (DAB)atNFQlevels1-9)andthetechnologicaluniversities;

1 Tertiaryqualificationsincludefurthereducationandtrainingqualifications;highereducationandtrainingqualifications;andprofessionalqualifications.

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• theneedtobevigilantinsafeguardingthenationalandinternationalreputationofIrishqualifications;

• theneedtoreflectonthequalifications-relatedinfrastructurerequiredtosupportemployment-orientedinitialandcontinuingvocational education and training1thatmayincludework-basedlearning;

• theneedtobetterunderstandnon-standardlearningpathwaysandqualificationssystempermeability;

• theneedtoensurethattheNFQcontinuestobeadequatelysupportedandinvestedwithmeaningbyitscommunitiesofpractice2.

ThewidebreadthofthisGreenPaperreflectsthefactthatbroadchangesinsomeoftheseelementsmustbeconsideredgiventheirimpactonthewiderqualificationssystem,andsuchelementscannoteffectivelybeconsideredinisolation.

WiththisGreenPaperanditsassociatedTechnicalPaper,weaimtolaunchadiscussionabout:

(i) tertiaryqualificationsandthe qualificationssystem;

(ii) the standardsthatunderpinthosequalifications,

(iii) the communitiesofpracticethatunderpinthosestandardsand

(iv) the learning pathwaysthatleadtoqualifications,occupationsandlifelonglearning.

We invite people to join with us in looking at these matters from a whole system perspective and not only from their own experience of the system.

TheGreenPaperandTechnicalPaperoutlineourthinking,someofittentative.SeveralbroadquestionsareposedintheGreenPaperforrespondentstoconsider.Thesepapersprovideoneperspectiveonlyandwewouldlikerespondentstoofferadditionalperspectives,especiallyontopicsthatareimportanttothem.Thereisnoneedforeachrespondenttoaddressalltheissues/questions.Wewillfacilitatediscussionbyarrangingoneormoreeventsbeforethecloseoftheconsultationprocess.

We have set out what we think is important and we want respondents to help us complete the picture.

Attheendoftheconsultationprocesswewillpublishthefindingsandourresponsetothefindings,andwewillupdatethetwopapers.Thosepaperswilltheninformourworkinprovidinginfrastructureforqualificationsandmaintainingdialoguewithkeystakeholderstohelpbringaboutenhancementstothequalificationssystemthroughourcollectedcollaborativeefforts.

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2 Whydoweneedtodiscussthequalificationssystemnow?

Herearesomeofthemainreasonsweneedtodiscussthequalificationssystemnow:

- IrelandhadbouncedbackrelativelyrecentlytovirtuallyfullemploymentafteraperiodofhighunemploymentfollowingtheglobalfinancialcrisisandnowfacesthechallengeofdealingwiththeconsequencesofCOVID-19.

- whilethemostrecent(2018)nationalemployersurvey3foundthatoverallsatisfactionwithhigherandfurthereducationgraduateswas86%and84%respectively,thereareopportunitiesforimprovement(e.g.commercialawareness,entrepreneurship).

- peoplearealreadytalkingabouttheacceleratingpaceofchangeandthe‘fourthindustrialrevolution’. 4

- infurthereducationandtraining(FET)5,forexample,wehaveseen: ¶ major structural changes in educational institutions (ETBs) and regulatory institutions(SOLASandQQI)inrecentyears;

¶ arenewedinterestinworkplacelearningandanincreaseinemployment-orientedinitialandcontinuingeducation;

¶ thepublicationofanewfive-yearFurtherEducationandTrainingStrategy(FET)2020-2024.

- inhighereducation,forexample,wehaveseen: ¶ theinstitutesoftechnologygainintrinsicawardingpowerstomakeawardsatNFQlevels1-96 on 1 January 2020 and become designated awarding bodies (DAB) as are Irishuniversitiesalready;

¶ theemergenceoftechnologicaluniversities(oneatthetimeofwriting);

¶ thebeginningofthereform7oftheHigherEducationAuthority(HEA)Act1971;

¶ the introduction of apprenticeships leading to higher education qualifications up todoctorallevel.

- Thereisarenaissanceofapprenticeshipsacrossthetertiaryeducationsystem(atNFQlevels5-10)andrenewedinterestmoregenerallyinworkplacelearningandincreasingemployment-orientedinitialandcontinuingeducation.

- Thelearnerpopulation,especiallyinhighereducation,isplayingagreaterroleinassistingwithqualityassuranceofeducationalprogrammes(courses)andinstitutions.

- ThereisconsiderableinterestinattractinginternationalstudentsandnewlegislationhasbeenenactedfortheInternationalEducationMark(IEM),tobeimplementedbyQQI.

- TheadvancingEuropeanqualificationsandqualityassuranceagendaandinfrastructure.- BrexitandCovid-19andtheirimpactonIreland’squalificationssystem.

Inparticularitistimelytoreflecton- thecontinuingsuitabilityoftheestablisheddistributionoflearningpathwaystoqualifications;

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- howoursystemengageslearners,employers,occupationalassociations,practitionersandotherusersofqualificationssothattheycanbetterunderstandandcontributetothedesignoflearningpathwaysandqualifications;

- howoursystemfacilitatestheefficientandreliablerecognitionofnon-formalandinformallearning8;

- theNFQ,after15yearsofimplementation,anditsinfluenceonthequalificationssystemandhowtoensurethatitcontinuestobeadequatelysupportedandinvestedwithmeaningbyitscommunitiesofpractice9.

3 What do we hope will be achieved by the discussion?

WehopethattheconsultationprocessforthisGreenPaperwillbeanopportunitytobringdiverseparticipants(individualsandorganisations)togethertoidentifytheexistingstrengthsofourtertiaryqualificationssystemandtohelpfindopportunitiesforimprovingit.Itisimportanttoengageusersofqualificationsnotonlyfrominsidetheeducationandtrainingsystembutalsofromoutsideitinthediscussions.

TheconsultationontheGreenPaperwillbeanopportunitytodeterminecurrentperspectivesbutthediscussionofissueswillneedtocontinueindefinitelyasthesystemevolves.

Weofferourselvesasfacilitatorsandenablersofthisdiscussion.Wecaneffectorinfluencesomechangeourselvesbutultimatelywearebutoneofmanyactorswithinthequalificationssystem.

Changing the qualifications system or even preserving strengths within it involves concerted efforts by a multitude of entities. We can easily forget that even the simplest qualifications require continual efforts by many diverse actors to maintain the necessary underpinnings for standards and relevance.

Theoutcomesofthisdiscussionmightcontributeto:

- agreatergeneralunderstandingofthequalificationssystem,itskeyinfrastructureandterminology;

- refreshedapproachestotheNFQanditsimplementation;

- newmethodsforusingexternalqualityassurancetohelpmaintainthestrengthsofthequalificationssystemandenhanceit;

- agreaterunderstandingoflearningpathways,howtheyimpactonthepermeabilityofthequalificationssystemandthefactorsthatinfluencethesustenanceandevolutionofnetworksoflearningpathways;

- theidentificationofopportunitiesfornewinfrastructureorinitiativesatqualificationssystemlevel;

- thestreamliningofQQI’sstandardsforFETqualifications;

- agreaterunderstandingofthepotentialof,andsupportforsubjectguidelinesforhighereducation;

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- thedevelopmentofarrangementsthatcanmakemoregranularinformationfromthelabourmarket(e.g.occupationalstandardsandmoregranularinformationonskills/labourshortagesfromthenationalskillsinfrastructure)availabletoinformthedesignofeducationalqualificationsandtheimplementationofprogrammes;

- enhanceddatacollectionandanalysismethodologythatcanhelpusbetterunderstandhowqualificationsarebeingusedandhowthequalificationssystemisfunctioning;

- theemergenceorgrowthofcommunitiesofpracticetohelpenhancequalitythroughthedisseminationofideasandexperiences;

- newideasabouthowtofacilitatethevalidationofnon-formalandinformallearning(RPL);

- greaterconnectivitybetweensuppliersofqualificationsandotherusersofqualifications,especiallyemployers.

4 ExplainingsomekeyconceptsanddefinitionsusedinthisGreenPaper

Weneedtobeginbysettingoutsomekeyconceptsanddefinitions.Pleasebearwithusasthesewillprovidethebasisforacoherentexchangeofviewsbetweendiverseusersofqualifications.

Pleasenotethattherearesomeinconsistenciesinthedefinitionsthatpeopleuse.Wewillpointoutsomeofthese.Theaimhereissufficientclarityforproductivediscussionandnotmathematicalprecision.

What is tertiary education?

Forthepurposesofthispapertertiaryeducationreferstoalloffurthereducationandtraining(FET),highereducation(HE)andprofessionaleducationandtrainingthatmayleadtoqualificationsfromlevel1tolevel10intheNFQ.ThisisarelativelynewusageinIreland.10

What is a qualification?

Aqualificationisgrantedtoanindividualwhenacompetentbodyformallycertifiesthattheindividualhasachievedknowledge,skillorcompetencetoaspecifiedstandard.Itistypicallyachievedfollowingsuccessfulcompletionofaprogramme11 of education or training(oftenabbreviatedtoprogramme)oraprocessforthe recognition of prior learning12oracombinationofthetwo.

Examplesincludecertificates,diplomasordegrees.Weconsidertheterms‘award’and‘qualification’ to besynonymous.

Qualificationsmediatetrustandarewidelysoughtafter,usedandrecognisedinoursocietyformultiplepurposes.

Why is trustworthiness important?

Naturallywewantourqualificationstobetrustworthy.Bythiswemeanthatuserscansafelytrustthatthequalifiedindividualhasbeenvalidlyandreliablyassessedtohavemettherelevantstandardandthatthestandarditselfreflectscurrentexpectationsamongrelevantstakeholders(especiallytheusersofqualificationse.g.employers,professionalorscientificcommunities,educationalinstitutionsusingthequalificationandsuchlike).

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Trustworthinessisimportantforourqualificationstobewidelyrecognisednationallyandinternationally.Itrelatestothevalueofqualificationstotheirusers.Thecredibilityoftertiaryqualificationsisimportantforthereputationofourqualificationssystem(includingitsinstitutions),andourcountrymoregenerally.

How is trust established?

Qualifications are so commonplace in our society that we can take for granted the various trust relationships on which they depend.

Trustinqualificationsrequiresabasis.Italsorequiresinfrastructuralsupportsandsanctionsagainstthosewhowouldabuseit.Qualificationsusersneedsimpleandeffectivewaysofdiscerningtrustworthyqualificationsandavoidinguntrustworthyones.

