Strengthening the link between the NQF and quality assurance arrangements. By: Andrea Bateman

How a country’s NQF links to its quality assurance arrangements and how these arrangements support, complement, and enable the strategies embedded in the NQF policy instrument is critical to an NQF’s implementation and long-term success.

1. Introduction

Over 150 countries in the world have NQFs which are at different stages of development and operationalisation. NQFs are the key policy instrument in the context of a qualifications systems and do not work in isolation. NQFs gain their strength, and make the greatest impact, if they are linked to quality assurance arrangements that complement and ‘bring to life’ the aspirations expressed in the NQF policy instrument.

Very little is written in terms of how these linkages can be strengthened. This article draws on recent ACQF research and development work in relation to NQFs and quality assurance to explain the linkages.

Policy makers in the design of the qualifications systems, should be able to identify and make these linkages to ensure that the component parts of the system ‘fit’ and support each other.

2. Key definitions

Term	Definition
Qualifications system	Within a country’s broader education and training system there is a national qualifications system. ‘A national qualifications system includes 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. Qualifications systems may be more or less integrated and coherent. One feature of a qualifications system may be an explicit framework of qualifications.’ Source: OECD 2006
Qualifications framework	Qualifications frameworks are a construct that aim to describe (for policy makers, implementers and users, both nationally and internationally) the types of qualifications issued within a country. A national qualifications framework (NQF) is ‘A policy and instrument for the development and classification of qualifications according to a set of criteria for specified levels of learning achieved, which aims at integrating and coordinating national qualifications subsystems and improve the transparency, access, progression and quality of qualifications in relation to the labour market and civil society’. Source: EQF Recommendation 2017
Qualifications	Generally, there are two interpretations of the term qualifications, but they are not mutually exclusive and both can exist within the qualifications system. Qualifications are ‘a formal outcome of an assessment and validation process which is obtained when a competent authority determines that an individual has achieved learning outcomes to given standards.’ Source: EQF 2017 Qualifications are ‘a planned combination of learning outcomes with a defined purpose or purposes, including defined, applied and demonstrated competence and a basis for further learning and which has been assessed in terms of exit level outcomes, registered on the NQF and certified and awarded by a recognised body.’ Source: SAQA 2017
Quality assurance	Quality assurance within the context of a qualifications system aims to build trust in, and transparency of, qualifications. ‘Quality assurance includes the processes and procedures for ensuring that qualifications, assessment and programme delivery meet certain standards.’ Source: Tuck 2007

3. NQFs and their linkages

NQFs aim to provide greater transparency of qualifications issued within a country, and are the product of, and operate within, complex and everchanging qualifications systems. NQFs are influenced by the domestic historical and current context in which they are designed, and are also influenced by regional and international developments. Their strength is derived by their linkages with other initiatives and strategies deployed within the qualifications system, such as:

National initiatives, e.g., lifelong learning, facilitation of learning pathways, validation of formal learning (credit transfer), validation of nonformal and informal learning (recognition of prior learning)
Strategies and functions of a responsible body:
- Recognition of foreign qualifications
- Making connections with other NQFs and RQFs
Quality assurance arrangements:
- Registers/databases of qualifications approved onto the NQF
- Quality assurance of qualifications (utilising qualification quality standards, policies, guidelines)
- Quality assurance of provider and their programmes leading to a qualification (utilising quality standards, policies, guidelines).

NQF policy instruments are the primary policy instrument within a qualifications system. They generally include similar structures, such as level descriptors, a volume of learning measure, and qualification type descriptors. Most NQF policy instruments include objectives or purposes, and supporting aspirational statements about facilitating lifelong learning, articulation of pathways, use of learning outcomes, recognition of nonformal and informal learning (NFL and IFL) and recognition of formal learning (e.g., credit transfer) and any links to credit systems that include recognition of all forms of learning (e.g. formal, NFL, IFL). Some policy documents include detailed information regarding quality assurance arrangements, or, summarise or reference to quality assurance arrangements.

The NQF and initiatives and strategies need to ‘fit together like a jigsaw’ resulting in a coherent and effective qualifications system design. A disjunct between a NQF purpose statement and a supporting policy or guideline may result in no improvements in a particular aspiration, e.g., learning outcomes forming the basis of qualifications.

