Comparison between European Qualifications Framework and the National National Qualifications Framework of the Republic of Cabo Verde

Skills, qualifications, and frameworks have a common language

For the first time, the European Qualifications Framework (EQF) compared with the NQF of an African Country – Cabo Verde. Please read and download the validated comparison report in English and Portuguese languages from: https://europass.europa.eu/en/node/2036.

Skills and qualifications are indispensable assets and references for every person in society, globally. By nature, skills and qualifications share elements of common language between countries. Diversity and specificity of national qualifications, credentials and frameworks do not hinder comparability.

Comparing qualifications frameworks creates bridges and mutual understanding – learners, workers, migrants and the transparency and portability and recognition of qualifications of all types are the main winners!

The comparison process was conducted as a program of eight online meetings, over a period of six months. The comparison analysis builds on dialogue, mutual trust, sharing and evidence, structured around 11 key topics.

The process started with political statements from both sides, expressing high expectations regarding the quality and transparency of the comparison, and encouraging dialogue, analysis and mutual learning between the members of the comparison team, in which were represented all ministries and agencies entrusted with policy, regulatory and implementation roles in education and training in Cabo Verde. EQF countries were actively engaged in the comparison team: Portugal, Luxemburg and Poland.

The European Commission and European Training Foundation closely collaborated to steer the full process towards a coherent, transparent and well-grounded comparison report, which is now published in English and in Portuguese on the EQF Website.

The essential conclusions of this comparison exercise are summarized hereafter.

Executive Summary

Comparing qualifications frameworks to promote mutual understanding

The European Qualifications Framework for Lifelong Learning (EQF) facilitates the transparency and comparability of qualifications. This supports cross-border mobility of learners and workers, promotes lifelong learning and professional development across Europe and beyond. The EQF makes it possible to compare qualifications from different countries and institutions serving as a translation tool between different national qualifications frameworks. The EQF has been inspiring qualifications frameworks also across the globe. Over 140 countries are currently developing their own national qualifications frameworks (NQF) and there are an estimated 20 regional qualifications frameworks in place today.

The EQF Recommendation of 2017 invited the Commission and the Member States to explore further the possibility of comparing third countries' national and regional qualifications frameworks with the EQF. Work is currently underway to see how countries referenced to the EQF can compare their qualifications systems with countries outside the EQF. A first pilot was conducted with Ukrainian NQF and now with Cabo Verde’s NQFs. A third comparison pilot has started with a Regional Qualifications Framework of Southern African Development Community.

The EQF is not only a technical tool, but the EU also uses it in its external relations policies. The EQF is mentioned in several association agreements and mobility partnerships signed by the EU with the neighbouring countries. Furthermore, from 2013 to 2015, a benchmarking exercise compared the EQF with well-established qualifications frameworks in Australia, New Zealand, and Hong Kong.

Cabo Verde has been actively involved in the development and first phase of implementation of the African Continental Qualifications Framework (ACQF). ACQF is a new overarching qualifications framework that will connect the countries and regions of the African Continent. The comparison of the EQF and Cabo Verde’s NQF can bring added value to the development of the ACQF as well.

The purpose of comparing the qualifications frameworks is not to bring other frameworks into line with the EQF, but to carefully assess the different aspects of both frameworks are comparable and to find main similarities and special characteristics. In the beginning of process eleven core topics have been identified and agreed for comparison and dialogue.

Cabo Verde and the European Union [1]

The European Union and Cabo Verde have developed close relations since the independence of the archipelago in 1975. The relationship was strengthened with the Special Partnership in 2007. The EU and Cabo Verde have ensured a very constructive relationship for more than four decades, based on cooperation and dialogue. Today, Cabo Verde and the EU share common values such as democracy, respect for human rights and the rule of law, promotion of multilateralism and rules based global order. The very successful evolution of the relationship in these areas led to the creation of the EU-Cabo Verde Special Partnership in 2007, which keeps evolving and is being reinforced until nowadays. 