Thereliabilityandvalidityoftheassessmentofcandidatesforqualificationsisacriticalsuccessfactorinbuildingandmaintainingtrustinqualifications.IthasalreadybeenaddressedindetailinaseparateQQI Green Paper on the Assessment of Learners and Learning (2018).

The standardsunderpinningqualificationsarekeytoassessmentandtherecognitionofqualificationsbyusers.Inthiscontextastandardisastatementofknowledge,skillandcompetencethatagroupofconcernedactorshasagreedandinadditionitmayincludeastatementofexpectationsconcerningtheformationalprocessesthatleadtothoseoutcomes.Qualificationstypicallydependonacascadeofstandards.Forexample,amaster’sdegreeinengineeringwillmeetthefollowingstandards:

- theNFQ’sgeneralacademicstandardfortheaward-type;

- EngineersIreland’sprogrammeaccreditationcriteria;

- applicableoccupationalstandards;

- awardingbodyrequirementsintermsofknowledge,skillandcompetencetobeachievedforthespecificqualification.

Thetransparencyandsuitabilityofthesestandards,thelevelofengagementofconcernedactorsintheirdevelopment,andtheproceduresfortheirimplementationareallimportantforestablishingtrust.ThevariouskindsofstandardsarediscussedinmoredetailintheTechnicalPaper.

MuchoftheworkofQQIisconcernedwithprovidingtheterminologyandtools(suchastheNationalFrameworkofQualifications)thathelppeopletothinkandtalkaboutstandardsofknowledge,skillandcompetence;toexpressandcompareonestandardwithoneanother;andtousethemtosupportqualificationsandtheprogrammesofeducationandtrainingthatleadtothem.

What is a country’s qualifications system?

Ingeneral,acountry’squalificationssystemembodiesthediverseactivitiesthatunderpintrustinqualifications.AccordingtotheOECD13,aqualificationssystemincludes

“all aspects of a country’s activity that result in the recognition of learning. These systems include the means of developing and operationalising national or regional policy on qualifications, institutional arrangements, quality assurance processes, assessment and awarding processes, skills recognition and other mechanisms that link education and training to the labour market and civil society…”14

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The three key functions15 of a qualifications system are, according to (Allen, 2006)16:

- “social reproduction – supporting demarcations in knowledge and skills, promoting particular explicit/implicit values

- structuring pathways to employment and further learning, formalising progression routes and thus providing patterns of incentives for participation in education and training

- shaping learning through affecting the nature, structure and content of learning programs.”

What are learning pathways and why are they important?

Alearning pathway isarepresentationoftheprocessfollowedbyalearnertoachieveknowledge,skillorcompetence.

NFQ 6?

NFQ 5

NFQ 4

NFQ 3

NFQ 8

NFQ 7

FET PLC-Y2

FET PLC-Y1

FET L4-Y1

FET L3-Y1

Leaving Cert

Junior Cert

LC-BASED HE Y2

LC-BASED HE Y4

LC-BASED HE Y3

LC-BASED HE Y1LC-BASED HE Y1

LC-BASED HE Y3

LC-BASED HE Y2FET-BASED HE?

FET-BASED HE?

FET APPRENTICESHIP

FET-APPRENTICESHIP

Figure 1 Illustration of some of the main potential articulations on potential learning pathways. An actual pathway will require relevant qualifications and programmes to exist. FET-BASED HE means a HE programme that is designed to add on to (i.e. build upon) a FET programme. LC-based HE includes award programmes where the assumed entry standard is the LC. The width of the arrows is not proportional to the traffic. We have focussed on Levels 5-7 because this is where pathways tend to be most complicated. Please note that this figure is a simplification, some, may contest the representation of years 1 and 2 in 4-year Honours Bachelor degrees as being at L6, arguing that some elements of year-2 will be at L7 and some at L6, and some elements of year-3 will be at L8 and some at L7.

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Formallearningpathwaysinclude(i)programmes(offormaleducationandtraining)or(ii)sequencesofprogrammesthatleadtoqualifications.Thequalificationssystemincludesanetworkofsuchpathwaysthatlinkqualifications.

Qualifications can shape learning pathways.

Non-formalorinformallearningpathwaysarealsopossible.Thesedonotleaddirectlytoqualifications,buttheresultingachievementscanbevalidatedthroughaprocessfortherecognition of prior learning (RPL,seebelow)whichcanleadtoqualifications.

Forsome,thelearningpathwaytotheirdesiredqualificationsisclearlymappedoutthoughtheymayhavetocompetewithothersforaccesswherethereisascarcityofplacesonprogrammes.Forothersonalesstravelledpathwayprogressiontotheirdesiredqualificationmaybeblockedinthedirectionoftravelrequiringthemtodoublebacktoprogressalongadifferentpathway.

Itisimportantthatourtertiaryqualificationssystemandtheunderpinningtertiaryeducationsystemarepermeable17andcanenablepeopletoefficientlygainthequalificationsthatoursocietyneeds,inthenumbersthatitrequires.Thestockofqualifications,thenetworkofformallearningpathwaysconnectingthemandtheavailabilityofRPLallimpactonpermeability.

The learning pathway concept can help us visualise issues relating to the permeability of our qualifications system.

What do we mean by Recognition of Prior Learning (RPL)?

ThefollowingpairofdefinitionsistakenfromtheEuropeanCouncilRecommendationof20December2012onthevalidationofnon-formalandinformallearning(2012/C398/01).

“Recognitionofpriorlearningmeansthevalidationoflearningoutcomes,whetherfromformaleducationornon-formalorinformallearning,acquiredbeforerequestingvalidation.”

“Validationoflearningoutcomesmeansaprocessofconfirmationbyanauthorisedbodythatanindividualhasacquiredlearningoutcomesmeasuredagainstarelevantstandardandconsistsofthefollowingfourdistinctphases:

1. identificationthroughdialogueofparticularexperiencesofanindividual;

2. documentationtomakevisibletheindividual’sexperiences;

3. a formal assessmentoftheseexperiences;and

4. certificationoftheresultsoftheassessmentwhichmayleadtoapartialorfullqualification.”

TheAnnextothatrecommendationalsoincludesdefinitionsofformal,non-formalandinformallearning.Essentially‘non-formal’learningreferstointentionallearningachievementsoutsidetheformalsystemsand‘informal’learningreferstonon-plannedlearningachievementsarisingfromactivities.

RPLasdefinedhererequirescertificationof the results of the assessmentthatmayor may notleadtoaqualification.Thisisinconsistentwiththedefinitionswehaveadoptedforcertificationandqualificationwhichimplythatcertificationleadstoqualification.

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The recognitionofnon-formalandinformallearningisaspecialcasewithinRPL.Itdescribesaprocessusedtoevaluateskillsandknowledgegainedthroughlifeoutsideofformaleducationandtraining.OftenitiswhatpeoplehaveinmindwhentheyrefertoRPL.

Therearetwoclassesofrecognition:

“Formal recognition: [is a] process of granting official status to learning outcomes of knowledge, skills and competences either through:

- validation of non-formal and informal learning;

- grant of equivalence, credit units or waivers18;

- award of qualifications (certificates, diploma or titles)

and/orSocial recognition: [is the] acknowledgement of [the] value of knowledge, skills and/or competences by economic and social stakeholders.” (Cedefop,2014)

ThenumberofdifferentscenariosinwhichRPLmightariseisvirtuallyinfinitebutifweignorethesituationaldetailwecanidentifythefollowingscenario-typesasexamples:

A. Acquireaspecificqualification(includingexemptionsandsuchlike)thatisledtobyoneormorespecificprogrammes;

B. AcquireaqualificationforwhichthereisanNFQaward-typebutnoprogrammeandnospecific‘namedaward’.

How are qualifications linked with wider society?

The qualifications system is more of a social system than a deterministic one based on rules alone. Each user of a qualification has a role in the qualifications system. UsersandinfluencersofIrishqualificationsarenotconfinedtoIrelandandsoourqualificationssystemisinternationallyconnected.

Thequalificationssystemisacomplexadaptivesystemthatemergesfromthecollectedactivitiesofallusersofqualificationsincludingindividuals,institutions,associations,andcommunitiesofpractice.Consequently,itcanbechallengingtounderstandandtoanticipatetheimpactofpolicychange.Itcanbetemptingtoleavewellenoughaloneinsuchcircumstancesandindoingsomissopportunitiesforbetteralternatives.

Tounderstandqualificationsandhowtheyareused,weneedtounderstand,forexample:

- themechanisms(processesandactors)bywhichqualificationsareestablishedandmaintainedtomeetacountry’ssocialandeconomicneeds;

- howmeaningsareascribedtospecificqualificationsandtorelatedobjectssuchasstandardsandqualificationsframeworks19byspecificgroups20;

- themechanismsbywhichspecificgroupscanhaveconfidenceortrustinthevalueofspecificqualificationsforspecificpurposes;

- themechanismsforchangingqualifications.

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What do we mean by communities of practice?

Ithasbeenclaimedthat“qualificationsaresocial21constructsmorethantheyaretechnicalconstructs…”(Raffe,2013).So,weneedawayofdiscussingthesociologicalaspectsofqualificationsandrelatedmatters.

Communities of practice “are groups of people who share a concern or a passion for something they do and learn how to do it better as they interact regularly.”22ForWengeracommunityofpractice23 must involve(Wenger,1998,p.65):

- “mutualengagement”,

- “jointenterprise”and

- “asharedrepertoire”.24

Theseplayimportantrolesinthesupportofqualifications.

Professions25areparticularexamplesofcommunitiesofpractice.Anexampleofamoreheterogeneouscommunityofpracticemightbethecoalitionofemployers,providers26,professionalbodies,practitionerrepresentatives,andregulatorsthatmaybeinvolvedinsupportingaspecificoccupation-orientedqualification.

Any attempt to change a qualifications system would need to acknowledge, involve, and influence communities of practice and, where they are missing or fragmented, to create environments that favour their emergence and cohesion.

What are occupational standards and why do they matter?

Occupationalstandardsareimportantforvocationaleducationandtrainingatalllevelsbecausetheycanhelpexchangeinformationaboutskillsneedsbetweentheworldofworkandtheeducationsystem.

Occupational standards consistof“statements of the activities and tasks related to a specific job and to its practice”.Anoccupationalstandardstresseswhatapractitionerisexpectedtobeable to do.

