support to the development of the indonesian qualication...

Support to the Development of the Indonesian Qualification Framework

The Education Sector Analytical And Capacity Development Partnership (ACDP)


Published by:

Education Sector Analytical and Capacity Development Partnership (ACDP)Agency for Research and Development (BALITBANG), Ministry of Education and CultureBuilding E, 19th FloorJl. Jendral Sudirman, Senayan, Jakarta 10270Tel.: +62-21 5785 1100, Fax: +62-21 5785 1101Website: www.acdp-indonesia.orgSecretariat email: [email protected]

Published in February 2016

The Government of Indonesia (represented by the Ministry of Education and Culture, the Ministry of Religious Affairs and the Ministry of National Development Planning/ BAPPENAS, the Australian Agency for International Development (AusAID), the European Union (EU) and the Asian Development Bank (ADB) have established the Analytical and Capacity Development Partnership (ACDP) as a facility to promote policy dialogue and institutional and organizational reform of the education sector to underpin policy implementation and help reduce disparities in provincial and district education performance. The facility is an integral part of the Education Sector Support Program (ESSP) which consists of EU sector budget support with agreed arrangements for results-led grant disbursement, and earmarked policy and program-led AusAID sector development grant support consisting of a school infrastructure program, a nationwide district and school management development program and a program to accelerate the GOI’s accreditation of private Islamic schools. This report has been prepared with grant support provided by AusAID and the EU through ACDP.

The institution responsible for implementation of the study was PT. Trans Intra Asia.

The Consultants Who Prepared This Report Are:

1. Bagyo Y. Moeliodihardjo, Team Leader / Higher Education Expert2. Megawati Santoso, Qualifications Framework Expert3. I.B. Ardhana Putra, Recognition of Prior Learning Expert4. Sumarna F. Abdurahman, Vocational Education and Training Expert5. Anna Agustina, Communication Expert6. Andrea Bateman, Qualifications Framework Governance Expert7. Ann E. Doolette, Qualifications Framework Expert8. Maria Slowey, Recognition of Prior Learning Expert

The views expressed in this publication are the sole responsibility of the authors and do not necessarily represent the views of the Goverment of Indonesian, the Goverment of Australia, The European Union or the Asian Development Bank.


EUROPEAN UNIONKEMENTERIAN PENDIDIKANDAN KEBUDAYAAN

KEMENTERIANAGAMA

Kementerian PPN/Bappenas

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TableofContentsListofabbreviations.....................................................................................................................................................viExecutivesummary.....................................................................................................................................................viiChapter1 Introduction.............................................................................................................................................1

1.1 ASEANEconomicCommunity......................................................................................................................11.2 NationalQualificationsFramework.............................................................................................................21.3 TheAnalyticalandCapacityDevelopmentPartnership(ACDP)024study..................................................3

1.3.1 Objectives............................................................................................................................................31.3.2 Developmentstrategy.........................................................................................................................4

Chapter2 Currentstageofimplementation............................................................................................................52.1 IndonesianQualificationFramework...........................................................................................................52.2 Assuringqualityinhighereducation...........................................................................................................6

2.2.1 Accreditation.......................................................................................................................................62.2.2 Professionalcertification....................................................................................................................72.2.3 Internalqualityassurance...................................................................................................................7

2.3 Implementationofcompetencystandards..................................................................................................82.3.1 Skillstrainingproviders.......................................................................................................................82.3.2 Competencybasedtrainingandassessment......................................................................................9

2.4 RecognitionofPriorLearning....................................................................................................................112.4.1 RPLinhighereducation....................................................................................................................122.4.2 RPLinwidercontext..........................................................................................................................12

2.5 Defininglearningoutcomes.......................................................................................................................14Chapter3 Internationalexperiences......................................................................................................................15

3.1 NationalQualificationsFramework(NQF).................................................................................................153.1.1 Qualityassurance..............................................................................................................................163.1.2 Levelsinthequalificationsframework.............................................................................................193.1.3 Qualificationtypes............................................................................................................................193.1.4 Qualificationspathways....................................................................................................................19

3.2 RecognitionofPriorlearning(RPL)............................................................................................................203.2.1 RPLWorldWide................................................................................................................................203.2.2 Differentmodels(uses)ofRPL..........................................................................................................213.2.3 RPLandNationalQualificationFrameworks.....................................................................................233.2.4 RPLinpractice...................................................................................................................................243.2.5 ChallengestoRPLimplementation...................................................................................................273.2.6 Qualityandstandards.......................................................................................................................30

3.3 Governance................................................................................................................................................333.3.1 Nationalqualificationsauthorities....................................................................................................333.3.2 Characteristicsofthequalificationssystem......................................................................................343.3.3 Legislativebasis.................................................................................................................................353.3.4 Scopeofresponsibilities....................................................................................................................363.3.5 Membershipofthegoverningbody..................................................................................................383.3.6 Reportingstructures.........................................................................................................................393.3.7 Sourcesoffunding.............................................................................................................................39

Chapter4 Findings.................................................................................................................................................404.1 Governance................................................................................................................................................40

4.1.1 Segmenteddevelopment..................................................................................................................404.1.2 Weakcoordination............................................................................................................................41

4.2 QualificationsFramework..........................................................................................................................414.2.1 Lackofnationalcompetencystandardsasareference....................................................................414.2.2 Irrelevantqualificationlearningoutcomes.......................................................................................424.2.3 Qualityassurance..............................................................................................................................42

4.3 RecognitionofPriorLearning....................................................................................................................43

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4.3.1 BenefittingfromRPL.........................................................................................................................444.3.2 Industryexperiencedlecturers.........................................................................................................444.3.3 EnsuringconfidenceinRPLdecisions................................................................................................44

Chapter5 RoadmapforIQFimplementation........................................................................................................455.1 RationaleofIQF.........................................................................................................................................455.2 StructureoftheIQF...................................................................................................................................455.3 Implementationstrategy...........................................................................................................................45

5.3.1 LegislativeBasisforImplementationofIQF......................................................................................465.3.2 Implementationstages.....................................................................................................................47

5.4 Engagementstrategy.................................................................................................................................51Chapter6 RoadmapforRPLdevelopment............................................................................................................52

6.1 RationaleforRPLinIndonesia...................................................................................................................526.2 PurposesofRPL.........................................................................................................................................536.3 PrinciplesunderlyingRPL...........................................................................................................................546.4 Stakeholders..............................................................................................................................................556.5 Identifyingpriorlearningskills...........................................................................................................566.6 ActorsintheRPLprocess...........................................................................................................................586.7 Assessmentandawardingmodels.............................................................................................................596.8 Implementationchallenges.......................................................................................................................60