The figure below summarises key structures and aspirational foci and associated strategies, such as registers/databases.

4. How to strengthen the linkages within the qualification system

The country’s initiatives and strategies need to be considered in relation to how they are expressed and implemented in the qualifications system. In the main, NQF statements of purpose or objectives are the higher level of policy instrument for these initiatives and strategies.

Annex 1 provides a summary of purposes and objectives of NQFs for selected African countries (Botswana, Cape Verde, Lesotho, Mozambique, Namibia, Rwanda, Seychelles, South Africa, Zimbabwe). The summary reveals that the purpose or objectives are varied, with some NQFs having a highly detailed list and other less so. Some objectives have changed overtime, e.g., Rwanda, and the objectives may have been updated due to the changing context within the country and the level of maturity of the qualifications system.

4.1 National initiatives

Lifelong learning

NQFs aspire to promote lifelong learning for its citizens. Linkages to promote lifelong learning are often associated with policy statements regarding facilitating learning pathways, validation or recognition of nonformal and informal learning, credit transfer or recognition of formal learning, such as in Cape Verde’s NQF.

Pathways

Facilitating pathways is associated with the notion of lifelong learning and a country’s wish to link various education and training sectors to enable horizontal and upward progression.

However, many NQF policy instruments often emphasise the sectoral divisions which may in fact highlight the differences and increase the perception of separate tracks within the qualifications system. To strengthen the notion of linked pathways, the NQF policy documentation could:

Consider not distinguishing qualifications type titles and descriptors by their sector, or not specifying the sectoral quality assurance agency to the qualifications type titles and descriptors.
Provide information within the qualifications type descriptors about the relationship of one qualification type to another, e.g., entry into Doctoral degrees requires successful completion of a research Masters degree.

To strengthen pathways, quality assurance standards related to the formulation, development and approval of qualifications could require pathways or exit qualifications to be documented within the qualification specification. For example, a two-year diploma could include an exit point, e.g., a certificate. In addition, pathways could be linked to validation of nonformal learning as being a legitimate pathway in and through the learning progression.

Learning outcomes

Qualifications described in terms of learning outcomes strengthen the transparency of learning and a trust in qualifications and their outcomes. NQFs policy instruments often make statements that the NQF promotes learning outcomes in qualifications, e.g., Cape Verde NQF applying a competency based approach. To demonstrate commitment to implementing learning outcomes in the qualifications system, the NQF policy instrument:

Would document level descriptors written as learning outcomes to promote, at the highest policy level, the use of learning outcomes
Could make a clear statement that all qualifications recognized within the NQF are based on learning outcomes.

A key linkage to promoting learning outcomes is embedded in the quality assurance requirements related to the formulation, development approval of qualifications. Responsible bodies, using guidelines or standards, could specify that qualification outcomes and its components (e.g., units, modules, units of competency) are to be drafted in learning outcomes. Responsible agencies could supplement these requirements with templates and guidance on drafting learning outcomes to support qualification developers.

Recognition of prior learning (validation of non-formal and informal learning)

Recognition of prior learning (validation of non-formal and informal learning) involves the process of confirmation by a competent authority that an individual has acquired learning outcomes acquired via non-formal and informal learning settings measured against a relevant standard. It is the formal recognition of learning gained through a nonformal setting (ACQF. 2021a).

Validation of non-formal and informal learning is associated with a country’s aspirations for lifelong learning and the facilitation of pathways, but is also embedded in the principles of access and equity for all citizens.

As the NQF is the primary policy instrument it is logical that it would declare the country’s intention in regards to the validation of non-formal and informal learning, as explicitly stated by Botswana, Cape Verde, Mozambique, Rwanda; and implicitly stated by Lesotho. This declaration may also appear in law and in other policy documents to further extend the country’s approach to validation of non-formal and informal learning. In addition, quality standards for qualifications and for providers may include aspects of validation of nonformal and informal learning, for example:

Quality standard for approval of qualification specifications could include a section outlining the suggested approach to validation of NFL and IFL, or any justified limitations to such validation
Quality standards for providers may include the requirement to promote in marketing (communication and outreach) material the opportunity for validation of nonformal and informal learning, and to have in a place a process to support applicants and assessment of nonformal and informal.
Reporting requirements of learner outcomes (required by a responsible body) may include the reporting of candidate applications as well as reporting successful or unsuccessful outcomes.