Somedrawadistinctionbetweenanoccupationalstandardandanoccupationalprofile.Anoccupationalprofilecanbedefinedas “a description of the knowledge, skills, competences that a professional or worker must have to perform a task competently at the workplace.”27Itstresseswhataprospectivepractitionermust learn.Asdefined,anoccupationalstandardandthecorrespondingprofilemustbeconsistentwitheachother.Anoccupationalstandardcanbewrittentoincludeanoccupationalprofile.WherewerefertooccupationalstandardsintheGreenPaper,weassumethattheyaredraftedtoincludeanoccupationalprofile.

Wewillusethesameterm‘occupation’tosignifyafulltimeoccupation(e.g.anelectricianoranurse)oranactivitythatmayonlybepartofanindividual’sjob(e.g.handlingF-gases).Thestandardsofknowledge,skillorcompetencerequiredofpractitionersofsuchregulatedactivitiesfulfilthesameroleforactivitiesasoccupationalstandardsdoforfulltimeoccupations.

Anoccupationalstandardisgenerallylinkedtoacommunityofpracticecentredontheoccupation.Insomeoccupationsthestandardisfullyorpartlyprescribedbyregulation.However,regulationisnotaprerequisitefortheestablishmentofanoccupationalstandard.

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Whenoccupationalstandardsaremaintainedbytherelevantcommunityofpracticetheycan,amongotherthings,helpeducationandtrainingprovidersdevelopandmaintainprogrammesofeducationandtrainingformembersandprospectivemembersofthatcommunityofpractice.

Thequalificationsstandardsofeducationalawardingbodiescanoccasionallyserveasoccupationalstandardsespeciallyinemergingprofessions(e.g.ourstandardsforEarlyLearningandCarequalificationsatNFQlevels5and6).However,thereareadvantagesinseparatingstandardsforspecificeducationalqualificationsfromoccupationalstandards.

Inregulatedoccupations(e.g.electricianorprimaryschoolteacher),clarityaboutoccupationalstandardsisimportantsothat,forexample,professionalrecognitionbodiescantransparentlyrecognisequalificationsfromotherEUmemberstates.Ideally,theoccupationalstandardswouldbeexpressedintermsofknowledge,skillandcompetence.Inpractice,someregulatorssimplyrequirethatanindividualhasaspecificeducationalqualificationoraspecificclass/typeofqualification.Inothercases,theymayendorseaspecificeducationalqualificationasindicativeofthestandardthatmustbemetbypractitioners.Oftenprofessionalrecognitionbodiesnotonlyprescribecriteriaforqualificationsbutalsofortheformationalprocessesthatleadtothem.

How do educational qualifications relate to occupations?

Wedefineanoccupationalqualificationtobeonethatsignalsthatanindividualhasachievedthestandardrequiredtopractisetheoccupationaseitherafullorprobationarymemberoftheoccupationalcommunityofpractice.Otherkindsofoccupationalqualificationsmayreflectfurtherprofessionaldevelopmentorspecialisation.Occupationalqualificationscanbeformaleducationalqualifications.

How do educational qualifications compare with licences to practise?

Educationalqualificationsaresignificantlydifferentfromlicences to practiseeventhoughthereisoverlapbetweenthetwo.Anoccupation-orientededucationalqualification:

- canhelptoprepareorenableapersontopractiseinthatoccupation;

- resultsfromanassessmentofanindividualataspecifiedtimeandispermanentevenifthepersonceasestomeetthelearningoutcomescertifiedbyit;

- maybeenoughtoattesttoaperson’sfitnesstopractiseatthetimeitwasachievedbutcannotattesttotheircontinuingfitnesstopractisebecausetheeducationalqualificationholderortheoccupationalrequirementsmaychange;

- canonlybewithdrawnifimproperlyacquirede.g.throughcheating,thoughitmayloseitscurrencyinthequalificationssystemifsuperseded.

Licencestopractise,ontheotherhand,arenormallyforafiniteperiodandindicatethatapersonhascurrentcompetence,amongotherthings.Suchlicensesmaybewithdrawn,suspendedorvariediftheperson’scompetencediminishes(e.g.becauseitatrophiesorbecauseitisnolongercurrentonaccountofnotbeingrefreshed).

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What scopes of activity are relevant?

The QQI Green Paper on Assessment of Learners and Learning 2018,hasdistinguishedbetweenmacro-,meso-andmicro-levelscopesofactivityandthesameclassificationwillbeusefulhere.Forexample:

MACRO MESO MICRO

ExamplesofactorsoperatingatthemacrolevelincludeQQI,whichoperatesforthemostpartatthislevel,andtheDepartmentsofEducationandSkills,BusinessEnterpriseandInnovation,andEmploymentAffairsandSocialProtection;otherentitiessuchastheHigherEducationAuthorityandSOLAS,theNationalSkillsCouncil,theExpertGrouponFutureSkillsNeeds,IBEC,ICTU,ISME,andsuchlikeandinitiativessuchasFutureJobsIreland.

Infrastructureatthislevelincludes:Cumasú—Empowering Through Learning (DESStatementofStrategy2019-2021),NFQ,QQIPoliciesandcriteriaforaccess,transferandprogressioninrelationtolearners;theNationalSkillsStrategy.

Thislistisnotexhaustive!

Examplesofactorsoperatingatthemesolevelincludequalificationsawardingbodies(includingQQI),professionalrecognitionbodies,occupational28 regulators,employersectoralrepresentativegroups,tradeunions,occupationalcommunitiesofpractice,largeemployers,andlargeeducationalinstitutions

Examplesoractorsoperatingatthemicrolevelincludediversequalificationsusers,smallproviders,smalltomediumemployers,individualpractitionersofallkinds

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5 Asketchoftheinfrastructurefortertiaryqualifications

Thissectionisprovidedforinformation.Wehopethatitwillhelpreaders,whererequired,tosituatetheiractivitiesinthewidercontextofqualifications.Thematerialisdescriptiveandprovidedwithoutcommentary.Weaddress

1. The NFQ

2. qualificationsthatcanbeincludedintheNFQ

3. theIrishRegisterofQualifications

4. educationalstandardsthatapplytoqualificationsincludedintheNFQ

5. routestotertiaryeducationalqualifications

6. theinfrastructureinplacetopredictskillsneeds

7. Europeaninfrastructureforqualifications

8. QQI’s role

Note that for simplicity we use the term ‘include’ in the NFQ, anticipating legislation that has not yet commenced at the time of writing.

5.1WhatistheNationalFrameworkofQualifications(NFQ)?

The NationalFrameworkofQualifications(NFQ)isasystemoflevelsofqualifications.Itassumesthatthelearningrequiredforanyeducationalqualificationcanbedescribedintermsofknowledge,skillorcompetenceandthatthesecanberepresentedbystatementsinwriting.TheNFQisthemostwidelyrecognisedmacro-levelinfrastructureforqualificationsinIreland.

QQI’spoliciesandcriteriaonaccess, transfer and progressionarepartoftheNFQ’ssupportinginfrastructure.Theyareconcernedwithlifelonglearningandthepermeabilityandtransparencyofthequalificationssystemandtheyguideprovidersandqualificationsawardingbodies.

The NFQ

- providesaward-typedescriptorsthatprovidegeneral(non-subject-specific)standardsofknowledge,skillandcompetencefortypesofaward(qualification)(e.g.thehonoursbachelor’sdegree)

- providesabasisformorespecificstandards(ofknowledge,skillorcompetence)forqualifications(awards);

- facilitatescommunicationaboutqualificationsandcomparisonbetweendifferentqualificationsbothofwhichfacilitatethenationalandinternationalrecognitionofqualifications.

- promotestheuseoflearningoutcomeswhichareusedinthedesignofprogrammesofeducationandtraining,andprocessesfortherecognitionofpriorlearning,leadingtoqualifications.

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TheoperationoftheNFQisgovernedbytheQualifications and Quality Assurance (Education and Training) Act 2012 (the“2012 Act”)asamendedbythe Qualifications and Quality Assurance (Education and Training) (Amendment) Act 2019 (the “2019AmendmentAct”).Collectivelythislegislationisreferredtoasthe 2012Act(asamended).

5.2WhatqualificationscanbeincludedintheNFQ?

Designated awarding body qualifications

Theuniversities,includingtechnologicaluniversities,theRSCIandtheinstitutesoftechnology,arealldesignated awarding bodies(DABs).TheinstitutesoftechnologyhavebeenDABssince1January2020inrespectofawardsuptoandincludingNFQLevel9.DABsareprovidersthatmaketheirownawards;theyareresponsiblefortheassessmentandcertificationofcandidatesfortheirawards.

QQI qualifications

QQIalsomakesawardsacrossthe10levelsoftheNFQ.Wehavenodirectinvolvementinprogrammeprovisionandnodirectroleintheassessmentofcandidatesforourqualifications.Werequiretheinvolvementof providersofprogrammesofeducationandtrainingtoarrangefortheassessmentofcandidatesfortheQQIawardstowhichtheirprogrammeslead.Weareindirectlyinvolvedinprovisionthroughtheexternalqualityassuranceofprogrammesleadingtoourawardsandtheirproviders(asinstitutions).

QQIdeterminesandpublishesstandardsforitsawardsincollaborationwithstakeholders(standardsadvisorygroups).TheNFQaward-typedescriptorsprovidethemostgeneral(leastspecific)QQIawardstandards.OtherQQIawardstandardsaremorespecific.Thespecificitiesofdifferentstandardsvarydependingonsituationalneeds.

Qualifications awarded under delegated authority

QQIcanalsodelegate authority(DA)tocertainproviderstomaketheirownawards.Currentlythisauthorityonlyextendstodoctoralqualificationsofcertaininstitutesoftechnologyinspecifiedfields.The education and training boards areamongtheotherkindsofprovidersthatareeligibletorequestdelegatedauthority(DA).AwardingbodiesthatrelyonDAarerequiredtouseQQIawardsstandards.

Listed awarding bodies

Inthefuture,itwillbepossibletoincludethequalificationsofotherkindsofbodiesintheNFQthroughaprocessoflisting.The2012Act(asamended)hasintroducedtheinnovationofalisted awarding body (LAB)thatcanhaveitsawardsincludedwithintheNFQ.ALABmaybeaproviderbutitisnotnecessary.

Qualifications that are not currently included in the NFQ

ManyimportantqualificationsarenotcurrentlyincludedintheNFQ.SomeofthesemaynotrequireinclusionintheNFQinordertofunctioneffectivelywithinthequalificationssystem.OthersmightberenderedmoreusefulbybeingincludedintheNFQand,asaconsequence,havingtheassociatedprogrammesqualityassuredinlinewithnationalnorms.Insomecases,nationalpolicyorlaworEuropeandirectivesandsuchlikemaystimulatethedemandforqualificationstobeincludedintheNFQ.