Chapter7 RoadmapforIQBestablishment...........................................................................................................617.1 RationaleforIndonesianQualificationBoard(IQB)...................................................................................617.2 Basicprinciples..........................................................................................................................................617.3 Nationalcurrentcontext............................................................................................................................617.4 Scopeoftheresponsibilities......................................................................................................................62

7.4.1 MaintenanceandmonitoringofIQF.................................................................................................637.4.2 Policydirection..................................................................................................................................637.4.3 Coordination.....................................................................................................................................647.4.4 Advocatingandpromoting................................................................................................................657.4.5 Liaisonandfocalpoint......................................................................................................................657.4.6 Evaluation.........................................................................................................................................667.4.7 Qualityassurance..............................................................................................................................66

7.5 Recommendedmembership.....................................................................................................................687.6 Secretariat:asupportingorganization......................................................................................................697.7 Possiblelegalstatus...................................................................................................................................70

Chapter8 Recommendations.................................................................................................................................718.1 Government...............................................................................................................................................71

8.1.1 EstablishmentandgovernanceofIQB..............................................................................................718.1.2 Preparationforfullimplementation.................................................................................................728.1.3 Capacitybuildingforinstitutions......................................................................................................728.1.4 Buildingaqualityculture..................................................................................................................73

8.2 Highereducationinstitutions....................................................................................................................738.2.1 Testamurs..........................................................................................................................................738.2.2 Qualityassurancenetwork................................................................................................................738.2.3 CapacitybuildingonRPL...................................................................................................................74

8.3 Otherskillstrainingproviders....................................................................................................................748.4 Qualityassuranceagencies........................................................................................................................74

8.4.1 PreparingforIQFimplementation....................................................................................................748.4.2 Externalevaluation...........................................................................................................................75

8.5 Employers..................................................................................................................................................758.6 Professionalassociations...........................................................................................................................758.7 Workersandjobseekers...........................................................................................................................758.8 Timeline.....................................................................................................................................................76

Bibliography................................................................................................................................................................78

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Appendix1:Registeredprivatetrainingandcourseproviders...................................................................................82Appendix-2:Studyprogramscompleteditsdescriptors.............................................................................................83Appendix3:Termsofreferenceforgovernmentintervention...................................................................................84AnnexA:ReportonFocusGroupDiscussions............................................................................................................90AnnexB:ReportonRPLconsultationquestionnaire................................................................................................114AnnexC:ReportonstudytriptoHongKong............................................................................................................124AnnexD:ReportonstudyvisittoIrelandandEngland.............................................................................................134AnnexE:PaperpresentedattheInternationalWorkshoponHigherEducationReform2015................................151

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Listofabbreviations

AEC ASEANEconomicCommunityAIPDKI IndonesianNursingDiplomaEducationInstitutionAIPNI IndonesianNursingEducationInstitutionAssociationAQF AustralianQualificationsFrameworkAQRF ASEANQualificationsReferenceFrameworkASEAN AssociationofSouthEastAsianNationsASEM ASEAN–EUEducationMinisters’MeetingBAN-PT BadanAkreditasiNasionalPerguruanTinggi-NationalAccreditationAgency forHigher

EducationBappenas BadanPerencanaanPembangunanNasional-NationalDevelopmentPlanningAgencyBLK BalaiLatihanKerja–SkillsTrainingCenterBNSP BadanNasionalSertifikasiProfesi–NationalProfessionalCertificationAgencyBSNP BadanStandarPendidikanNasional–BoardofNationalEducationStandardsDGHE DirectorateGeneralofHigherEducationDIKLAT PendidikandanPelatihan–EducationandTrainingDLSA DirectorateofLearningandStudentAffairs–DGHE,andrecentlyconverted into the

DirectorateGeneralofLearningandStudentAffairs–DGLSAMoRTHEHHRMA HotelHumanResourceManagerAssociationHKQF HongKongQualificationsFrameworkHKSAR HongKongSpecialAdministrativeRegionIAI IndonesianAssociationofAccountantsIAPI IndonesianInstituteofCertifiedPublicAccountantsIQB IndonesianQualificationBoardIQF IndonesianQualificationFrameworkKADIN KamarDagang&IndustriIndonesia-IndonesianChamberofCommerce&IndustryKKNI KerangkaKualifikasiNasionalIndonesia–IndonesianQualificationFrameworkLKP LembagaKursusdanPelatihan–CoursesandTrainingInstitute,accreditedbyMoECLPK LembagaPelatihanKerja-SkillsTrainingInstitute,accreditedbyMoMLSP LembagaSertifikasiProfesi–ProfessionalCertificationBodies(PCB)MoEC MinistryofEducationandCultureMoH MinistryofHealthMoI MinistryofIndustryMoM MinistryofManpowerMoRTHE MinistryofResearch,Technology,andHigherEducationMRA MutualRecognitionArrangementNZQF NewZealandQualificationsFrameworkPCB ProfessionalCompetency/CertificationBodies–LembagaSertifikasiProfesiPHRI IndonesianHotel&RestaurantAssociationPKBM ProgramKegiatanBelajarMasyarakat–CommunityLearningProgramPPNI IndonesianNursingAssociationRPL RecognitionofPriorLearningSKPI SuratKeteranganPendampingIjasah–DiplomaSupplementSKKNI/NCS StandarKompetensiKerjaNasionalIndonesia–NationalCompetencyStandardSISLATKERNASSistemPelatihanKerjaNasional-NationalSkillsTrainingSystem

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Executivesummary

Nowadaysglobalizationisanundeniabletrendandunlikelytobereversed.Inthecontextoftheglobaleconomywiththeincreasingfreetradeofgoodsandservices,freemovementofcapital,technologyandskills, combined with advancement in transportation and communication, the implementation ofqualifications framework becomes an essential requirement. The Government of the Republic ofIndonesia(representedbytheMinistryofEducationandCulture,theMinistryofReligiousAffairs,andtheMinistry of National Development Planning / Bappenas); the Australian Agency for InternationalDevelopment (AusAID); the European Union (EU); and the Asian Development Bank (ADB) haveestablishedtheAnalyticalandCapacityDevelopmentPartnership(ACDP)asafacilitytopromotepolicydialogue and institutional aswell as organizational reformof the education sector to underpin policyimplementationandhelpreducedisparitiesinprovincialanddistricteducationperformance.

