Time to reform national qualifications

The initiative taken by the Commission to launch a European Qualifications Framework last July is part of the EU's outcome-driven strategy to help member states embark on a reform of their national qualifications.

A further objective is to assist member states that rely on importing foreign qualifications to invest in capacity building by adequately introducing nationally-based but internationally recognised qualifications, accreditation, quality assurance mechanisms, verification and credibility.

Qualifications must serve to prepare all young people for work and must be governed and managed by a locally based self-regulating institution so that the regulator and the provider co-exist independently and autonomously.

Another objective underlying the proposed EQF (European Qualifications Framework) is to provide a meta-framework for qualifications for lifelong learning. This implies that qualifications must provide pathways for learning and become tools rather than barriers to further learning. For this reason, the EQF is based on the acquisition of knowledge, skills and competences, which are measurable in a clear, pre-defined but evolving structure.

In Annex 2 of the Commission Staff Working Document Towards a European Qualifications Framework for Lifelong Learning there is an indicative summary of the proposed eight EQF-levels:

EQF Level 1: Qualifications at level 1 recognise basic general knowledge and skills, and the capacity to undertake simple tasks under direct supervision in a structural environment. The development of learning skills requires structured support. These qualifications are not occupation specific and are often sought by those with no qualifications.

EQF Level 2: Qualifications at level 2 recognise a limited range of knowledge, skills and wider competences that are mainly concrete and general in nature. Skills are applied under supervision in a controlled environment. Learners take limited responsibility for their learning. Some of these qualifications are occupation specific but most recognise a general preparation for work and study.

EQF Level 3: Qualifications at level 3 recognise broad general knowledge and field-specific practical and basic theoretical knowledge; they also recognise the capacity to carry out tasks under direction. Learners take responsibility for their own learning and have limited experience of practice in a particular aspect of work and study.

EQF Level 4: Qualifications at level 4 recognise significant field-specific practical and theoretical knowledge and skills. They also recognise the capacity to apply specialist knowledge, skills and competences and to solve problems independently and supervise others. Learners show self-direction in learning and have experience of practice in work or study in both common and exceptional situations.

EQF Level 5: Qualifications at level 5 recognise broad theoretical and practical knowledge, including knowledge relevant to a particular field of learning and occupation. They also recognise the capacity to apply knowledge and skills in developing strategic solutions to well-defined abstract and concrete problems. Learning skills provide a basis for autonomous learning and the qualifications draw on experience of operational interaction in work or study, including management of people and projects.

EQF Level 6: Qualifications at level 6 recognise detailed theoretical and practical knowledge, skill and competence associated with a field of learning or work, some of which is at the forefront of the field. These qualifications also recognise the application of knowledge in devising and sustaining arguments, solving problems and making judgments that take into account social and ethical issues. Qualifications at this level include outcomes appropriate for a professional approach to operating in a complex environment.

EQF Level 7: Qualifications at level 7 recognise self-directed, theoretical and practical learning, some of which is at the forefront of knowledge in a specialised field that provides a basis for originality in developing and/or applying ideas often within a research context. These qualifications also recognise an ability to integrate knowledge and formulate judgments taking account of social and ethical issues and responsibilities and also reflect experience of managing change in a complex environment.

EQF Level 8: Qualifications at level 8 recognise systematic mastery of a highly specialised field of knowledge and a capacity for critical analysis, evaluation and synthesis of new and complex ideas. They also recognise an ability to conceive, design, implement and adapt substantial research processes. The qualifications also recognise leadership experience in the development of new and creative approaches that extend or redefine existing knowledge or professional practice.

In the context of the Maltese educational system, the first two levels reflect compulsory education; levels 1 to 4 can be interpreted as the four levels of vocational education and training. Level 5 is a qualification that may bridge vocational education and higher education leading to Levels 6 to 8 which reflect the first, second and third cycle of the degree programmes of study.

This meta-framework is an inbuilt structure, which must be expressed through qualifications. What is interesting from Malta's point of view is how a National Qualifications Framework based on the proposed EQF will look like. This will undoubtedly require technical and well planned consultation with all stakeholders so that Malta's NQF will serve as a constant point of reference for education, industry and the labour market.