Validation of formal learning (credit transfer)

Credit transfer (or validation of formal learning) is the process of allowing individuals who have accumulated credit in one context to have it valued and recognised in another context (ACQF. 2021a). Credit transfer provides individual with credit based on identified equivalence of content and learning outcomes between one or more components in two qualifications (i.e. the qualification already achieved and the target qualification). As such, credit transfer is not an assessment of individual’s competence.

Similar to validation of non-formal and informal learning, as the NQF is the primary policy instrument it is logical that it would declare the country’s intention in regards credit transfer, again supported by policy.

Credit transfer is embedded again in the principles of access and equity and also facilitating lifelong learning and learning progression as learners do not have to repeat learning outcomes that they have already formally achieved.

The links to quality standards is clear. Quality standards for qualifications and providers may include aspects of recognition, for example:

Quality standard for approval of qualification specifications could include a section outlining relevant opportunities for credit transfer, and for the renewal of a qualification specification may include credit transfer by component (e.g., unit of competency, module, subject) for learners transitioning from a superseded qualification.
Quality standards for providers may include the requirement to promote in marketing (communication and outreach) material the opportunity for credit transfer, and to have in a place a process to support applicants and review of applications.
Reporting requirements of learner outcomes (required by a responsible body) may include the reporting of credit transfer granted.

Credit systems

Both recognition of prior learning and credit transfer result in credit being awarded by a competent authority. Beyond policy, countries may implement a credit and accumulation transfer system to promote fairness and equity in applying credit. The scope of credit and accumulation transfer systems may include the recognition of all forms of learning (e.g., formal, NFL, IFL).

4.2 Strategies

Connections with RQFs and NQFs

A NQF policy instrument may articulate the wish for a country to link to other NQFs or RQFs, for example Mozambique NQF, Lesotho NQF, Cape Verde QF, and Botswana NQF.

Referencing or aligning a NQF to another NQF or RQF provides for greater transparency and understanding of a country’s qualifications and the explanation of the level of implementation of quality assurance arrangements strengthen the trust in the outcomes of these qualifications. NQFs and their associated quality assurance arrangements are the key instruments for referencing or aligning to a regional qualifications framework.

A NQF policy instrument may articulate the aspiration to link to other NQFs or RQFs in the objectives or purposes statements, and may be further expanded in policy noting such key principles and processes, as:

Referencing or alignment activities will only be undertaken if there is a demonstrable benefit to the country and its people
Referencing or alignment activities will only be undertaken if such activities will enhance any existing relationships and arrangements between these countries
Referencing or alignment activities with other frameworks will not result in automatic recognition of qualifications
Changes to the NQF, as a result of referencing or alignment activities, will only be made where there is a demonstrable benefit to country and its people.

Recognition of foreign qualifications

Qualifications described in terms of learning outcomes will strengthen transparency of learning and trust in qualifications and their outcomes, and benefit the country’s stakeholders as well as those outside the country who are interested in understanding the qualification systems of a given country.

Recognition responsible bodies need to consider how they will assess and recognise foreign qualifications, but alternatively how it can provide for the best recognition of the country’s NQF qualifications.

Therefore, the NQF should be clear and transparent, for its country’s stakeholders and for foreign stakeholders looking at the NQF’s qualifications for the purposes of student and labour mobility. This requires that the:

NQF policy instrument has succinct and logical level descriptors, a clear explanation of the volume of learning measure and how it is applied, and clear and concise qualification type level descriptors
Quality assurance documentation should be clear, transparent and accessible by the country’s stakeholders and international interested parties
Responsible bodies provide information that is easily accessible to its stakeholders and interested international parties
Demonstration of implementation is apparent, through qualifications registers/databases and provider registers/databases.

4.3 Quality assurance

In essence, the quality assurance arrangements provide the platform within the qualification system for the implementation of the NQF and its objectives.