ACDP commissioned a study team to conduct the study for supporting the development of theIndonesianQualificationsFramework(IQF).Thedevelopmentobjectivesofthisstudyaretocontributetowardsachievingnationalmediumtolongtermsocio-economicgoalsbysupportingeffortstoimprovethequality,efficiency,relevanceandcompetivenessofnationaleducationandskillsformationthroughtheimplementationofIQF,particularlyinhighereducation.Thisreportcoversastudyoninternationalexperiences,findingsfromthestudyanditsanalysis,aswellasrecommendations. Italsopresentstheroadmap for the implementationof the IQF; thedevelopmentofRecognitionof Prior Learning (RPL)system;andtheestablishmentoftheIndonesianQualificationBoard.Using4criteria(nationalpriority,feasibility, impact, and representativeness) the study selected three sectors as pilot, namely nursing,accounting,andtourism.

In 2012 the Presidential Regulation 8/2012 on the Indonesian Qualifications Framework (IQF) wasenacted.ThePresidentialDecreestipulatesahierarchyof9qualificationlevelstoenableequivalencingoftheoutcomesofformaleducation,non-formal,informal,orworkexperiences.Itservesasareferenceforunderstanding the complexityof recognized competence in the job structure in all sectors. It alsobecomesthefundamentalreferencefordefiningthecompetenceofgraduatesofacademic,vocational,and professional education against the different levels. The levels of the IQF is described as learningoutcomes,consistingof (i)values,ethics,moralasbasiccomponents; (ii)science,knowledge,orknowhowcomprehension;(iii)workcompetencies;and(iv)levelofautonomyandresponsibilityintheworkplace.

The current stage of implementation of IQF varies among different sectors in Indonesia. Althoughcertification is common in vocational stream such as polytechnics, implementing learning outcome isrelativelynewinhighereducation.Theimplementationofqualificationsframeworkinhighereducationshouldbecarriedoutinthecontextoftowardimprovingqualityandrelevancebystrengtheningqualityassurance.IntheIndonesianhighereducation,externalqualityassuranceismostlycarriedoutthroughthe accreditation process, conducted by the National Accreditation Board (BAN-PT). The instrumentsused for accreditation process refer to the national education standards developed by the Board ofNationalEducationStandards(BSNP),andconcernover learningoutcomesaswellascompetenciesasrequired by employers is still limited. Some professional oriented programs, such as engineering,medical,andaccounting,alsousecertificationprocessconductedbyprofessionalassociationstoassurequality.Exceptinfeweliteinstitutions,qualityassuranceismostlydrivenbythemandatoryrequirementofaccreditation,and internalqualityassurancehastobesignificantly improvedtobesustainable.TheIQF also requires courses offered in higher education to adjust their learning outcomes to skillsformation, frompreviously limited to education achievement, andmake this information available tothepublic.

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In the skills training sector, competency standards have been implemented for 9 years when thePresidentialdecreeonIQFwasissued.ThenationalskilltrainingsystemwasdevelopedaftertheLawonManpower was enacted in 2003. Skills training are mostly administered under the auspice of theMinistry of Education and Culture (MoEC), Ministry of Manpower (MoM), as well as Ministry ofResearch, Technology, and Higher Education (MoRTHE). Figures acquired in 2014 show that 7,580private providers are registered under MoM, and 12,591 under MoEC. However, the accurate totalnumberofskillstrainingprovidersisdifficulttodetermine,sincemanyaredouble-counted.ThisfiguredoesnotincludeskillstrainingprogramsofferedbyhighereducationinstitutionsunderMoRTHEforitscommunityservice.

UndertheMoM,theNationalAgencyforProfessionalCertificationorBadanNasionalSertifikasiProfesi(BNSP) is responsible to carry out certification through the provision of licenses to professionalcertificationbodies(PCBorLSP).TheNationalSkillsTrainingSystemisimplementedbasedonthethreepillars of competency based training system, namely (i) user defined competency standard, (ii)competencybasedskillstrainingprogram,and(iii)competencycertification.

AlthoughRecognitionofPriorLearning (RPL)hasbeenpracticed in industries to recognizeemployee’scompetencies for his/her career promotion, a national standard procedure is relatively new forIndonesia.In2013,theDirectorateofLearningandStudentAffairs(DLSA)conductedapilotprograminselectedstudyprogramsinpublicpolytechnicstointroduceRPLprogram.

A thorough overview was conducted by team members on the international experiences ofimplementing NQF. Analysis of the national qualification agencies in six countries (Australia - Board,Australia –Council, New Zealand, Hong Kong, Ireland, Scotland, and South Africa) shows a variety ofmaintenance of the framework, monitoring, promoting QA, maintain register of responsible bodies,liaisewithQAbodies,datacollection,internationalliaison,andmembershipstructureamongthecasesstudied.Themajorityofthesecountrieshavecreatedasinglequalificationsauthoritytodesignand/orimplementandmanagetheirNQF.TheonlyexceptionisSouthAfrica,whichreviseditsNQFlegalbasisin2008anddividingthenationalauthorityintothreedifferentsubframeworks.

Of the six countries reviewedall haddifferentmechanisms for theestablishmentof their responsibleagency,sinceitisintrinsicallylinkedtothelegalbasisofthecountry’sNQF.ThelegislativebasisoftheNQFsinthesixcountriesvaries.InallbutAustraliaandHongKong,thecurrentresponsibleagencyhasalegalbasisandalevelofindependencefromthatofthegovernment.Thislegalindependencehastwoadvantages – it provides for a politicalmandate for its role in themaintenance, implementation andpromotion of the NQF and also provides for a level of autonomy from the direct influence andcompetingdemandsofgovernmentministriesandpotentialforchangesinpolicies.

Research across the six countries in terms of roles and responsibilities indicates quality assuranceresponsibilities (applied by the agencies of Ireland, South Africa and New Zealand) and the commoncommunicative and coordination roles related to its NQF include, monitoring, dissemination andpromotion of the NQF, dissemination and promotion of quality assurance, liaison with internationalbodies.Themembershipnumbersgenerallyrangefrom8to16members;however,inthecaseofSouthAfricatheBoardinitsinitialstage(anddirectlyaftertheapartheidperiod)hadupto25members.Themajority of the agencies is considered as quasi autonomous non government organizations, and isresponsible in some way to government. In the main, most responsible agencies report to theirgovernment via an annual report and also have their financial accounts audited annually. Almost alldependentirelyongovernmentfundingallocation.