The Special Partnership establishes, since 2007, a constant political dialogue that aims at raising the donor-beneficiary relationship to a partnership covering many other common interests. This is the only Special Partnership between the EU and an African country and it is based on six pillars of good governance; security and stability; regional integration; convergence of technical and standards policies; knowledge-based society; fight against poverty and the promotion of sustainable development. 

In the framework of this partnership, an Action Plan for Security and Stability was adopted at the Ministerial Meeting in Luxembourg in 2015. In 2017, both parts agreed on three new cooperation areas: investment, jobs, and growth; ocean governance and blue economy; reform of the administration.

Besides ministerial annual meetings, an intense political dialogue has taken place in recent years through high-level meetings between the EU and Cabo Verdean political counterparts

How do the levels of the NQF and EQF compare?

This report results from a systematic comparison between Cabo Verde’s NQF and the EQF. The comparison shows that both qualifications frameworks share important common features. The comparison dialogue concluded that the levels of the EQF and the levels of the Cabo Verde NQF are comparable (refer to Table 6).

The main characteristics attesting to the proximity and comparability between the two frameworks include:

• Scope: Both are comprehensive frameworks – covering qualifications of all levels and sub-sectors of the education and training system
• Inclusiveness of all modalities of learning: both frameworks value learning outcomes and skills acquired through formal, non-formal, informal learning and support access to qualifications by the validation of non-formal and informal learning.
• Level structure: Both frameworks have eight levels.
  • In the NQF of Cabo Verde Level 5 includes qualifications of technical education and professional training, as well as professional qualifications of higher education.
• Level descriptors: There are similar domains of learning in both frameworks, defined by the combination of a) knowledge; b) skills; c) responsibility, and autonomy. In the NQF of Cabo Verde, the third domain is designated “Attitudes”, and also as “Autonomy and responsibility”.
  • Descriptors of NQF levels 6, 7 and 8 are identically formulated as the corresponding EQF descriptors. Moreover, the legal regime of Higher Education Degrees and Diplomas in Cabo Verde defines the learning outcomes, of which descriptors are compatible and very similar to the Dublin Descriptors of the Framework for Qualifications of the European Higher Education Area (QF EHEA).

The comparison identified and debated the differences between the two frameworks, noting that these differences are not substantial. In respect to the level descriptors and the qualifications, the comparison confirmed that the main differences reflect the diverse roles and nature of the frameworks: the NQF is a framework of national qualifications, while the EQF is an overarching referencing framework. The main distinctive features can be summarised as follows:

• On the formulation of level descriptors: the national specificities of the education and training system of NQF Cabo Verde in the context of national development priorities are reflected in certain aspects of the definition of domains of learning and formulation of the level descriptors, especially at levels 1-5. These features enrich the national level descriptors and provide added value for national users of the NQF in Cabo Verde, without prejudice to the comparability and compatibility between the two frameworks, as demonstrated in Topics 2 and 3 of this report.
• In line with the national contextualisation, the Cabo Verde NQF descriptors differ from EQF descriptors in some respects, especially: a) the definition of the domain knowledge includes an additional feature of principles and practices, which is not present in the EQF knowledge domain; b) the NQF level descriptors contain more extensive and detailed features in the domain responsibility and autonomy; c) attention to context is more prominent in the NQF level descriptors. The differences are most visible in the descriptors of levels 2 to 5.
• The NQF of Cabo Verde includes national qualifications of all sub-sectors of the education and training system, unlike the EQF, which is overarching qualifications framework for referencing and does not include qualifications directly (but only via European NQFs referenced to it).

The central role of learning outcomes in the NQF of Cabo Verde and the EQF

The application of the learning outcomes approach in the design and description of  qualifications is one of the main objectives of the NQF of Cabo Verde. In addition, Article 4 specifies that the implementation of the learning outcomes approach is necessary to promote the validation of non-formal and informal learning, thus providing the population, especially the persons in vulnerable situations, with opportunities to access continuous learning and to enter the labour market.