Quality assurance of qualifications specifications/standards

A qualification confers official recognition of value in the labour market and in further education and training. As such quality assuring the formulation, development and approval of a qualification is critical to ensuring qualification outcomes of meet the proposed need.

Quality assurance bodies may regulate the processes through laws, rules or quality standards (and related templates and forms).

The requirements (such as standards or rules) for the qualification specification may provide multiple touch points for the objectives specified and explained in the NQF. For example, quality standards or rules could stipulate that:

A high-level qualification (e.g., a degree) will have exit points for successful completion of a lower level qualification (e.g., diploma).
The qualification outcome and the outcomes specified in the components of the qualification (e.g., units, modules, units of competency) are to be written as learning outcomes.
The qualification specification must provide guidance on validation of non-formal and informal learning, and ensure that this guidance does not include unjustified limitations, e.g., that the outcomes are not recognized against formal qualifications, or limit the amount of recognition in any way.
The qualification specification must provide guidance on credit transfer, especially if the qualification specification is being re-accredited, and advice in regards to transitioning students and recognizing existing achievement
The qualification specification must provide guidance on entry requirements that are not discriminatory or limit access that is unjustified
The qualification specification must provide guidance or refer to other qualifications that could be a pathway progression.

In addition, the requirements (such as standards or rules) for the development of a qualification may stipulate:

That the need for a qualification is to be justified
The type and form that the research may take, including national and international benchmarking against similar qualification and outcomes, occupational analysis.
How stakeholder consultation will be undertaken and if stakeholder endorsement is required.
A clear process for locating the qualification on the NQF (i.e., determining its qualification type). It is important to be able to explain this process when undertaking alignment or referencing activities related to a regional qualifications framework.

The formulation and development of a qualification specification, is separate from the providers ability to develop and provide a programme that leads to a qualification.

Quality assurance of provider provision of programmes

Quality assuring the provision of qualifications listed on the NQF is critical to engendering trust in the outcomes of these qualifications. Most quality assurance bodies will base provider requirements on legislation (laws or regulations), quality standards, rules, or policy. Provider requirements will focus on two key areas of interest:

Overarching arrangements, e.g., governance (institutional and academic), financial sustainability and probity, data management and certification processes, and learner support
Programme delivery capability generally focussing on the providers’ ability to:

Design a programme specific to the qualification outcomes and mode of delivery, e.g., face to face, online, blended
Have in place facilities and equipment required for the programme
Have in place educational/training materials and assessment tools required for the programme
Have sufficient number and profile of educators with vocational/professional qualifications and experience, including pedagogical qualifications and experience.

The quality assurance body will determine the process for assessment and the benchmarks to be met by the provider. Ensuring that these processes and benchmarks are clear provides the basis for trust in qualification outcomes for both stakeholders and international parties involved in the recognition of foreign qualifications. Demonstrating that these processes are implemented, through providing public information on outcomes of provider assessments encourages greater transparency and trust.

Registers/databases

The NQF policy instrument may reference the actual or proposed public registers/databases, or provide direct links to these databases/registers. Registers/databases are considered a critical tool for providing transparency and confidence in the qualifications system as entries on the register/database signal the qualification or the provider has met certain quality requirements.

The provision of public information includes:

Registers of qualifications that meet the requirements of the NQF
Registers of approved providers of NQF qualifications which could include information about their compliance to specified requirements (e.g., quality standards, quality criteria) as well as the performance of these providers (such as programme and component completions and student and employer satisfaction).

The management of registers/databases is usually the remit of the body responsible for the NQF or for those responsible for the quality assurance of qualifications and the providers. Determining the level of detail available to the public will be a point of discussion and resolution, usually in the implementation phase of the NQF.

Registers/databases support other national initiatives, such as:

Facilitating pathways and lifelong learning as the register/database provide public information about the availability of various qualifications so that learners can plan their learning progression
Recognition of foreign qualifications as a register/database provides public information to other countries about qualifications that have met NQF requirements, and about providers that have met specified quality criteria.