A national qualifications framework in its simplest form is a set of standards for a nation’s agreedqualifications.Thecriteriaforthequalificationlevelsandqualificationtypesareexpressedaslearning

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outcomesthatis,theexpressionofwhatthegraduate(thequalificationholder)knows,cando,andcanapply in context (such as the workplace or further learning). The shift to learning outcomes-basedqualifications,akeyfeatureofaqualificationsframework,putsassessmentfrontandcentre.Thisdoesnot negate the importance of quality teaching and learning, but it does allow different pathways toachievingaqualificationwhichmaynotbebasedon formal learning.Levelsareexpressedas learningoutcomeswhichincreaseincomplexitywitheachlevel.

OneofthemaindrivingfactorsunderlyingtheEUstrategyinintroducingRPLwasthevisiontodevelopEuropetobecomeagloballyleading,dynamicandcompetitiveknowledge-basedregion.Althoughwellestablished RPL programs can be identified inmany other countries such as, Australia, New Zealand,Canada,andUSA,theimplementationofRPLisanalyzedmostlybyusingtheEuropeanmodelasacase.IdentifiablemodelsofRPLaremostlyutilizeamixofRPLforaccessornon-standardadmissions,RPLforcredit recognition, RPL for skills assessment and occupational advancement, and RPL for personaldevelopment. RPL systems are best served when levels of qualifications are clearly articulated in anoutcomes-based NQF, with specific competencies articulated for particular economic areas andoccupations.

Creating an enabling environment for the successful implementation of RPL necessitates thedevelopment of appropriate policies in a number of areas. Itmeans that RPL requires attention at amacropolicylevelandatamicroinstitutionallevel.Establishingsuchpoliciescanbeparticularlydifficultincountrieswhichlackrobustlegalframeworksandnationalguidelines.FranceisaninterestingcaseinthisregardasitisoneofthefewcountriestowriteintolegislationtherightofallworkingindividualstoearnadiplomaorprofessionalqualificationthroughRPL.Nevertheless,even incountrieswherethereareexistinglegalframeworks,thereremainsacontinuedneedtodevelopandmaintainmoreeffectiveandtransparentprocedures.

The implementation of RPL should take into account some constraints. The first constraint is thefinancial resources required to put an RPL infrastructure in place span a continuum of low to highdependingonthenatureof therecognition (formal, informalornon-formal)andthepurpose (access,credit, or occupational). Human resources, particularly in administrative areas, are perhaps themostintensive requirement for successful implementation of RPL. The second constraint is institutionalconstraints, since RPL can challenge some of the universities’ traditional policies and organisationalstructures, as well as their long-standing philosophical approach to education. The third and lastconstraint is the stakeholder constraints, whereby the commitment of many stakeholders includingemployers,educationandtrainingproviders,professionalbodies,employeerepresentativebodies,andthepolicycommunityiscriticaltosupporttheimplementation.

Thestudyteamconductedseveralworkshopswithrelevantstakeholdersineachofthe3pilotedfields,involving association of providers, association of employers, and professional association. We alsoconductedseparatesessionswithemployers, regulators,qualityassuranceagencies,andvisiteda fewsampleduniversitiesindifferentcities.TheteamconductedoverseasstudytripstoHongKong,Ireland,andEngland,andtookseveralimportantstakeholdersasparticipants.

Theteamfindsthatthedevelopmentofqualificationframeworkamongthethreemainplayers,MoEC,MoM,andMoRTHE, is segmented.Weakcoordination in theQFdevelopmentunnecessarily increasescost,drivesthesystemintocumbersomebureaucracyandinsomecasesoverlappingregulationsissuedbydifferentministries.

During the FGDs conducted, the team finds that several problems have to be resolved to harmonizenomenclature,jobtitles,andlearningoutcomeswiththeIQFandASEANMutualRecognitionAgreement(MRA).Thisisparticularlytrueforsectorastourism,wherebythecompetencystandardshadbeen

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implemented 9 years earlier than the IQF establishment. In other sectors such as accounting, thelearningoutcomesdefinedbyprovidersforqualificationsareatoddwiththecompetenciesrequiredbytheemployers.Inthenursingsector,thedisparityofqualityisworrisomesincemanyprovidersfailedtocomplywiththestandardsofcompetency.

Insomeprofessions inthehighereducationsector,suchasmedicalandaccounting,relymoreonexitexamination toassurequality. However,makingdecisionof fail orpass is almostentirelydependonone time observation. Since the reward of passing the exam is significantly high, it drives someparticipantstobeatthesystembycheatingoruseothermanipulativemeasures.Thereforethequalityassurance system has to be rigorously implemented internally within the training providers, and theinternalqualitycultureshouldbedevelopedandnurtured.

FindingsfromasmallsurveyconductedbytheteamshowsthatawarenessofRPLislimitedandformalengagementwith RPL is still in its initial form. Indonesia faces amajor RPL implementation problemsince the national system has to deal with amassive volume of potential RPL cases, particularly theupgradingof46,000unqualifiednurses.

Thisreportpresents3(three)roadmapsforimplementation,namelytheimplementationoftheIQF,thedevelopmentofRPLmodel,andtheestablishmentoftheIndonesianQualificationBoard(IQB).

The roadmap for the implementation of IQF is designed in two stages, namely the preparation andimplementation stage.Most activities in thepreparation stagewill become the responsibilities of theIQB,suchaspreparingthenecessary lawandregulations,officialdocumentation,theuseof logo,andthemandatoryregistration(oraccreditation).ItmeansthatthefullimplementationofIQFcouldonlybecarriedoutaftertheIQBisestablished,thoughpartialimplementationinparticularsectorsuchashighereducation will still be possible to continue. In the implementation stage, activities included arepromotingaccountability,newqualification types, andqualityassurance. It is essential toensure thatthequalityassuranceprocessearnedtrustandconfidencefromthestakeholdersbyimposingproperQAstandards. In theprofessionalstreamofhighereducation,althoughtheestablishmentof independentaccreditation agencies (LAM) could add to the complexity, the confusion could be resolvedwhen theIQB has been established. All agencies dealing with quality assurance should be accountable, byadhering to the criteria setby theASEANQRF. If considerednecessary, assessmentof theseagenciescouldbeconductedbyinvolvingindependentexternalexpertsoragency,suchasINQAAHE.

The strategy for carrying out engagement is also presented. Engagement is needed to inform allstakeholdersatnationallevelaboutthebenefitsofIQF,andpracticalguidelinesforimplementingit.Theteamrecommendsthemediapreferencesindisseminatinginformation,whichareseminarorworkshop,officialwebpage,television,andnewspaper.Multiplatformconvergencestrategyliketheonecurrentlyimplemented by MoRTHE (Facebook, twitter, and mainstream media covering MoRTHE activities) ishighly commendable. This options of engagement strategy, is cost efficient since it allows theinformation to directly reach the targeted individual and organizational who are aspiring to improvetheirquality.