ForadministrativeconvenienceitcanbeusefultoclassifythequalificationsthatarenotincludedintheNFQasfollows:

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- non-NFQqualificationscertifiedbybodieswhereeducationistheprimaryfocus;

- vendor-specific,vendor-certifiedqualifications(e.g.ICTqualifications);

- professionalbodyqualifications;

- emergingqualificationstypese.g.DigitalBadges29 30;

- someEnglishlanguagequalifications31.

ListingawardingbodieswillenablesomeofthesequalificationstobeincludedwithintheNFQ.Weanticipate,forexample,demandforlistingfromtheawardingbodiesalreadymakingawardsinrespectofETBprogrammesandfromsomeprofessionalbodieswhomaywishtohavetheirprofessionalawardsincludedwithintheNFQ.

5.3WhatistheIrishRegisterofQualifications(IRQ)?

TheIrishRegisterofQualifications(IRQ)isprovidedforbySection79oftheQuality and Qualifications Act 2012.Itwaslaunchedin2019byQQIandwillbearepositoryforsynopticinformationaboutqualificationsthatareincluded32intheNFQandtheirassociatedprogrammes.Whenfullyimplementeditwillprovidemuch-neededinfrastructuretofacilitatemobilityandtherecognitionandunderstandingofqualificationsintheNFQ.

What digital platforms exist for individuals’ qualifications portfolios?

Itissufficienttonoteherethatthisisanemergingareathatislikelytobecomeincreasinglyimportant.ItisdiscussedinmoredetailintheTechnicalPaper.

5.4WhateducationalstandardsapplytoqualificationsincludedintheNFQ?

Firstofall,theNFQaward-typedescriptors33constitutegeneralisedstandardsforallqualificationsincludedintheNFQ.TheyarebenchmarkstatementsaboutthelearningachievementsrequiredtoattainparticularNFQaward-typese.g.anHonoursBachelor’sDegreeoranAdvancedCertificate.

Awardingbodiesareexpectedtomaintainmoredetailedstandardsfortheirownqualifications.We refer to these as awards standardsorsimplystandardswherethemeaningisclearfromthecontext.

StandardsforresearchdegreesaresupportedbytheNationalFrameworkforDoctoralEducation34.

Designated awarding body awards standards

Essentially,eachDABneedstodetermineanaward standardforeachofitsNFQqualifications.35 These arepublishedbysomeDABsontheirwebsitesintheformofprogrammeoutcomes36.SuchawardsstandardsmustbeconsistentwiththeNFQ.

QQI awards standards

QQIawardsstandardsapplytotheawardsitmakesandtoawardsmadebyprovidersunderdelegatedauthority.

QQIiscurrentlythemainawardingbodyforfurthereducationandtrainingqualificationsandanicheawardingbodyforprivateindependenthighereducationqualifications.AllFETawardsintheNFQare

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madebyQQI.Wemaintainandpublishabout1800FETawardsstandards.Inhighereducationourawardsareonlyasmallfractionofthetotal(e.g.in2017weawardedapproximately7%ofallhonoursbachelor’sdegrees).

QQI’s PolicyforDeterminingAwardsStandards(especiallysection3)outlinesitsapproachsuccinctly.Herewehighlightsomefeaturesoftheimplementationofthatpolicy.

QQIawardsstandardsvarywidelyintheirspecificity.Theyarenot,however,thelastwordonstandardsforQQIawards.ThisisbecauseQQIawardsarenormallyachievedfollowingsuccessfulcompletionofavalidatedprogrammeofeducationandtraining.Theoutcomesofsuchprogrammesprovidethemostspecificinformationonwhatmustbeachievedinordertoqualifyfortheawardtowhichtheprogrammeleads.Minimum intended programme/module learning outcomesareapprovedbyQQIaspartofaprogramme validationprocess37.

QQI higher education awards standards

CurrentlythereareseveraldifferentkindsofQQIawardsstandardsoperatinginhighereducation:

- theoriginalNFQaward-typedescriptors(e.g.thehonoursbachelor’sdegreedescriptor);

- theNFQprofessionalaward-typedescriptors(thesearedesignedtobeusedinconjunctionwithotheraward-typedescriptorsandmaybeannotatedtoguidetheirinterpretationinspecificapplications);

- wideormediumbreadthstandards(theseapplytofieldoflearningawardstemse.g.QQIhighereducationawardsstandardsforbusiness,scienceorengineering);

- occupation-specificstandards(e.g.AwardsStandards—Architecture);

- genericstandardslinkedwithimplicitexternalstandards(e.g.HonoursBachelorofLaws);

- genericstandardsthatexplicitlyreferencemeetingexternalrequirements(e.g.thoseoftheTeachingCouncil).

Manynon-genericQQIHEawardsstandardsareexpressedusingacombinationofbothfield-specificstatementsofexpectedlearningoutcomesandtheNFQlevelindicators.Differentapproacheshavebeentakentothestyleanddepthofpresentationofthefield-specificstatementsoflearningoutcomeswithinHEawardsstandards.Differentdisciplinestendtofavourdifferentwaysofexpressingstandards.

ThehighereducationawardsstandardstendtobeclosertotheNFQintheirgeneralityandoverallpresentationthanasetofminimumintendedprogramme/modulelearningoutcomes(MIPLOsandMIMLOs)thatmightbeproducedforaspecificprogrammeofhighereducationleadingtoanamedaward.AndtheytendtobefarmoredetailedthantheNFQlevelindicatorsandcanbestbethoughtofasinterpretationsoftheNFQwithinaspecifiedscopeordiscipline.Generally,theycoverNFQlevels6-9.

BroadHEawardsstandardsareintendedtocomplementeachotherwhereappropriate,forexampleaB.Sc.inbusinesswouldbeexpectedtorefertothescienceandbusinessstandardsandsatisfyboth(i.e.treatbusinesssubjectsasthescientificcore).

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QQI further education and training awards standards

Again,thereareseveraldifferentkindsofQQIawardsstandardsoperatinginfurthereducationandtraining:

- theoriginalNFQaward-typedescriptors(e.g.theAdvancedCertificatedescriptor);

- theNFQprofessionalaward-typedescriptors(thesearedesignedtobeusedinconjunctionwithotheraward-typedescriptorsandmaybeannotatedtoguidetheirinterpretationinspecificapplications,forexample,therecentlypublishedawardsstandardsforEarlyLearningandCareatNFQlevels5-8);

- wideormediumbreadthstandards(e.g.thebroadstandardsunderdevelopmentatNFQlevels1-4);

- occupation-specificstandards(e.g.AwardsStandards—EarlyLearningandCareandsomeCommonAwardsSystemstandards);

- tightlyfocussedstandards(e.g.manyoftheCommonAwardsSystemstandardsfallintothiscategory);

- awardsstandardsthatexplicitlyadoptexternalstandards(e.g.thosespecifiedinlegislationorbyregulatorybodies).

The CommonAwardsSystem(CAS)comprisescompoundawardspecifications(formajor,specialpurposeandsupplementalawards)andcomponentawardspecifications(forminorawards).ThedefinitivepolicystatementoftheCASsystemissetoutintheQQIdocumententitledPolicy for Determining Awards Standards.ThefollowingtablelaysoutthenumberofCASawardspecificationsbyNFQlevelandawardclass.ThebulkisatNFQlevels5and6.CASawardspecificationsarerelativelydetailed.Thisexplainswhytherearesomanyofthem(around1800atpresentreducedfromabout2000atthestartof2019).

Table 1 Analysis of CAS awards by class and NFQ level.

Level Major Component Special purpose

Supplemental

1 2 25 0 0

2 1 26 0 0

3 4 117 1 0

4 15 117 6 0

5 84 667 63 0

6 111 504 41 1

Total 217 1456 111 1

Educational standards for qualifications leading to apprenticeships

QQIandDABsmayawardNFQqualificationstoindividualswhosuccessfullycompletenationalapprenticeshipprogrammes.

ThegeneralstandardsformajorawardsthatmarksuccessfulcompletionofanapprenticeshiparetheNFQ Professional Award-type Descriptors,interpretedinconjunctionwithQQI’sTopic-SpecificStatutoryQualityAssuranceGuidelinesforprovidersofStatutoryApprenticeshipProgrammes.

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5.5Howdopeoplegaintertiaryeducationalqualifications?

Formalqualificationsmaybegainedfollowingsuccessfulcompletionofaprogrammeofeducationandtrainingorfollowingaprocessthatvalidatesnon-formalorinformallearningachievementssothattheycanbecertified.ThelatterprocessisincludedinthemeaningofRPL(recognitionofpriorlearning).

HighereducationqualificationsincludedintheNFQarecurrentlyavailabletothosewhocompleteprogrammesorRPLprocesseswith:

- universities;

- technologicaluniversities;

- institutesoftechnology;

- independent/privateHEproviders.

FurthereducationqualificationsincludedintheNFQarecurrentlyavailabletothosewhocompleteprogrammesorRPLprocesseswith:

- educationandtrainingboards(ETBs);

- Teagasc;

- BordIascaighMhara(BIM);

- SOLAS;

- independent/privateFETproviders.

Programmesofeducationcanbefulltime,parttimeorflexible;theycaninvolveface-to-facetuitioninaneducationalinstitution,work-basedlearning,onlinetuition(remoteteaching,learningandassessment),orblendsofanyofthese.

5.6WhatoccupationalstandardsexistinIreland?

Occupationalstandardsareimportantherebecausetheycanbridgetheworldofworkandtheeducationandtrainingsystem.Suchstandardscanprovideanaccessibledescriptionoftheoccupationalroleandresponsibilitiesandknowledge,skillsandcompetences(sometimesabbreviatedtoskills)requiredtoundertakethem.

TheimplementationofoccupationalstandardsinIrelandisfragmented.OccupationalstandardsinIrelandwheretheyexistareestablished,maintainedandcommunicatedindiverseways.Forexample,theymaybe

- establishedbyregulators(e.g.CORU);

- maintainedoradoptedbyprofessionalbodiesonastatutory(e.g.RIAI)ornon-statutorybasis;

- setoutinIrishorEUlegislation;

- establishedbyanindustry-ledapprenticeshipconsortium;

- embeddedinjob-descriptionsofmajoremployers(e.g.theHealthServiceExecutive).

Thereisnocentralrepositoryforoccupationalstandards.