In Cabo Verde learning outcomes play multiple roles. Firstly, they have a technical role in (a) the conceptual and technical design of the competence units of professional profiles and in development of training modules, which together structure the qualifications; (b) the definition of assessment criteria for formal training, and non-formal and informal learning, (c) the assessment in formal education and training programmes, and (d)  the RVCC (VNFIL) system. Secondly, learning outcomes have a role in social inclusion, as they ease access to qualifications for citizens with a tangible experience of life and work and professional skills but limited formal education history. In this context the RVCC system is conceived and implemented to meet these needs.

The “Qualifications Regime” of UC-SNQ (Cabo Verde’s SNQ Coordination Unit) defines the wider principles of professional qualifications, in which learning outcomes and competences are a central element, e.g.: wide scope and based on competencies, with value and meaningfulness for the labour market; modular learning; adaptable to the evolution of production modes and occupations; based on concepts of professional competences that ensure workers’ ability to work in different contexts and production situation; designed and formulated to support validation of individuals’ learning outcomes acquired in all types of learning contexts.

In higher education, Cabo Verde enacted legislation and procedures aiming at ensuring that teaching and learning are oriented to the development of competences. The Legislative Decree nº 13/2018, which amended the Legislative Decree nº 2/2010 which defines the Bases of the Education System, adopted the organisation model of higher education in study cycles, conferring or not academic degrees, and the transition from an education system based on transmission of knowledge to a system oriented to development of competences.

In the context of the EQF the learning outcomes approach is a key principle, which has been supported by the referencing process. Most European countries currently use learning outcomes in different contexts of their qualifications systems. The conceptual framework and practical application of learning outcomes have been at the core of several EQF peer learning activities, research projects and European Handbooks for over a decade. Learning outcomes remain a key feature in the activities of the EQF, notably through the recent joint work of EQF countries and the European Commission on development of short descriptions of learning outcomes to support publication of information on qualifications in digital registers.

The EQF promotes the shift to learning outcomes and their use in different contexts of qualifications frameworks and systems, including in registers and databases of qualifications. According to the EQF referencing criteria, NQFs are a reference point for the use of learning outcomes and for the continuous renewal of qualifications. The descriptors of the levels are often broad and reflect different contexts. Countries involved in EQF implementation often use best-fit for levelling and inclusion of qualifications in the NQF.

EQF referencing Criterion 3 also relates learning outcomes to arrangements for validation of non-formal and informal learning and credit systems. The European Credit Transfer System for higher education defines the volume of learning based on the defined learning outcomes and their associated workload. It is in use in Cabo Verde as well. The Council Recommendation for vocational education and training of 2020[2] recommends that units of learning outcomes can be used to support recognition, credit accumulation and transfer, and acquiring partial qualifications.

The registers and catalogues of qualifications

There are two registers of national qualifications in Cabo Verde, both accessible online: the National Catalogue of Qualifications (CNQ), which manages all professional qualifications from levels 2 to 5; and the register of Regulatory Agency of Higher Education (ARES), which contains all higher education qualifications.

The CNQ is one the most prominent instruments of the SNQ, and has been regulated by specific legislation since its inception. The most recent CNQ legal act regulates its nature, objectives, structure and mandatory components of professional qualifications, competence units, and other aspects related to the characteristics of vocational training modules.

The CNQ is accessible online, and contains 64 professional qualifications, distributed in 15 professional families. The number of new and renewed qualifications in the CNQ has increased in 2022-2023. The CNQ publishes the full documentation that makes up the qualifications of the CNQ, i.e., the two interconnected documents: a) the professional profile, with competence units and performance criteria; and b) the training programme with modules, units and assessment criteria. In addition to the registered qualifications, the CNQ also includes standards for recognition of prior learning (VNFIL / RVCC), which have been integrated into the CNQ more recently (2022).  All CNQ qualifications contain the respective NQF level..

ARES is the entity responsible for quality assurance in higher education and manages an online accessible register of all courses of the three cycles (bachelor's degree, master and doctorate) and integrated master degree.

The EQF does not include individual qualifications. National qualifications are linked to NQF levels, and the NQF levels are linked to the EQF during the referencing process. However, the EQF substantially contributes to making visible and accessible information on all qualifications from national qualifications databases, in line with the Council Recommendation on the EQF for Lifelong Learning (2017), especially its Annex VI[3].