RecognitionofPriorLearning(RPL)isthepracticeofrecognizingtheknowledge,skillsandcompetenciespeople have acquired through formal, non-formal or informal processes. Although it is theoreticallypossible forRPL toapply to youngpeopleunder16of age, inpracticeRPL ismore closely connectedwith lifelong learning and the continued need for a skilled and adaptable workforce. The identifiedpotential benefits of RPL includes, employability and adaptability, upgrading qualifications of thepopulation,equityand fairness, stimulus for innovation ineducationand training, aswellasmobilityand flexibility. In the roadmap for RPL development, the stakeholders identified among others are,

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highereducation institutions,professionalbodies,employeerepresentatives,employers, learners,andthepolicycommunity.

Theassessmentofpriorlearningcantakemanyformsandassessmentforthepurposesofcertificationofteninvolvesacombinationofmethods,fromthehighly individualizeddevelopmentofaportfoliotohighlyformalizedassessmentviaexaminations.AsthepurposesofRPLcanvarydepending,forexampleon vocational and professional certification requirements and levels of institutional autonomy, themethods of assessment could be selected from tests and examinations, declaration, interviews,observations, simulation, portfolio, presentation, and debate, or a combination of them. The successand quality of RPL is dependent upon the capacity of administrators, mentors/facilitators, assessors,processmangers,externalobservers,andinterestedstakeholders.Asidentifyinglearnerskillscanbeatime-consumingprocess,itmaybefruitfultoconducttheseexerciseswithgroupsoflearners.

In general, although RPL promises some advantages, pitfallsmay still be encountered due to variousreasons such as, lack of enthusiasm from learners, heavy bureaucracy, and inadequate supports forevidencegathering,andconfusinglanguageandprocedureinequivalencingpriorlearningcomponentsinto the IQF. In the education sector, problems encountered among others are, policy related toadmission, curriculumdesign thataccommodates flexibility, staff capacity,using technology, anddatabasedevelopmentformaintainingcontinuousimprovementandtrackingsystem.

On the establishment of IQB the roadmap elaborates the scopeof responsibilities of the IQB,whichincludemaintenance andmonitoring of IQF, providing policy direction, coordinating, advocating andpromoting, and liaison to international organizations. It recommends the structure of the Boardmembership,establishmentandstaffingoftheSecretariat,aswellasalternativesinitslegalstatus.Thestudy team submits recommendations addressed to the government, higher education institutions,otherskillstrainingproviders,qualityassuranceagencies,employers,professionalassociations,workersand job seekers. The main recommendation to the government is to establish the IndonesianQualificationBoard.ThisactionisurgentlyneededtocoordinateallactivitiesrelatedtoIQFandensuresynergeticeffort,particularlytocopewiththechallengesofAECimplementation.

The study recommends that the IQB reports directly to the Office of the President or the StateSecretariat(whichevermoreappropriate),toprovidetheIQBwiththeauthoritytocoordinateministriesaswellothergovernmentagencies,andensurea levelof independence.TheIQBshouldbesupportedbyastrongSecretariat,whichshouldbestaffedwithasmallnumberofqualifiedandcompetentstaff.OfficialdocumentationshouldbeproperlymaintainedandthegovernmentshouldannouncetheofficialcommencingdateofIQFimplementation.

Itisrecommendedforthegovernmenttoprovideassistanceandsupportforweakerinstitutionscopingwith the new challenges of implementing IQF. In order to prevent over emphasis on indicators andexternalassessment, it iscritical for thegovernment tosendaclearmessagetoall stakeholders, thattheultimategoalofintroducingtheIQFistobuildacultureofqualitywithineachinstitution.

The higher education sector should reform itself by introduce, develop, and strengthen the internalquality assurance toward a sustainable quality culture. Study programs and institutions approvedagainst the QA arrangements for the IQF need to be identified as IQF-compliant on the database ofhighereducation.Sinceautonomousuniversitiesareconsideredasthetopinstitutionsandbecometherolemodel of other institutions, it is essential for them tomaintain their quality standards.With theeasing of government control, the autonomous universities are encouraged to establish their ownqualitynetwork,withtheobjectivetomonitorandassistthequalityassurancewithintheseinstitutions.This network should be encouraged to share its expertise with non-autonomous institutions byconductingtrainingandprovidingtechnicalassistance.

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Thequalityassuranceagencies,BANPTaswellasBNSP,needtodeveloptheirresources,processes,andassessorstocopewiththenewchallenges.Qualityassuranceagenciesmustbesubjecttosomeformofexternal assessment to demonstrate that they meet globally accepted standards. In this context, ifconsiderednecessary,independentinternationalexpertsoragenciescouldbeinvitedtoinvolve.

EmployersassociationisencouragedtoestablishPCB/LSPthirdparty,whichhastheauthoritytoassessand award certificates to workers in the relevant sector. Whilst workers and job seekers arerecommended to continuously search for information on competencies required by industries, asdefinedintheIQFjobqualifications.

Atimelineforimplementation,whichisdividedintothreestages(short,medium,andlongterm)isalsopresentedattheendofthereport.Intheshortterm,untiltheendof2016,itisexpectedthattheIQBhasbeenestablished,officialdocumentationonIQFhasbeenpubliclylaunchedonawebsite,RPLhasbeen introduced to the stakeholders beyond the education sector, and BAN-PT has finalized itspreparationtoimplementIQFinitsaccreditationprocess.Inthemediumterm,whichwillrununtiltheendof2017,IQFstandardmeasureshavebeenimposedtoallregisteredqualityassuranceagencies,RPLprogramshavebeenwell receivedbyall stakeholders,and theuseof IQB logoasaqualityassurancestandard has been accepted bymost stakeholders. In the long run the IQB, capitalizing the availableinternational expertise, will periodically evaluate the implementation of QIF and submitrecommendationstothegovernmenttoimproveitseffectiveness.

Chapter1:Introduction

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Chapter1 Introduction

Nowadays globalization is an undeniable trend and unlikely to be reversed. Policy directions forcountriesandregionshavethustobedevelopedinthecontextoftheglobaleconomywithpressuresonnationalgovernmentstoaddressissuesoffreetradeofgoodsandservices,internationalmovementofcapital,technologyandskills,andadvancementintransportationandcommunication.Duetosignificantdifferencesincharacteristicsamongregionsintheworld,eachregionneedstodesignitsownstrategyonhowtocopewiththesemajorchallengesofglobalization.