5. Concluding comments

An NQF is a country’s principal policy instrument within the qualifications system. However, NQFs will have little impact on the quality in the qualifications system unless they are linked to other initiatives and strategies deployed within the qualifications system. Quality assurance systems provide this link and a platform to implement the aspirations expressed in the NQF. Policy makers need to consider these initiatives and structures to ensure that they ‘fit together like a jigsaw’ resulting in a coherent and effective qualifications system.

Annex 1: Purposes and scope of selected African NQFs

Country	Purpose and scope of the NQF
Angola	The goals of the NQF include: Integrate and integrate the qualifications obtained within the different systems of education and vocational training, as well as obtained through professional experience or non-formal and informal learning. Improve the transparency of qualifications by enabling the identification and comparability of their value in the labour market, in education and training, as well as in other contexts of personal and social life; To enable the transfer and accumulation of credits in education, vocational training, and higher education, as possible, in order to enhance the mobility of citizens and facilitate the recognition of skills acquired throughout life. Promote the recognition, validation, certification and quality of qualifications obtained. Support the comparability of national qualifications with the qualifications of other countries Promote links and/or referencing to other qualifications frameworks. Scope: Theoretically comprehensive and has 10 levels (with qualifications map - up to PhD). Level descriptors are included up to level 6. However, for practical (and political) reasons the level descriptors for higher education qualifications were not elaborated. *Source:* Presidential decree 210/2022, 23 July 2022
Botswana	Single integrated national framework for learning achievements from early childhood to tertiary education and training Access, mobility and progression within education, training and career paths Enhancement of quality of education and training Comparability and determination of equivalences of qualifications; Alignment of qualifications with industry needs; Promotion of lifelong learning through the recognition of all forms of learning achievements including workplace learning Promotion of regional and international recognition of local qualifications Promotion of portability of local qualifications Recognition of quality assured qualifications Scope: NQCF is comprehensive and integrates 3 sub-frameworks Sources: BQA Act No 24 of 2013. Statutory Instrument Nº 133 of 02/12/2016 – BQA Regulation on NCQF
Cabo Verde	Integrate and articulate the qualifications obtained in different subsystems of education, vocational education and higher education and those obtained from non-formal and informal pathways and professional experience; Improve transparency of qualifications, supporting their value in the labour market, education and training and other contexts of personal and social life; Promote access, evaluation and quality of qualifications; Apply a competence-based approach to define and describe qualifications and promote validation of non-formal and informal learning; tap into the advantages of this approach to increase the participation in lifelong learning of the population at risk of unemployment and precarious employment; Promote close links with the European Qualifications Framework and with NQFs of other countries, notably ECOWAS member countries, with the aim to improve people’s mobility and facilitate recognition of skills and competences; Improve readability, transparency and comparability of qualifications in the education and training system and employment training; and Adopt adequate measures assuring that all new certificates and diplomas issued by the competent authorities contain a clear reference to the adequate NQF level. Scope: Covers basic, secondary and higher education, professional training and the processes of recognition, validation and certification of competences acquired through non-formal and informal ways, in accordance with the legislation. *Sources:* Joint Ordinance Nr 10/2020 of 17 February, Ministry of Finance and Ministry of Education, Regulates the NQF. At: http://iefp.cv/wp-content/uploads/2020/02/bo_20-02-2020_20-CNQ-e-QNQ.pdf
Lesotho	The objectives are summmarised below: To integrate existing sector frameworks into a single framework, as reflected in the Level Descriptors To remove barriers between institutions and other sub-sectors for improving articulation and learner progression To uphold equity and redress enabling citizens to acquire qualifications irrespective of age and lack of formal qualifications. Special measures are in place to allow access for disabled, and disadvantaged minority groups and promote gender access to scarce skills programmes To improve articulation and learner mobility through links and pathways between education and training courses and qualifications. Competences obtained in different settings are recognized through the recognition of prior learning (RPL) and the recognition of current competencies (RCC) at workplaces or educational institutions To foster quality and relevance through outcomes and standard-based education and training which is more demand-driven and leads to meaningful employment. This requires the engagement and commitment of all social partners To acknowledge and value diversity and worth of all qualifications as they serve identified purposes contributing to the larger developmental goals To facilitate curriculum innovation and qualifications renewal To ensure consistency in terms of the qualification verification and articulation processes of all awards in education, training, research, innovation and skills development within Lesotho, the SADC region and internationally. Scope: Basic education, technical and vocational and training, academic, professional development awards and part qualifications. *Sources*: Revised Lesotho NQF. 2019. https://www.che.ac.ls/wp-content/uploads/2020/02/LQF-Final_Cabinet-Approved-Signed-1.pdf