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Example: occupational profiles for apprenticeship

Anoccupationalprofileforanapprenticeshipisatypeofoccupationalstandard.Itisdefinedas:

…the knowledge, skills and competencies which will be developed by an apprentice on completion of her/his apprenticeship. It will propose the duration of the apprenticeship and qualification level on the National Framework of Qualifications (between Level 5 to Level 10) 38. (ApprenticeshipHandbook)

Anoccupationalprofile(OP)isrequiredforeachnationalapprenticeship—therearecurrentlymorethanforty.TheynormallyspecifyanNFQlevelandvaryinthestyleanddepthofcommunicationofexpectedknowledge,skillandcompetence.Theyaredevelopedbytherelevantapprenticeshipconsortium.Anapprenticeshipconsortiumisanindustry-ledcoalitionofemployersandtrainingprovidersandotherstakeholders.Inareaswherethereareoccupationalassociationsandregulatorsonemightexpectthemtobeinvolvedaswell.

The term consortium is the name given to the industry-led group which develops an apprenticeship programme and oversees its roll out and ongoing relevance to the needs of industry. The consortium includes education and training providers (Apprenticeship Handbook).

OPsareformallyapprovedbytheApprenticeshipCouncil.Theprocessfortheapproval(butnotthedevelopment)ofoccupationalprofilesisdescribedin Developing a National Apprenticeship—Handbook (ApprenticeshipHandbook).Thecriteriaforapprovalofanoccupationalprofileare:

- there is adequate industry support for the apprenticeship and

- there is no excessive overlap (in general, no more than 50%) with an existing apprenticeship. (ApprenticeshipHandbook)

5.7Whatinfrastructureisinplaceforpredictingskillsneeds?

The NationalSkillsCouncil39isanadvisory,non-statutorybodyundertheremitoftheDepartmentofEducationandSkills.Itstermsofreferencedetailitsfunctions.Itincludesrepresentativesfromseniorlevelsinthepublicandprivatesectorandit:

- overseesresearch;

- advisesonprioritisationofidentifiedskillsneedsandonhowtosecuredeliveryofidentifiedneeds;

- playsakeyroleinpromotingandreportingonthedeliveryofresponsesbyeducationandtrainingproviderstothosepriorities.

ANationalSkillsStrategyto2025hasbeenpublishedanditincludesdetailedsetofobjectives,actionsandindicators.

TheExpertGrouponFutureSkillsNeeds(EGFSN)forecastsfutureskillsneedsandproducesregularreports.ItreportstotheNationalSkillsCouncil.

TheNationalSkillsCouncilalsoreceivesreportsfromtheSkillsandLabourMarketResearchUnit of SOLAS(SLMRU).TheSLMRUprovidesreportsforSOLASandtheEGFSN.Itmaintainsa‘NationalSkillsDatabase’.

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ANetworkof Regional Skills ForahasbeencreatedaspartoftheGovernment’sNationalSkillsStrategy.Theyareintendedtoprovideorenable:

- “a single contact point in each region to help employers connect with the range of services and supports available across the education and training system

- more robust labour market information and analysis of employer needs to inform programme development

- greater collaboration and utilisation of resources across the education and training system and enhancement of progression routes for learners

- a structure for employers to become more involved in promoting employment roles and opportunities for career progression in their sectors”40

FutureJobsIrelandisarelativelynewinitiativethat

“will drive our development as a resilient, innovative, and globally connected economy, capable of coping with technological and other transformational changes ahead.”

SkillnetIrelandisastateagencyundertheumbrellaoftheDepartmentofEducationandSkillsthatis“dedicated to the promotion and facilitation of workforce learning in Ireland”41.Currentlyitfundsover50‘industryrepresentative’groups.

Datarelevanttothefunctioningofthequalificationssystemisgathered,compiledoranalysedbyQQI,HEA,SOLAS/SLMRU,EGFSN,CSO,ESRI,DES,CEDEFOP,OECD,Revenue,EUROSTATandothers.Incertaincircumstances,theCSOcancombinePPSN-taggeddatafrommultiplesourcestostudypatternsinqualificationshistories,accesstoqualificationsandprogressiontoemployment.Notethatpersonaldataisnotexposedinthepublishedreportsofsuchanalyses.Thisisanareawheresignificantprogresshasbeenmadeinrecentyears,forexampleinanalysingtransitionsbetweenfurthereducationandhighereducation.

5.8WhatEuropeaninfrastructureforqualificationshasbeenestablished?

InthissectionwelookataselectionoftheavailableEuropeaninfrastructurethatimpactsonourqualificationssystem.TheTechnicalPaperprovidesmoredetail.Insummarytheseare:

- theEuropeanQualificationsFramework

- the Bologna Framework

- theTuningAcademy

- theCommonEuropeanFrameworkofReferenceforLanguages(CEFR)

- theEUKeyCompetenceFramework

- theEuropeanSkills,Competences,QualificationsandOccupations(ESCO)classificationsystem

5.8.1EuropeanQualificationsFramework(EQF)

TheEQFisa‘meta-framework’andqualificationsnormallyobtainanEQFlevelthroughtherelevantnationalframework.Amongotherthings,itprovidesabasisforcomparingqualificationsindifferent

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countries.ThenationalqualificationsframeworksofallEUmemberstatesarerequiredtobereferencedtotheEQF,andQQIhasbeendesignatedbytheDepartmentofEducationandSkillsasthebodyresponsibleforcompilingthereferencingreportontheIrishNFQtotheEQF.

5.8.2BolognaFramework

TheFrameworkforQualificationsintheEuropeanHigherEducationArea(EHEAincludes49countries)isoftenreferredtoinformallyastheBolognaFramework.Itisameta-frameworkforhighereducation.ItisconsistentwiththerelevantsetofEQFlevels.

“The Framework for Qualifications of the European Higher Education Area provides descriptors for the short cycle (that can be linked to or within the first cycle), the first, second and third cycles of higher education. Each cycle descriptor offers a statement on the achievements and abilities associated with the qualifications awarded at the end of that cycle. The EQF is compatible with the qualifications framework for the European Higher Education Area and its cycle descriptors. The short cycle (that can be linked to or within the first cycle), the first, second and third cycles of the qualifications framework for the European Higher Education Area correspond to EQF levels 5-8 respectively.”, (EU, 2017)

5.8.3Tuningacademy

There are Tuning42 referencepointsforthedesignanddeliveryofdegreeprogrammesformanydifferentmainstreamhighereducationsubjects(e.g.Physics,Chemistry,BusinessandMusic).TheTuningdocumentstypicallyaddressoutcomesforeachoftheBolognacyclesaswellascurriculumandassessment matters.

5.8.4CommonEuropeanFrameworkofReferenceforLanguages(CEFR)

TheCouncilofEurope’s(COE’s)CommonEuropeanFrameworkofReferenceforLanguages:Learning,Teaching,Assessment(CEFR)

“was designed to provide a transparent, coherent and comprehensive basis for the elaboration of language syllabuses and curriculum guidelines, the design of teaching and learning materials, and the assessment of foreign language proficiency. It is used in Europe but also in other continents.” 43

5.8.5EUKeyCompetenceFramework

“Keycompetencesandbasicskillsareneededbyallforpersonalfulfilmentanddevelopment,employability,socialinclusionandactivecitizenship.”44ThemostrecentrecommendationoftheCounciloftheEUonkeycompetencesisavailableonline.

5.8.6EuropeanSkills,Competences,QualificationsandOccupations(ESCO),ISCOandSOC2010

“ESCOisthemultilingualclassificationofEuropeanSkills,Competences,QualificationsandOccupations.”45ItisoutlinedintheESCOHandbook.46OnlineaccesstoESCOresourcesisavailableviaanonlineportal47.

ESCOisanambitiousprojectbutisstillaworkinprogress.Itmaybeausefultoolformakinginternationalcomparisons.TheESCOqualificationspillar48 resonates with the Irish Register of Qualifications.NotethatthereisaqualificationsectionontheESCOportalandatthetimeofwriting8161qualificationsareincluded.

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ESCOisrelatedtotheInternationalLabourOrganisation’sISCObut(significantly)providesadditionalfunctionalitye.g.ontheclassificationofskills.

SOC201049 isafour-digitclassificationsystem,amodifiedversionofwhichisusedinIrelandbytheCSOandSLMRU.ItservesasimilarfunctiontoESCO.

TheISCEDfieldofeducationandtrainingclassificationissometimesusedintheanalysisofthesupplyofskills.TheESCO(orSOC2010),beingmoregranularandmoreattunedtooccupations,wouldbebettersuitedtothat.

Other resources

TheUKeducationandtrainingsystemshavemuchincommonwithours.ThismeansthatinstitutionsinIrelandcanbenefitfromUKresourcesforexampleQAAsubjectbenchmarkstatementsandNationalOccupationalStandards.

5.9WhatisQQI’srole?

Asthenationalqualificationsandqualityassuranceauthorityforfurtherandhighereducation,QQIhasseveralkeyroleswithinthetertiaryqualificationssystemthatprovideitwithauniquevantagepointfromwhichtoobserve,contributetoandinfluencethesystem.

QQIrolesinclude:

- maintainingtheNationalFrameworkofQualificationsandrelatedinfrastructure;

- developingandmaintainingtheIrishRegisterofQualifications;

- recognisingqualifications;

- listing50awardingbodiessothattheirqualificationscanbeincludedintheNFQ;

- awardingNFQqualificationsforthepublicsectorFETinstitutionsandmanyotherFETproviders;

- awardingHEqualificationsforprivatesectorhighereducationinstitutions;

- determiningstandardsforitsawards;

- validatingprogrammesleadingtoitsownawards;

- delegatingauthoritytoproviderstomakeawards;

- externallyqualityassuringFETandHEinstitutionsandlistedawardingbodies;

- authorisingproviderstousetheInternationalEducationMark;and

- conductingandreportingonsystem-levelanalyses.

TheNationalFrameworkofQualificationsisperhapsthemostwidelyrecognisedqualifications-orientedinfrastructurethatQQImaintainsatthenationallevel.QQIalsohasacentralroleinguidingprovidersonestablishingproceduresforaccess, transferandprogression(ATP).PolicyandcriteriaforATPareconcernedwithlifelonglearningpathwaysamongotherthings.QQIisresponsiblefortheNationalAcademicRecognitionInformationCentre(NARICIreland)whichprovidesadviceontheacademicrecognitionofforeignqualifications.

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What does QQI’s external quality assurance involve?

Thelast5pointsintheprecedinglistillustratevariousaspectsofexternalqualityassurance.Itisimportantforthereputationandcontinuingenhancementofourqualificationssystem.Ithelpsmaintainthenecessarytrustrelationships.Ourexternalqualityassuranceprocessesaredesignedtoworkintandemwiththeelaborateinternalqualityassurancesystemsprovidersestablishtosupporttheiractivities.