1.1 ASEANEconomicCommunityIn the ASEAN region, member countries have decided to establish the ASEAN Economic Community(AEC)bytheendof2015.TheAECenvisageskeycharacteristicsofasinglemarketandproductionbase,ahighlycompetitiveeconomicregion,aregionofequitableeconomicdevelopment,andaregionfullyintegratedintotheglobaleconomy.

TheAECareasofcooperationincludehumanresourcesdevelopmentandcapacitybuilding;recognitionof professional qualifications; closer consultation on macroeconomic and financial policies; tradefinancing measures; enhanced infrastructure and communications connectivity; development ofelectronictransactionsthroughe-ASEAN;integrationofindustriesacrosstheregiontopromoteregionalsourcing; and enhancement of private sector involvement in the building of theAEC. In short, in linewith global trends– notwithout controversy– it appears that the policy intention is that theAECwilltransformASEANintoaregionwithfreemovementofgoods,services, investment,andskilled labour,and freer flow of capital. In addition, the single market and production base also will include twoimportant components, namely, the priority integration sectors, and food, agriculture and forestry[ASEAN2008].

TwelveprioritysectorshavebeenselectedforenteringtheASEANFreeTradeArea(AFTA),andthreeofthemhave already completed theirMutual Recognition Arrangements (MRAs).Of the twelve prioritysectors,thefiveservicesectorschosenarehealthcare,tourism,logistic,E-ASEAN,andairtransportation.The remaining seven priority sectors selected are in goods: agro products, wooden products, rubberproducts,fishery,electronics,automotives,andtextiles.

InordertofacilitateamutualunderstandingofASEANmembercountries’qualifications,andthereforeassistinthemobilityofworkers,aswellasstudents,amongthemembercountries,anagreedstandardhas been established. In 2015, the relevantministers of themember countries endorsed the ASEANQualifications Reference Framework (AQRF). TheAQRF consists of eight levels each described as twodomains:knowledgeandskills,andapplicationandresponsibility.

TheestablishmentoftheIndonesianQualificationFrameworkwasdrivenbynationalneeds,aswellasthe country’s regional and global engagements. Nationally, Indonesia faces manpower challengesincludingamismatchbetweenprofessionalandskillseducationand trainingoutcomesandworkforceneedsanddisparity inthequalityofgraduateswhichfurtherexacerbatesthesupplyofhumancapitalforemployment.

Regionally,IndonesiaisasignatorytotheASEANEconomicBlueprint[ASEAN2007)whichrequiresareasof cooperation, including the recognition of professional qualifications. Mutual RecognitionArrangements (MRAs) in the fields of engineering, nursing, tourism, architecture, land surveying,medicalpractitioners,dentalpractitioners,andaccountancywerecreated,starting in2005,tosupportthefreeflowofskilledlaborthrough‘harmonizationandstandardization’,particularlyinpreparationfor


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thecommencementoftheASEANEconomicCommunityin2015.ASEANisalsolinkedtotheAsia–PacificregionthroughcrossmembershipofAsia-PacificEconomicCooperation(APEC).

In responding to its global commitments, Indonesia joined a number of international conventions insectors including trade, economics, environment, and education. To name a few: the GeneralAgreementon Trade in Services in1994, theWorld TradeOrganization in1995, theASEANFree TradeArea in1992,theRegionalConventionontheRecognitionofStudies,DiplomasandDegrees inHigherEducation in Asia and the Pacific in1983. This supports Indonesian workforce mobility through fourmodesofsupply:

• Cross-bordersupply:thepossibilityfornon-residentservicesupplierstosupplyservicescross-borderintothemember’sterritory;

• Consumptionabroad:thefreedomforthemember’sresidentstopurchaseservicesintheterritoryofanothermember;

• Commercialpresence:theopportunitiesforforeignservicesupplierstoestablish,operateorexpandacommercialpresenceinthemember’sterritory,suchasabranch,anagency,orawhollyownedsubsidiary;

• Presence of natural persons: thepossibilitiesoffered for the entry and temporary stay in themember’sterritoryofforeignindividualsinordertosupplyaservice.

1.2 NationalQualificationsFrameworkIndonesiahasbeenoneoftheactiveparticipatnsofvariousinitiativesinregionaleconomicintegration,suchasAPEC,AFTA,andWTO.SincethepolicyofembracinginternationalizationrequiresIndonesiatocomplywiththeagreeduponstandards.Fortheeducationandtrainingsector,itcouldbecomeastrongpressuretomaintainandimprovequality,aswellasallowingmoreflexibilityforachievingqualificationsand competencies by implementing a “multi entry and multi exit” system. NQFs are now globallyrecognizedasthefoundationoftheeducationalstrategiesneededtobuildnations’skilledworkforcestosupport their economic development and growth. Therefore the government issued the PresidentialDecree8/2012ontheIndonesianQualificationsFrameworkin2012.

The best estimate is that the majority of countries – spanning all continents – has developed or isdeveloping a national qualifications framework. Furthermore with the increasing global mobility ofworkers,theneedforanationalmechanismagainstwhichskillsandqualificationsgainedelsewherecanbe recognized is becoming an imperative. NQFs are used for the latter purpose in the absence of aregionallyagreedreferencingtoolsuchastheAQRFortheEQF.

While economic development is an indisputable stimulus, as illustrated in the ASEAN case, thedevelopment of qualifications framework is also motivated by a nation’s imperative to reform itseducationsystem.Initsinitialdesignphase,theintentionwasfortheEQFtobeatranslationdevicetounderstand individual competenciesandqualificationsacross themember countries. In summary, thepracticalreasonsfordevelopingaNQFarepresentedinthebox.

Inreality,itisdifficulttoseparatethedriverofeducationsystemreformfromtheneedforcountriestoeducate the populace for employment. For example, the impetus for the revision of Australia’s firstqualificationsframeworkwastofacilitatetheemergenceofAustralia’svocationaleducationandtrainingsector1.However,theneedforastructured,vocationally-orientedtrainingsectortoexpandthealready

1The initial implementationofaframeworkofqualifications in1972wasrevisedwiththesubsequent implementation intheearly 1990s of the Australian Qualifications Framework which became known as a first generation national qualificationsframework.


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strongtrades-trainingsystemandtositalongsidehighereducationandschooleducationsectorswasstronglygroundedinthecountry’seconomicreformprograms.