To support the visibility and sharing of information on qualifications in the EQF countries and beyond, a common database of qualifications from NQFs referenced to the EQF has been set up. The concerned and interested countries link national databases (registers, qualifications catalogues) through the Qualifications Database Register (QDR), which is the back-office tool for national organisations to publish the qualifications data that are visualized on the Europass platform.

Validation of non-formal and informal learning

The Cabo Verdean System of Recognition, Validation and Certification of Competencies (RVCC) is one of the components of the National Qualifications System (SNQ) and is directly linked to the NQF. The Decree-Law on RVCC defines the policy and conceptual underpinnings of the promotion of validation of competences acquired in all contexts of learning. Social and labour market inclusion, economic productivity, valorisation of all types of learning and reinforcement of flexible lifelong learning paths of citizens are the benefits expected from effective implementation of this policy.

RVCC focuses on professional certification and currently applies only to qualifications included in the CNQ. In higher education RVCC processes do not apply; however, reflection has begun on measures supporting an RVCC approach adapted to higher education.

In Cabo Verde RVCC is a process, based on four phases, with similarities with the phases indicated in the EU Recommendation on Validation of Non-formal and informal learning (VNFIL) of 2012[4] and described in the EU VNFIL Guidelines (3^rd edition de 2023)[5]. The target group of RVCC are individuals over 25 years of age with at least five years of professional or employment experience.

RVCC is currently in the initial phase of implementation and applies only to professional qualifications included in the CNQ levels 2 to 5. In the current stage of implementation, RVCC is applied to qualifications of levels 3, 4 and 5 that are part of the current RVCC pilot implementation phase focused on three sectors: Hospitality Restaurants and Tourism; Installation and Maintenance; Administration and Management. In 2022 RVCC was piloted on three professional qualifications, resulting in the certification of 48 candidates. Users’ need for RVCC is high, and the government institutions and private sector enterprises collaborate and join efforts to ensure access to workers employed in businesses in the indicated sectors.

UC-SNQ coordinates and supports RVCC, working in cooperation with the General Direction of Employment, private companies interested in certifying their employees and different types of providers accredited to deliver RVCC services. UC-SNQ developed the methodological support tools, the RVCC standards and evaluation instruments, included in the CNQ. About 50 RVCC specialists were trained for the implementation of RVCC processes.

In the context of the EQF, validation of non-formal and informal learning is also an essential part of the qualifications frameworks. Validation of non-formal and informal learning is supported by the Council Recommendation of 2012, which encourages Member States to put in place national arrangements for validation. These arrangements should enable individuals to increase the visibility and value of their knowledge, skills and competences acquired outside formal education and training: at work, at home or in voluntary activities.

The European guidelines for validating non-formal and informal learning (3^rd edition, 2023) are written for individuals and institutions responsible for the initiation, development, implementation, and operation of validation arrangements, taking into account the experience of over a decade of VNFIL experience in Europe and new demands related with the transformation of learning and work.

Quality Assurance

Quality assurance is an essential pillar of transparency and trust in qualifications, and of mutual trust between different national qualifications systems and frameworks. Trust in qualifications acquired nationally or abroad contributes to facilitate recognition of qualifications, and consequently supports mobility of learners and workers, and matching between supply and demand of skills and qualifications for social and economic development.

The conceptual and methodological underpinnings of Quality Assurance in the context of the NQS / NQF of Cabo Verde address the design of qualifications and application of the learning outcomes approach. Quality assurance underpins learners’ assessment, and the certification process – in vocational education and training, higher education and RVCC processes. Quality assurance comprises internal and external processes like self-assessment, accreditation and audits.

Higher education quality assurance is managed by an independent specialised agency (ARES), which participates in regional and international quality assurance projects and networks.