How does QQI effect change?

QQIcanhelpeffectchangebyexertinginfluenceonthequalificationsenvironment(e.g.throughNFQandrelatedpolicies,awardsstandards,qualityassuranceguidelinesandprocesses)andonthemainqualificationssystemactors(e.g.policymakers,otherawardingbodies;providers,employers,regulators,professional/occupationalassociations,learners).

QQIdoesnotcontrolthequalificationssystembuthelpstosupportitandwherenecessarytoeffectchangeidentifiedincollaborationwiththestakeholders.

All QQI activities (e.g. maintaining the NFQ, determining standards, quality assuring institutions and programmes) typically involve collaboration and consultation with stakeholders. Their perspectives influence ours at least as much as ours theirs.

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6 QuestionsforstakeholdersThisGreenPaperisacondensedversionofaTechnicalPaperthatsetsoutmultipleissuesfordiscussion.WeappreciatethatmanywillprefertoengagewithusonbroaderissuesratherthanonthemoredetailedissuescoveredintheTechnicalPaperandQuestions1to7(below)havebeenpreparedwiththatinmind.Naturally,wewouldlikesometorespondtothedetailedissuesintheTechnicalPaperandQuestion8belowmakesthisexplicit.

Each question is accompanied by a commentary. The commentaries are intended to aid interpretation of the questions by prompting the reader to reflect on a selection of relevant topics from the Technical Paper—the selection is not intended to limit the scope of responses. The commentaries may contain some supplementary questions to facilitate readers’ engagement with the main question. Again, these are not intended to limit the scope of the main question. The length of a commentary is not a measure of the importance of the question. We are interested in receiving macro-, meso-, or micro-level ideas in response to the questions.

6.1Summaryofthequestions

1. Whatmightbedonetoenablestakeholdersoutsidethetertiaryeducationsystemtoexertgreaterinfluenceontheshapingofthetertiaryqualificationssystem?

2. Fromaqualifications’perspective,whatmightbedonetohelppromoteamorepermeablequalificationssystem?

3. Canyouthinkofwaysinwhichthequalityassurancesystemcouldbeenhancedtobettersupportthequalificationssystem?

4. Whatkindofadditionaldatadoweneedtobetterunderstandthequalificationssystem?

5. WhatisyourvisionforeducationalstandardsforFETqualificationsinIrelandandhowmightitbeimplemented?

6. Whatcanbedonetohelpincreasethetransparency,consistencyandfitnessforpurposeofthestandardsforhighereducationqualificationsthatareincludedintheNFQ?

7. Howcanthequalificationssystemsupport,promoteawarenessof,andbuildconfidenceinRPL?

8. DoyouhaveviewsonanyothertopicsaddressedintheTechnicalPaper?Ifso,pleasetellusaboutthem.

6.2Questionswithcommentary

1. What might be done to enable stakeholders outside the tertiary education system to exert greater influence on the shaping of the tertiary qualifications system?

Range of perspectives

Analternativeformulationofthisquestionmightbe:Howcanwepromoteadeeperengagementonqualifica-tionsmattersbyawiderrangeofpeopletoassistinthelong-termmaintenanceofourqualificationssystem?

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AsdescribedintheTechnicalPapervirtuallyeveryonehasaroletoplayinthequalificationsystem.Therolemaybeasanemployer;asapractitionermemberofanoccupationalassociation,academicdiscipline,orculturalcommunity;asateacher,trainer,instructor,assessor,mentororlecturer;asamemberofatradeunion;asaregulator;asapolicymaker;asaresearcher;asalearner;asadiscerninguserofqualificationsorinsomeothercapacity.

Itisimportantthattheviewsofsuchstakeholdersaresoughtandconsideredwhensettingstandardsforeducationalandtrainingqualificationsanddevelopingandimplementingtheassociatedprogrammesofeducationandtraining.ThishelpsensurethatqualificationsthatareincludedintheNFQarerecognisednationallyandinternationallyandcanhelpindividualsadvanceintheirchosencareers.

Therearebenefitstohavingabroaderrangeofperspectivesinvolvedinthedevelopmentandmaintenanceofqualifications;inthinkingaboutthequalificationssystem;andinthinkingaboutlearningpathways.Thisisbecauseideallyaqualificationmustbetrustedby,andmeettheneedsof,allofitsusers.Itisrarelyifeversufficientforqualificationstobedevelopedfromasingleperspective.Sohowcanweengageawiderrangeofpeopleinstructuredmeaningfuldiscussionsaboutqualificationsandrelatedmatters?

Communicating about skills needs

Inthiscontext,theterminologyweusecanbeanenablerorabarriertoengagingpeopleindiscussionsaboutqualifications.Itcansometimesbechallengingtoenticepeoplefromoutsidetheeducationandtrainingsystemtodiscussthedevelopmentofqualificationsstandardsorcurriculaandpartofthereasonforthiscanbedifferencesinterminologyusedinsideandoutsidetheeducationsystem.

Occupational standards

Thereadermaywishtoconsiderwhetheroccupational51standardscanusefullyplayagreaterrole.Inprinciplesuchstandardscanfunctionasabridgebetweentheeducationandtrainingsystemandpeopleinvolvedwithoccupationsthatrequireorbenefitfromeducationalqualifications.InIrelandsomeoccupationalstandardsarealreadyinplace,butistherescopeforagreaternumber?

Iftheuseofoccupationalstandardsweretobecomewidespreadhowcouldtheybeorganisedandmadeaccessibletostakeholders?Mightitbeusefultohaveacentralrepositoryofoccupationalstandardssetoutinaconsistentformat?CouldtheNFQandtheIrishRegisterofQualifications(IRQ)helptoachievegreatervisibilityofoccupationalstandards?

Occupational, skills and competence classifications schemes

Classificationsschemesalsofacilitatecommunicationbetweentheeducationsystemandwidersociety.Theyareespeciallyusefulwhengatheringinformationfromdiversesources.

ThemainoccupationalclassificationsschemeusedinIrelandisSOC-201052.Itincludesabout900occupations.SOC-2010specifies53ajobdescription,theeducationalentryrequirementsforthejob,thekeytasksinvolved,andrelatedjobs.

TheEuropeanSkills,Competences,QualificationsandOccupations(ESCO54)classificationsschemewaslaunchedin2017andisusable,althoughstillaworkinprogress.Itincludesabout3000occupations55.ESCOdataincludeadescriptionoftheoccupationandalistofessentialknowledge,skillandcompetence(itincludesover13,000skillsandcompetences).AnexampleoftheuseofESCO

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skillsclassificationistheanalysisofonlinevacanciesinIrelandandothercountriesbyCedefop’sSkillsPanorama56.

BothSOC2010andESCOaremappedtotheInternationalLabourOrganisation’sInternationalStandardClassificationofOccupations(ISCO).

Tofacilitatebetterinformationexchangebetweendifferentactors(e.g.education,employers,policymakers,diversestatedatacollectors),mighttherebebenefitinmorewidespreadimplementationofsuchclassificationsschemesforoccupationsandtheESCOknowledge,skillsandcompetenceclassifications?

Couldtheuseofsuchclassificationschemes(ESCO,SOC-2010)withqualifications(andprogrammes)usefullycomplementtheISCEDFieldofEducationclassificationschemetohelpusbetterunderstandthesupplyofskills?

Mightsuchclassificationsschemeshelpinthecodificationofoccupationalstandardsandwiththeirinternationalbenchmarking?Fromtheanalysis/researchperspective,couldtheyprovideabasisforcollectingmoreusefuldataonwhatoccupationspeoplemoveintoafterinitialtertiaryeducationandontheoccupationalpathwaysthatpeopletendtofollow?

Couldbetterdataonoccupationsandtheassociatedskills(standards,trends,interrelationsrelations)helpensurethateducationalandtrainingqualificationsarerelevanttothelifelonglearningneedsofpeopleinIreland?

2. From a qualifications perspective, what might be done to help promote a more permeable qualifications system?

Permeability

Permeabilityisabouthoweasyitistogetfromagivenstateoflearningtoadesiredqualification.IntheTechnicalPaperweexplainhowqualificationsstronglyinfluencetheavailabilityanddistributionoflearningpathwaysand,toalesserextent,RPLopportunities.

Visualising permeability

Apermeablesystemrequiresawellinterconnectednetworkofprogrammesandqualifications.Qualifications,programmesandRPLallhavearoleinshapingthepermeabilityofthequalificationssystem.Acertainlevelofpermeabilitycanbeexpectedtoemergespontaneouslybutintimesofrapidchange,moreconcertedactionmayberequiredtomonitorandstimulatepermeability.

A FET alternative to the Senior Cycle

ItisrecognisedthattherearealreadystrongprogressionflowsfromFETintothetechnologicalhighereducationsector(about25%oftheannualintakeisfromFET)andthisiscontributingsignificantlytothepermeabilityofthequalificationssystem.Doyouthinktheremightbeadditionalopportunitiestoincreasepermeability?InthiscontextisthereroomformorehighereducationprogrammesthataredesignedtobuildonFETprogrammes(i.e.toarticulatewithFETprogrammes)ratherthanontheseniorcycle?

Opportunities for new kinds of articulation arrangements between FET and HE

OurrecentpublicationofstandardsforEarlyLearningandCarepresentsQQIstandardsatNFQlevels5and6inthesameformatasthecorrespondingDepartmentofEducationandSkillsstandardsforELC

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awardsatNFQlevels7and8.ThenewstandardsaresetoutinthecontextoftheNFQ’sProfessionalAward-typeDescriptors.Itisasetoftertiaryeducationstandards,asitwere.Doessettingoutstandardsinthisformatmakeiteasiertodesignwell-articulatedlearningpathways(programmeorcoursesequences)?

CreatingarticulatedprogrammesforqualificationsinEarlyLearningandCareshouldberelativelystraightforwardbecauseofthescaleoftheactivity.ItmightnotalwaysbefeasibletodesignadedicatedHEprogrammethatarticulateswithagivenFETprogrammeorclassofsimilarprogrammes(1+3years,2+2years…)becausetheremustbesufficientdemandtowarrantsuchdevelopment.HowdoyouthinkthediversityofFETandHEqualificationsimpactsonpermeability?

3. Can you think of ways in which the quality assurance system could be enhanced to better support the qualifications system?

Trustisessentialforthefunctioningofanyqualificationssystem.Internalandexternaleducationalqualityassurancehelpprovideabasisforthattrust.Qualityassuranceactivitiesprovideopportunitiestoreportontheimplementationofthe

- NFQ;

- nationalqualificationsstandards;

- nationalpolicyrelatingtoaccess,transferandprogressionforlearners.