TheAQRFisacommonreferenceframeworkdesignedasatranslationdevicetoenablethecomparisonofqualificationsacrossASEANmembercountries.AsNationalQualificationsFramework(NQF)becomesanessentialrequirementinimplementingtheAEC,eachASEANmembercountryisrequiredtoestablishitsownNQFandreferenceittotheAQRF.ThefollowingboxsummarizessomeofthemainrationalesofferedforthedevelopmentofNQFswhichareexploredinmoredepthinsubsequentchapters.

1.3 TheAnalyticalandCapacityDevelopmentPartnership(ACDP)024studyInorder to respondto theglobal trendofeconomic integration,complywith thesigned internationalagreement, and improve the workers’ quality, a study for supporting the implementation of theIndonesian Qualification Framework is conducted. This section describes the study objectives andstrategy.

1.3.1 Objectives

TheGovernmentoftheRepublicofIndonesia(representedbytheMinistryofEducationandCulture,theMinistry of Religious Affairs, and the Ministry of National Development Planning / Bappenas); theAustralian Agency for International Development (AusAID); the European Union (EU); and the AsianDevelopmentBank(ADB)haveestablishedtheAnalyticalandCapacityDevelopmentPartnership(ACDP)as a facility to promote policy dialogue and institutional as well as organizational reform of theeducationsectortounderpinpolicyimplementationandhelpreducedisparitiesinprovincialanddistricteducationperformance.Withinthiscontext, in2014theACDPcommissionedastudyteamtoconductthestudyforsupportingthedevelopmentoftheIndonesianQualificationFramework(IQF).

OverviewofthemainrationalesforNationalQualificationsFrameworks

Workermobility:Economicintegrationfacilitatestheflowofgoodsandservices,includingworkers,betweenparticipatingcountries.Sinceeducationandtrainingsystemsarewidelyvariedamongthemember countries, an agreed standard is needed to understand and regulate workers’qualification.Byimplementingsuchstandards,workerswouldbeeligibletotakejobopportunitieswithintheregionwithouthavingtotakeadditionalprocedurestore-qualifytheircompetencies.

Studentmobility:Withoutacommonunderstandingofeachother’squalifications,studentmobilitybetweencountrieswillbedifficulttoimplement.Thisisparticularlytruewhenmembercountriesdo not have a similar education and training system and require the transparency that aqualificationsframeworkcanprovide.

Relevance: When establishing program learning outcomes, stakeholders, particularly employersandusers,mustbeinvolved.Suchinvolvementwouldimprovetherelevanceoftheeducationandtrainingtotheworldofwork.

Lifelonglearning:Economicgrowthbringsnewprosperitythatdrivesadultemployees,whomighthavemissed theopportunity toproperlyattendschooling, to reenter theeducationand trainingsystem.Someof theirworkexperiencescouldberecognized,exempting themfromtakingsomecourses.Withoutaqualificationsframeworkthatprovidesforqualificationslinkagesandpromotesrecognition of prior learning, such an activity could be tedious, cumbersome, and eventuallydiscourage adults from continuing the learning. In theworld ofwork, experiences could also beusedtoacquireformalrecognitionthatdirectlybenefitsemployees’careers.

Accountabilityofproviders:Learningoutcomesatprogramlevelarerequiredtobewellarticulatedgiving sufficient information to the prospective students and parents. This accountability isrequiredaspartofgooduniversitygovernance.


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Thedevelopmentobjectivesofthisstudyaretocontributetowardsachievingnationalmediumto longterm socio-economic goals by supporting efforts to improve the quality,efficiency, relevance andcompetiveness of national education and skills formation through theestablishment of an IndonesianQualification Frameworkand associated systems andcapacity. This study aims to contribute towards[ACDP2014]:

a) improvedqualificationswhichbettermeettheneedsofthelabormarket;b) consistentstandardsforeducation/trainingprovidersandqualityassurance;c) improvedaccesstoinformationforprospectivestudents,employers,andotherstakeholders;d) flexiblepathwaysthroughtheeducationandtrainingsystemforlifelonglearning;ande) internationalrecognitionofIndonesianqualificationsinthecontextofincreasedmobilityof

laborandcompetitionbetweencountries’educationandtrainingsystems.

ThisfinalreportcoverstheroadmapfortheimplementationoftheIndonesianQualificationFramework(withreferencetotheASEANQualificationReferenceFramework); thedevelopmentofRecognitionofPriorLearning;andtheestablishmentoftheIndonesianQualificationBoard.

1.3.2 Developmentstrategy

Astheprogramwasdesignedfor15monthsofwork,itwasimpossibletocovertheentirespectrumofavailable fields. Therefore, itwas agreed that a number of keyfieldswould be selected as pilots, andused as reference for further developing the qualificationsspecificationsfor other fields.The followingpointswereconsideredincarryingouttheselectionprocess.

a) Nationalpriority:Fieldsconsideredapriority fornationaldevelopment.TheaimwastoconductintensiveconsultationswithrelevantstakeholdersandanextensivestudyontheexistingMRAtodefinethenationalpriorityfields.

b) Feasibility: Fields that are relatively more prepared for implementation which would requireextensivestudyontheexisingdocumentationofworkalreadydone.

c) Impact:Fieldsthatmighthavethegreatest impactonotherfields.Theaimwasfortheselectedfieldstobecomeamainreferenceforotherfieldsinimplementingthequalificationsframework.The intentionwas for intensiveconsultationswithrelevantstakeholdersandextensivestudyonexperiencesofothercountriesinthisissue.

d) Representativeness: Fields that represent a variety of scientific disciplines (e.g. engineering,medical, law, or accountancy), or the basis from where the competency is developed (e.g.industrybasedorprofessionbased).

Following thisprocess the three fieldsofTourism,Accounting,andNursingwereselectedas thepilotfields. It is important that theyare included inthe12priority integration sectorsofAEC2015andarealsoincludedintheMRA’samongASEANcountries.Thethreefields,whenproposed,wereunanimouslyendorsedbythestakeholderswhoparticipatedintheworkshopontheInceptionReport.

Thisstudyiscarriedoutin4stages,asdescribedintheinceptionreport[ACDP2014].

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Chapter2:Currentstageofimplementation

S3

S2

SPECIALIST

PROFESSION

987654321

D4

D3

D2

D1

Chapter2Currentstageofimplementation

2.1 IndonesianQualificationFrameworkAsthe largesteconomyinSoutheastAsia, Indonesia isalsothe largestmarket intheregion,making itvulnerable to the potentially uncontrollable influx of foreignworkers eager to capitalize on the largeemploymentopportunities.Inordertocopewiththechallenges,immediateactionshavetobetaken.Intheshortterm,IndonesianeedstoestablishaNationalQualificationsFramework(NQF)andimplementit asgovernmentpolicy. In the long run, Indonesiahas to improve thequalityof itshuman resourcesthroughtheimplementationofthequalificationsframework.