Mozambique	Establish the level descriptors as references for exit profiles. Facilitate clarity and articulation of all qualifications in an integrated framework and promote competency-based education; Understanding and articulation of qualifications in harmonized and integrated framework of qualifications awarded in the subsystems of the National Education System (SNE). Ensure transparency in access, progression e recognition of academic degrees and other qualifications between education systems, labour market and society. Coherence and transparency of qualifications awarded in the context of the SNE, enabling the mobility and recognition of academic degrees and other qualifications. Define parameters to ease comparability of qualifications in the SNE; Facilitate horizontal and vertical mobility of holders of qualifications within the SNE and lifelong learning; Facilitate mobility, employability, and competitiveness as well as alignment of national qualifications with SADCQF. Facilitate comparability of NQF with other qualifications in Africa and in the world; Facilitate access to qualifications offered within the context of the SNE through processes of recognition of acquired competencies (RPL). Scope: The new NQF is comprehensive - all sub-sectors and levels. Integrates 3 sub-frameworks: general education, TVET and higher education. *Source: Decree nº61/2022*, of 23/11/2022 established the new comprehensive NQF
Namibia	Introduce unity and consistency to the Namibian qualifications system by bringing all qualifications together under one umbrella. Facilitate horizontal and vertical mobility throughout the education and training system. Promote the consistent use of qualification titles. Provide clear information about the knowledge and skills that can be expected of a qualification holder or an RPL learner, making it easier for both learners and employers to understand the similarities and differences between qualification. Harmonize the different education and training sectors and improve their alignment with the world of work. Scope: comprehensive, all levels of qualifications. Sources: Namibia Qualifications Authority Act 29 of 1996 Regulations setting up the NQF for Namibia, Ministry of Education, 2006
South Africa	1. The objectives of the NQF are to: (a) create a single integrated national framework for learning achievements; (b) facilitate access to, and mobility and progression within, education, training and career paths; (c) enhance the quality of education and training; (d) accelerate the redress of past unfair discrimination in education, training and employment opportunities. 2. The objectives of the NQF are designed to contribute to the full personal development of each learner and the social and economic development of the nation at large. 3. SAQA and the Quality Councils must seek to achieve the objectives of the NQF by: (a) developing, fostering and maintaining an integrated and transparent national framework for the recognition of learning achievements; (b) ensuring that South African qualifications meet appropriate criteria, determined by the Minister as contemplated in section 8, and are internationally comparable; and (c) ensuring that South African qualifications are of an acceptable quality. Review and further development of the NQF (from 2021): NQF Implementation Framework 2021-2025: broad roadmap for implementation of the NQF addressing: Developing a NQF-wide automated end-to-end process for the registration of qualifications; The NQF partners are finalising the standards and criteria that all policies and guidelines developed under the NQF Act should meet; Developing and implementing a Monitoring and Evaluation Framework for the NQF; and Minimising areas of duplication in key regulatory processes and adopting a risk based approach to regulation. The NQF Implementation Framework (2021-2025) defines eight priorities: 1. Quality Assurance and qualifications 2. Legislative and policy review 3. Research informing the implementation and further development of the NQF 4. NQF stakeholder engagement and information sharing 5. Funding 6. Records of the NQF 7. Monitoring and Evaluation of the System 8. Ongoing implementation and further refinement of a System of Collaboration between SAQA and the Quality Councils. Scope: Comprehensive of 3 sub-frameworks, all levels of qualifications *Sources: SAQA* Act No 12 of 2019: National Qualifications Framework Amendment Act, 2019 Act No 67 of 2008: National Qualifications Framework Act, 2008. NQF Implementation Framework 2021-2025.

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