4. What kind of additional data do we need to better understand the qualifications system?

Data gathering and analysis is already paying dividends.

TheExpertGrouponFutureSkillsNeedsprovidesusefuldatathatcanhelptertiaryeducationprovidersidentifyopportunitieswhenreviewingordevelopingprogrammes.

Substantialprogresshasbeenmadeinrecentyears(especiallyinFET)inbuildingbetterdatasetsonqualificationsandhowtheyareachievedandused.Thishasinvolvedtheanalysisofintegrateddatacollectedbymultipleagenciestoprovidegreaterunderstandingofgraduatelearningpathways(includingprogression)andemploymentdestinations.

Further opportunities relating to occupations and skills needs

Arethereopportunitiestofurtherenhancetherichnessofthedataavailable?Mightitbeusefultohaveadditionalsourcesoftimelyinformationaboutthespecificjobsthatindividualsaredoing(occupations)andmoregranularinformationabouttheskillsneedsofthosejobs?

Whatkindofadditionaldata,ifany,doweneedtoconductmorepenetratinglongitudinalanalysistobetterunderstandlearningjourneysandlearningpathwaysandtheimpactofprogrammesandqualificationsonindividuals?

5. What is your vision for educational standards for FET qualifications and how might it be implemented?

Strategically QQI has committed to streamlining its own system of FET awards standards and to opening the NFQ to include qualifications of awarding bodies whose qualifications are not currently included in the NFQ.

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QQIawardsstandardscurrentlyapplytoallFETqualificationsintheNFQ57.TheyshapeprogrammesandlearningpathwaysaswellasFETqualifications.

TheTechnicalPapersetsoutinitialthoughtsonpossiblefuturesforFETstandardsandoutlinesinnovationsthathavealreadybeenintroduced.ItenvisagesthatamorediverserangeofFETqualificationswillbeincludedwithintheNFQwithmultipleawardingbodiesofferingNFQqualifications.

TherecenttrendtowardsQQIstandardsforFETqualificationshasbeentowardsfewerbutbroadercentrallydeterminedstandards(e.g.newapprenticeships;newEarlyLearningandCareawardsstandards)anddevolutionofresponsibilityforthemoredetailed(narrower)de factostandardstocurriculumdevelopers.

OneofthereasonswearepublishingtheGreenPaperisthatwewouldliketobeginadiscussionwithinterestedparties,includingbutnotlimitedtoproviders,professionalrecognitionbodies,practitioners,employers,regulators,learners,analystsandrelevantstateagencies,inordertodevelopasharedvisionforafuturesystemformaintainingresponsivestandards(andrelatedinfrastructure)forFETqualificationsinthecontextofatertiary educationsystem.Also,wewouldliketofindwaysofworkingeffectivelywithawiderangeofcollaboratorstohelprealisethatvision.

NFQ Level Indicators

Ocupational standard

Narrow award

standard

MIPLO/MIMLO

DefinedbythecurriculumVisible via IRQ

Providerscanaccessbysharingcurriculum

NFQ award-type

descriptions

Broad award standards /guidelines

Figure 2 Kinds of standards. Note that MIPLOs and MIMLOs are not available in the current version of the IRQ.

Why are qualifications standards important in FET?

Qualificationsstandardsareimportantnotleastbecauseoftheimpacttheyhaveon(i)theavailabilityofpeoplewiththeknowledge,skillandcompetencerequiredbyemployersandwidersociety;and(ii)thepermeabilityofthequalificationssystem.Specifically,they:

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- representeducationalandtraininggoalsagreedbytherelevantcommunitiesofpractice;

- shapeprogrammes,courses,continuingprofessionaldevelopment,traineeshipsandapprenticeships;

- provideareferencefortherecognitionofpriorlearningandofequivalentqualifications;

- helpcommunicateandexplainqualificationstousersbetheylearners,employers,regulators,practitioners,providersofprogrammesofeducationandtrainingorothers;and

- helpbuildconfidenceandtrustinthequalificationssystem.

Balance between centralised and localised standards

The CommonAwardsSystemisacentralisedmodularisedsystemofstandardsmaintainedbyQQIforFETqualifications.ItoriginatedabouttenyearsagoandhelpedrationaliseandsystematiseaproliferationofFETawardswhilealigningthemwiththeNFQ.WeareatapivotaltimenowfortheCommonAwardsSystembecauseitneedssubstantialworkeithertoupdate,reformorreplaceitwithsomethingelse.Inthemeantime,theFETsectoranditswidercontexthavechangedsubstantiallyinthepasttenyears.

TheTechnicalPaperpresentsfor discussionapropositionthattheFETsectorwouldbenefitfrommovingawayfromaheavydependenceonacentralisedsystemofdetailed(i.e.narrow)standardstoamoreopenanddistributedsystemforthedeterminationanddisseminationofstandardsandassociatedqualificationsandprogrammes.ItarguesthatthiscanbeachievedwithoutsacrificingallthesystemcoherencebenefitsoftheCASbecausetheycanberealisedinalternativeways,forexamplethroughsharable national curricula.

Already, guided by QQI’s generic standards (NFQ award-type descriptors), new FET awards can be proposed by providers when applying for validation of a new programme. Operationally,forexample,ifamoduleinacurriculumisdesignedtoleadtoanewQQIminoraward,thentheminimumintendedmodulelearningoutcomes(MIMLOs)arethede factostandardsforthataward.IfthecurriculumleadstoanewQQImajoraward,thentheminimumintendedprogrammelearningoutcomes(MIPLOs)arethede factostandardsforthataward.InFET,MIMLOsandMIPLOsforsuchnewQQIawardsareapprovedatthepointofvalidation.RecallthattheIrishRegisterofQualifications(IRQ)providesinformationaboutallNFQawardsandprogrammesincludingthese.

6. What can be done to help increase the transparency, consistency and fitness for purpose of the standards for higher education qualifications that are included in the NFQ?

Recognition of Irish higher education qualifications

Irelandhasawell-regardedqualificationssystem.WewereoneoftheearlymoversinestablishingaNationalFrameworkofQualificationsforthenationalandinternationalrecognitionofourqualifications.WewereinvolvedinthedevelopmentoftheFQ-EHEA.Thisearlysuccessneedstobefollowedthrough.

TheNFQisthemaininstrumentfornationallybenchmarkinghighereducationstandards.Nowthattheinstitutesoftechnologyhavebecomedesignatedawardingbodiesunderthe2012Act(asamended(since1January2020))theNFQwill,formorethan90%ofthatactivity,bethesolenationalbenchmarkunderthe2012Actfortheacademicstandardsofknowledge,skillandcompetenceforhighereducation

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awards.Forawardsthatarerecognisedbytheprofessionsorwhereeducationisregulatedthereare,ofcourse,additionaldiscipline-specificbenchmarks(includinge.g.occupationalstandards).Someofthesearevoluntaryandothersmandatory.

Transparency

ThepublicationoftheGreenPaperprovidesanopportunityforstakeholdersinthehighereducationsectortoreflectonthetransparencyoftherelationshipbetweenhighereducationqualificationsandtheNFQandonthetransparencyofacademicstandards(learningoutcomes)forhighereducationqualifications.

TheTechnicalPaperhaspresentedsomeissuesfordiscussionrelatingtothetransparencyoftheimplementationoftheNFQbythepre-2019designatedawardingbodies.ItarguesthatdesignatedawardingbodiescouldbemoretransparentabouthowtheyensurethattheirawardswarrantinclusionwithintheNFQ,andQQIisworkingwiththemandtheirrepresentativebodiesonthisissue.Section55Bofthe2012Act(asamended)ineffectrequiresgreatertransparencytogetherwithQQI’swrittenagreementbeforeaDABawardmayberegardedasbeingincludedintheNFQ.

Higher education subject guidelines

The National Strategy for Higher Education to 2030—Report of the Strategy Group stated that subject guidelines should be developed as a supporting academic infrastructure to the National Framework of Qualifications.

Todatenothinghasbeendoneonthatfront.However,thelandscapehaschangedwiththeintroductionofagreaternumberandrangeofdesignatedawardingbodies.Sotheremaybeagreaterneednowforthiskindofsupport.TheReportoftheStrategyGroupstated:

This work should be progressed by subject experts from the academic community and coordinated by the new Qualifications and Quality Assurance Ireland agency. Care must be taken to demonstrate that this project does not create an excessively bureaucratic or costly system. […] 58

Woulditbeusefultoexplore,withstakeholders,thefeasibilityandbenefitsofworkingtogethertodevelopsuchinfrastructure?

Intended learning outcomes and the IRQ

TheIrishRegisterofQualificationsisalsorelevanthere;itlistsawardsthatareincludedintheNFQandtheprogrammesthatleadtothem.OneopenpolicyquestioniswhetherintendedprogrammelearningoutcomesshouldbeaccessiblethroughtheIRQ.

7. How can the qualifications system support, promote awareness of, and build confidence in RPL?

RPLcanstrengthensocialinclusion,enableaccesstonewlearningopportunities,motivateindividualstolearnmoreandformbridgesbetweendifferentlearningpathways.

Existingmacro-levelinitiativesandinfrastructureincludetheNFQandthePolicy and Criteria for Access, Transfer and Progression in Relation to Learners for Providers of Further and Higher education.Atthemesolevel,forexample,theRPLPractitioners’NetworkisanactivecommunityofpracticethathelpsdisseminateexamplesofeffectiveRPLpracticethatcanencourageandinspireothers.Whatadditional

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initiativesandinfrastructureatmacroandmesolevelsdoyouthinkmighthelpcontributetoabetterenvironmentforRPLandinfluenceeffectivepractice?

OneofthechallengesrelatingtoRPListheidentificationandguidanceofpeoplewhomightbenefitfromit.MighttherebebenefitinextendingonlineRPLportalslikeFETCHwithfunctionalitytoenablepeopletosearchforrelevantqualificationsbyoccupation,makeaninitialself-assessmentofRPLneeds,andconnectwithacompetentproviderwhocanguide,adviseorprogressanRPLprocess?

IdentifyingindividualswhocanbenefitfromRPLrequiresgoodcommunicationchannelsbetweenproviderswhoimplementRPL,learners,employers,workersandotherrelevantstakeholders.Aretherewaysinwhichcommunicationscouldusefullybeimproved?

MighttherebebenefitindevelopingmoredetailedtopicspecificguidelinesonthequalityassuranceofRPLprocesses,especiallyprocessesforthevalidationofnon-formalandinformallearning?NotethisdoesnotmeanguidelinesonhowtopracticeRPL.