To what extent will a European Qualifications Framework invigorate education in Malta, particularly at a time when government is committed to an ambitious educational reform "for all children to succeed"?

The context in which a reform in qualifications should be strategically presented must take into account the following challenges if it aims to achieve success.

Ten challenges

Malta is a new EU member. Exposure to change and reform cuts across all sectors of our society. This is an opportunity which cannot be underscored. Attending conferences, seminars, workshops and experts' meetings carries the responsibility of those who attend to bring about innovation opening up real opportunities for as many people as possible.

As Maltese we must now live in interdependent relationships. Qualifications should reflect a process of interdependence and not dependence.

Malta has a solid system of education but not a qualifications framework. Malta's system of education can be considered as a three-tier system with primary and secondary levels constituting compulsory education; vocational education and training (VET) and higher education.

Compulsory and higher education are in line with the proposed EQF. On the other hand, vocational education and training still require wide-ranging reforms in their qualifications structure. The proposed EQF is a challenge to change Malta's qualifications' culture, particularly at VET level.

The Ministry of Education, Youth and Employment is in a privileged position to mould a better future for our country. Indeed, in a small country like ours, it is a great opportunity to have in one ministry the executive responsibility for education, training, youth and employment.

Such a position should be challenged by adequate resources but more importantly, by effective governance and management. An educational sector however must be in line with economic growth, social cohesion and national pride, the three pillars of any nation's success story.

Malta participates in ongoing European fora which, in the long run, are building expertise in all fields of concern. It is amazing how many of our civil servants have actually acquired enormous expertise in practically all sectors of development.

Can this expertise be accredited somehow? The challenge is to put national expertise at the forefront. Respecting and maximising this resource to its full potential is added value to our development. Neglecting or marginalising such resource is criminal.

We can be the sole beneficiaries of our own success. But, we can also be the sole enemies of our own success too, unless we empower younger generations to consider training as an ongoing process in professional development.

Training and progression must go hand in hand. We can achieve a better quality of life if, at the end of compulsory education, education produces no 'failures' and further education! In my opinion, this is the silent revolution that the EQF aims to achieve: to assess individuals on what they can do rather than on what they have been taught. Malta must rise to this challenge.

Parents can have a system of qualifications which is student/family-friendly. The EQF has the potential to resolve Malta's chronic obsession with qualifications, and in particular parents' extraordinary expenditure on examinations and private lessons. In many cases, this has now reached a ceiling beyond which it is impossible to go without endangering financial equilibrium and the normal functioning of family budgets! The challenge is to embark on a decision-making process that leads to a positive 'roadmap'.

Government must empower the private sector to take a leading role in creating a knowledge-based society. It is about time that the private sector, given the opportunity, puts its money where its mouth is. The American system of higher education is perhaps the best in the world.

One of the reasons is that it is largely supported by private enterprise. The challenge is to reduce the state-driven reforms in education and invite the private sector to take a shareholder's role and not just a stakeholder's one in education and training.

Our own qualifications framework must be built on the principle of reciprocity. The time is ripe to remove our perceived inferiority complex on awarding qualifications once and for all and set up credible structures to accredit knowledge, skills and competences locally.

Foreign qualifications must be governed by the principle of reciprocity, particularly in the area of vocational education. We must invest in a Qualifications Authority capable of effectively managing and accrediting qualifications. Qualifications also have a social dimension.

Malta can build up its own qualifications structures (particularly in VET) and drastically reduce the price most people have to pay to obtain foreign qualifications.

Our country must also design qualifications that are essential for competitiveness and economic growth. A national qualifications framework gives a nation the chance to design its own future.

Qualifications are the means to achieve a higher quality of life across all sectors of society. The challenge is to manage a process of ongoing dialogue on qualifications, which is industry/outcome driven.

Malta is committed to the Lisbon Goals and to the Bologna (2000), Copenhagen (2002), Maastricht (2004) and Bergen (2005) declarations. A reform in national qualifications will provide a significant turning point in the success of our economy vis-à-vis these commitments. Supporting the ongoing challenge of education reform will, in the long run, help all learners to 'really' succeed.