Moreover, quality assurance practices are supported and enhanced by digitalisation and online platforms for users, which contributes to transparency, efficiency, data management and information-sharing, both in vocational education and training and higher education.  The Training Entities Accreditation Platform (PAEF) provides online information on all accredited training entities (vocational training). The digitization of quality assurance processes and information in higher education is organized in the ARES Digital Platform (PD-ARES), to which all higher education institutions and other stakeholders have access.  Applicants for recognition of foreign higher qualifications benefit from fully digitised ARES processes.  Finally, the integrated school management system (SIGE) is implemented in all elementary schools in the country and fosters communication, decision-making and greater speed in management processes.

Quality assurance is also a fundamental underlying principle of the EQF. It is considered the foundation for mutual trust between countries and systems, which in turn is a decisive factor for the success of the EQF referencing process. EQF referencing criterion 5 requires that countries referencing their NQFs to the EQF have their QA arrangements linked to the NQF and are consistent with the EQF’s common principles on quality assurance, though approaches may vary according to national circumstances. EQF’s Quality Assurance principles are fully compatible with the Standards and Guidelines for Quality Assurance in the European Higher Education Area and the European Quality Assurance Reference Framework for Vocational Education and Training.

The comparison dialogue concludes that quality assurance in the context of the SNQ / NQF of Cabo Verde is broadly compatible with the quality assurance principles of the EQF.

Governance of the qualifications frameworks

The governance model of the NQF in Cabo Verde is characterised by the involvement of many institutions representing the policy making levels  such as Ministries and Directorates as well as implementation bodies such as UC-SNQ and ARES and social partners in Sector councils and committees. Despite its mandate of NQF coordination and implementation defined by the legislation, the UC-SNQ has a more prominent and deciding role on all matters related with the CNQ, development of professional qualifications, coordination, and facilitation of RVCC, and dissemination of information on the NQF; while ARES has the leading role on matters related with higher education programs and qualifications.

Involvement of stakeholders such as employers, trade unions, civil society organisations is defined in the legislation regulating the UC-SNQ and the technical processes of professional qualifications’ design. Sector Councils and Sector Technical Committees play a key role in the development and validation of professional qualifications.

Governance of the EQF is based on the combination of mechanisms at EU and national levels, and involvement of stakeholders’ organisations on EU level. Implementation of the EQF is supported by specialised expertise Agencies, research capacity and interactions and collaboration with other prominent EU policies and instruments which together enhance the effectiveness and outreach of the EQF.

The governance models of both frameworks share common features, such as participation of stakeholders, and the leading role of a coordination entity like the Advisory Group and European Commission in the case of the EQF and UC-SNQ in Cabo Verde. The available resources to support NQF coordination are considered scarce to meet the needs and fulfil the wide range of functions and responsibilities of the UC-SNQ in Cabo Verde.

Communication

The effectiveness of the qualifications framework in relation to its objectives is a result of the related policies, governance, and resources. The attention to the quality, adequacy, and consistency of the information and means to reach out to different users and stakeholders is part of the operationalisation of the framework.

In Cabo Verde this communication and advocacy of the NQF, and the main related policies and instruments (CNQ and RVCC) is channelled through the websites of the UC-SNQ, and of the Directorate General of Employment. Social media of the Employment Centres disseminate information on professional qualifications.

In Cabo Verde professional qualifications display the NQF level and the CNQ accessible online offers the most tangible example of implementation of the NQF’s principles and use of the NQF descriptors.

The EQF Advisory Group recognised the importance of communication and outreach to users and has reinvigorated reflection and activities addressing the main users. The EQF evaluation pointed to the need for further improvement related with communication and visibility of the EQF at various levels and among key stakeholders and institutions. The EQF webpage on the Europass Platform provides concise relevant information and is linked to the relevant NQF online tool on Cedefop website, and other policy initiatives and information resources.

[1] Source: https://www.eeas.europa.eu/cabo-verde/european-union-and-cabo-verde_en?s=134

[2] Council Recommendation on Vocational Education and Training (2020)

[3] Council Recommendation on EQF for Lifelong Learning (2017)

[4] Council Recommendation of 20 December 2012 on the validation of non-formal and informal learning.

[5] Cedefop (2023). European guidelines for validating non-formal and informal learning. Luxembourg: Publications Office. Cedefop reference series; No 124. https://www.cedefop.europa.eu/en/publications/3093