8. Do you have views on any other topics addressed in the Technical Paper? If so, please tell us about them.

TheTechnicalPaperonQualificationscoversissuesoveranextensivelandscape,andmanyreaderswillnotbeequallyfamiliarwithallpartsofthatlandscape.Differentpartsofitwillbemoreorlessrelevanttodifferentstakeholders.Wedon’texpectthatallstakeholderswillwishtorespondtoalloftheissuesindetail,butwewouldbegratefulforanyfeedbackpeoplemaywishtooffer.Wewouldliketoknowwhetherpeople:

- agreethattheissueswehaveidentifiedarerelevantandwellcaptured;

- agreewiththeideasputforwardforaddressingthoseissues;

- haveadditionalissuesthatmightbeaddedtoourlist;

- haveadditionalideasthatmighthelpaddresstheissues;

OtherissuesraisedintheTechnicalPaperinclude:

- stimulatingtheemergenceofcommunitiesofpractice.

- promotinglinkagesbetweeneducationalandoccupational/professionalstandardsandassociatedaccreditationprocesses.

- theimplicationsoftheinstitutesoftechnologybecomingdesignatedawardingbodies.

- thepossiblyquestionableuseofmajor-classedexitawardsinhighereducation.

- thedifferencesbetweenFETandHEcreditsystems.

- theinclusionofassessmenttechniquesinCASstandards.

- digitalcredentials:opportunitiesandchallenges.

7 Next stepsFollowingtheendoftheconsultationprocesswewillpublishthefindings,athematicanalysisofthefeedbackandourresponse,inwhichwewillsetoutthenextsteps.Wewillupdatethetwopapersandusethemtoinformourworkinprovidinginfrastructureforqualificationsandmaintainingdialoguewithkeystakeholderstohelpbringaboutenhancementstothequalificationssystemthroughourcollectedcollaborativeefforts.

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Endnotes1 ThistermisdefinedintheGlossaryintheaccompanyingTechnicalPaper.Highervocationaleducationisasubsetofvocationaleducationandtrainingandwetakeabroadinterpretationofit,toinclude,forexample,anyprofessionaldegreeprogramme(e.g.engineering,law,architecture,nursing,medicine).

2 Wehavecommencedaprocessofre-referencingtheNFQtotheEuropeanQualificationsFramework.3 https://hea.ie/2019/01/23/minister-launches-results-of-national-survey-2018/(TheNationalEmployerSurveyisajointprojectundertakenbytheHigherEducationAuthority,QualityandQualificationsIrelandandSOLAS)

4 ThemostrequestedskillinIrishjobvacancyadvertisementsis“adapttochange”.https://skillspanorama.cedefop.europa.eu/en/indicators/skills-online-vacancies

5 Wewillsometimesdropthetermtraining.However,thetermsfurther/highereducationshouldbeunderstoodtoincludebotheducationandtraining.

6 The2019AmendmentActrendersthemdesignatedawardingbodiesbutpermitsthemonly“tomakeawards,withtheexceptionofdoctoraldegrees,tostudentswherethecollegehassatisfieditselfthatthestudentshaveacquiredanddemonstratedtheappropriatestandardofknowledge,skillorcompetenceforawardsthatareincludedwithintheNationalFrameworkofQualifications”.

7 https://www.education.ie/en/The-Education-System/Higher-Education/Legislative-Proposals-Reform-of-HEA-Act-1971.pdf

8 ThisispartoftheRecognitionofPriorLearning(RPL).9 Wehavecommencedaprocessofre-referencingtheNFQtotheEuropeanQualificationsFramework.10 Thisconceptisdiscussedinmoredetailinsection1.1ofPart1oftheaccompanyingTechnicalPaper.11 Weshouldmentionherethatsomepeopleusethetermsprogrammeandqualificationinterchangeably,whichcanleadtoconfusion.Aqualificationistheoutcomeofaprocess(suchasaprogramme)ratherthanaprocessitself.Nevertheless,itcanbedifficulttofullyunderstandortrustaqualificationwithoutconsideringtheprocessbywhichitwasachieved.Ifthequalificationisambiguous,theprocessmayresolvetheambiguity.

12 RPL isatermofartthatincludestherecognitionandvalidationofnon-formalorinformallearning(R/VNFIL).13 OECD.(2007).QualificationsSystems:BridgestoLifelongLearning.Paris:OECDPublishing.14 Thesociologicalmechanismswhilenotexplicitinthisdefinitionaretakenbyusasimplied.15 In(CEDEFOP,2010,p.37)thiswasciteditasa“good description of the way qualifications are expected to work”andweagree.

16 AdaptingideasfromOatesetal.17 “Theideaisforlearnerstobeabletomoveeasilybetweendifferenttypesofeducation,(suchasacademicandvocational)andbetweendifferentlevels(suchasuppersecondary,orapprenticeship,uptohighereducation),astheydecide.”(Cedefop,2012)

18 AdvancedentryandmoduleexemptionsaretermsforthesethatmanyintheIrishsystemarelikelymorefamiliarwith.

19 Thenotionof‘sharedmeaning’isimportantinthecontextofNationalQualificationsFrameworks(NQFs);althoughhardtoestablishitisundoubtedlylinkedtothetrustandconfidenceessentialtosupportingqualificationsoranNQF.WhilethenotionofanNQFasasymbolicdevice,proppedupbytext,writtenlawsandrules,andlegitimateonlysolongastheconstructisaccepted,supportedandinvestedwithmeaningbyitscommunity,mightscaresome,thereiscertainlysometruthtotheidea.

20 Thisbegsthequestionofhowdivergentinterpretationsofsharedstandards(e.g.theNFQ)canbebeforetheybecomeproblematic.

21 Notethatsociologyiscentraltothisdiscussion.Bysociologywemeanthe“the systematic study of the development, structure, interaction, and collective [behaviour] of organized groups of human beings” https://www.merriam-webster.com/dictionary/sociology(19/03/2019)

22 https://wenger-trayner.com/introduction-to-communities-of-practice/(04/03/2019)23 TheessenceoftheideaofaCoPseemscompatiblewithKuhn’sideaofa‘scientificcommunity’in“TheStructureofScientificRevolutions”(Kuhn,1962).Thatworkclearlyrecognisestheimportanceofconsideringthesocialdimension:“As in political revolutions, so in paradigm choice – there is no standard higher than the assent of the relevant community.”

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24 Ityouareunfamiliarwithcommunitiesofpracticeitmightbeworthwhiletoreflectalittleontheitalicisedtextinthetwoparagraphsandtoimaginehowitmightapplyinyourcontexts.

25 Thereisanextensiveliteratureonthesociologyofprofessions(especiallytheprestigeprofessions).Wedonotintendtodelveintothatliteratureatthispoint.

26 Aprovider ofaprogrammeofeducationandtraining.Publicprovidersincludeuniversities,institutesoftechnology,andeducationandtrainingboards.Therearealsomanyprivatesectorproviders.

27 https://www.euvetsupport.eu/index.php?id=127(03/07/2019)28 Weusethetermoccupationtomeanadefinedoccupationoradefinedactivitythatmaybepartofoneormoreoccupations.

29 https://researchrepository.ucd.ie/handle/10197/9691 30 https://about.unimelb.edu.au/teaching-and-learning/innovation-initiatives/pedagogy-and-curriculum-innovation/micro-credentialing(20/03/2019)

31 Manyofthequalificationsusedinthissector,withtheexceptionofqualificationsdesignedtopreparepeopleforhighereducation,arenotcurrentlyincludedintheNFQ.

32 Morespecificallyitincludesqualificationtitlesasdistinctfromtheactualqualificationsheldbyindividuals.33 Awardtypedescriptorsarebenchmarkstatementsaboutthelearningachievementsrequiredtoattainparticular

NFQ award-typese.g.anHonoursBachelor’sDegreeoranAdvancedCertificate....ThesedescriptorsapplytoawardingbodieswhichmakeawardsrecognisedintheNFQ.

34 https://hea.ie/assets/uploads/2017/04/national_framework_for_doctoral_education_0.pdf35 TheprocessforincludingqualificationsintheNFQchangedunderthe2019Amendment Act.36 Forexample,https://sisweb.ucd.ie/usis/!W_HU_MENU.P_PUBLISH?p_tag=MAJR&MAJR=NES2 37 ThefollowingextractfromourPolicy for Determining Awards Standards explains:

The de facto award standard for a particular named award as issued is the statement of minimum intended programme learning outcomes that is approved at validation of the corresponding programme of education and training.

38 https://europass.cedefop.europa.eu/ https://registrar.mit.e

39 https://www.regionalskills.ie/national-skills-council/ 40 https://www.regionalskills.ie/regions/ 41 https://www.skillnetireland.ie/about/ 42 http://tuningacademy.org/ 43 https://www.coe.int/en/web/common-european-framework-reference-languages/home(20/03/2019)44 https://ec.europa.eu/education/policies/school/key-competences-and-basic-skills_en 45 https://ec.europa.eu/esco/portal(11/04/2019)46 https://ec.europa.eu/social/main.jsp?catId=738&langId=en&pubId=8083&furtherPubs=yes 47 https://ec.europa.eu/esco/portal 48 https://ec.europa.eu/esco/portal/qualification 49 https://www.hesa.ac.uk/support/documentation/occupational/soc2010 50 Subjecttocommencementoftherelevantsectionofthe2019AmendmentAct.51 Occupationforthesepurposesrefertowelldefinedrolessuchasplumber,accountantandsoonaswellasactivitiesthatmaybeonlypartofaperson’sjob,e.g.handlingF-gases.

52 https://www.bls.gov/soc/2010/home.htm(thereisnowamorerecentversion:SOC2018).53 E.g. https://onsdigital.github.io/dp-classification-tools/standard-occupational-classification/data/SingleClass.html?soc=2124&from=212

54 https://ec.europa.eu/esco/portal/skill

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55 Foracomparisonofclassificationsschemessee:https://publications.iadb.org/publications/english/document/Occupations_Labor_Market_Classifications_Taxonomies_and_Ontologies_in_the_21st_Century_en_en.pdf

56 https://skillspanorama.cedefop.europa.eu/en/indicators/skills-online-vacancies57 ThiscontrastswithhighereducationwhereQQIawardsstandards(asdistinctfromtheNFQ)nowonlyapplytoasmallfractionofhighereducationawards.

58 Thisreviewhasnotsofarbeenundertaken.

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Documents

Green Paper on the · While this paper addresses all qualifications related to the NFQ, the main emphasis is on tertiary qualifications and directly related matters. Black bold text