In2012thePresidentialDecree8/2012ontheIndonesianQualificationFramework(IQF)wasenacted.ThePresidentialDecreestipulatesahierarchyof9levelsoflearningoutcomestoenableequivalencingoftheoutcomesof formal education, non-formal education, and informal learningorwork experiences.The Presidential Decree 8/2012 on the Indonesian Qualification Framework (IQF) does not describequalificationsbutallowsfurtherstipulationsfortheIQFistobegovernedbythe‘ministerhandlinglaborissuesandtheministerinchargeofeducationaffairs’.

The notion of equivalence as illustrated in Figure-1 [DGHE 2012] indicates that the IQF serves as areference for understanding the complexity of recognized competences in the job structure in allsectors. It also becomes the fundamental reference for defining the competence of graduates ofacademic,vocational,andprofessionaleducationagainstthedifferent levels.The levelsofthe IQFaredescribedaslearningoutcomes,consistingof(i)values,ethics,moralasbasiccomponents;(ii)science,knowledge, or knowhow comprehension; (iii) work competencies; and (iv) level of autonomy andresponsibilityintheworkplace[DGHE2012].

LEARNINGPROGRESSINSCIENTIFIC

VOCATIONALHIGH

SCHOOL

LEARNINGPROGRESSINSKILLSANDCAREERDEVELOPMENT

DEVELOPMENT OCCUPATIONORCAREERUPGRADINGBYTRAININGORTHROUGHNON

FORMALEDUCATION

Figure-1:TheIndonesianQualificationsFramework(IQF)[DGHE2012]

S3

S2

S1

GENERALHIGH

SCHOOL

EXPERT

TECHNICIAN/ANALYST

OPERATOR

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2.2 AssuringqualityinhighereducationAll qualifications included in the IQF must meet an agreed standard established by all relevantstakeholders.Sincethenatureofvocationaleducationandskillstrainingisclosertotheworldofwork,itis understandable that this sector was the first in implementing agreed competency standards forsectors.Within this context, quality assurance plays a central role in implementing the standards, asdeliberatedinthefollowingsections.

2.2.1Accreditation

The Law20/2003 on theNational Education System stipulates that accreditation ismandatory for alleducationproviders.Currentlytheaccreditationprocessiscarriedoutbythefollowingagencies:

• NationalAccreditationAgencyforBasicandSecondaryEducation(BAN-SM);• NationalAccreditationAgencyforHigherEducation(BAN-PT);• NationalAccreditationAgencyforNonFormalEducation(BAN-PNF);and• IndependentAccreditationAgency(LAM)2.

Figure-2:Accreditationagenciesforeducation,trainingand/orassessmentproviders

Inaddition to theaccreditingagencies illustrated inFigure-2, therearea limitednumberofprovidersunder other lineMinistries which operate outside the system. Just tomention a few: the college ofaviation,thecollegeofmaritime,thepoliceacademy,andthemilitaryacademy.

In the higher education sector, the accreditation process is conducted by BAN-PT using the NationalStandardsonEducationasthemainreference.TheNationalStandardsonEducationisdevelopedbytheBoardofNationalStandardsonEducation(BSNP)andisenactedbytheMoECregulation.Although2LAMsarecurrentlyestablishedtoaccredittheprofessionaleducation,suchasmedicaleducationandengineeringeducation.In themediumterm, themandateof LAMwillbeexpanded tocoveraccreditationofall studyprograms,whilstBAN-PTwillfocusitsattentiontoconductinstitutionalaccreditation.

MINISTRYOFEDUCATION&CULTURE

BANSM

BANPNF

SCHOOLS

TRAININGCOURSEPROVIDERS

BNSP

SKILLSTRAININGSKILLSTRPARINOIVNIGDERS

SKILLSTPROVIDERSRAININGPROVIDERS

MINISTRYOFMANPOWER

MINISTRYOFRESEARCH,TECHNOLOGY,&HIGHER

EDUCATION

LAM BANPT

PROFESSIONALSCHOOLS

UNIV,COLLEGES,INSTITUTES

POLYTECHNICS

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learningoutcomeshavebeenincludedinthenationalstandards,thecurrentassessmentprocessdoesnotassignsignificantweighttotheoutcomes.Oneofthepossiblereasonsisthatassessorsarenotyetsufficientlytrainedtoassesseducationaloutcomes.

In addition to government accreditation, some study programs in more established universities alsoacquire international accreditation, mostly from international professional associations such as theAccreditationBoard forEngineeringandTechnology (ABET). InASEAN, theASEANUniversityNetwork(AUN)providesservicestoassessthequalityofaneducationprovider.Someuniversitystudyprogramshavebenefittedfromsuchoptionalexternalservices.

2.2.2 Professionalcertification

InthecontextofIndonesia,thehighereducationsectoralsoincludesvocationaleducationconductedbypolytechnics,andinsomecasesbyuniversitiesandcolleges.Manyoftheseprovidersarealsolicensedto certify graduates of the study programs on behalf of relevant professional associations. In somefields, theprofessional certificationbrings significant benefits to the graduates so thatmany alsoputeffortintoacquiringit,eitherthroughtheirhighereducationinstitutionordirectlyfromtheprofessionalassociation.

Inspecificsectorssuchashealth,anationalexitexaminationisorganizedbytherelevantprofessionalassociation. Only examinees that pass this examination are certified, and without this certification agraduate isnoteligible toacquire the license forpractice. Suchnationalexitexaminationshavebeenimposedformedicaldoctorsandnurses.

Whileanimportantmeansofcheckingcompetence,exitchecksortestsshouldbeaccompaniedbytheassessmentofeducationalinputsthroughaccreditationbecauseexperienceindicatesthatoverrelianceonexitexaminationscanencouragemanipulationofthetestingprocess.

2.2.3 Internalqualityassurance

Although external assessment is an important aspect in assuring quality, quality assurance must beinternallydriven.Currentlyconcernsoverqualityassuranceinmanyinstitutionsareonlyobservedpriorto the accreditation cycle. In the long run, reliance on external quality assurance alone will not besustainable.

Thecultureofcontinuousqualityimprovementwaswidelypopularizedin1970sbytheculturepracticedin the Japanese manufacturing industries. Subsequently the concept has been adopted, not only byindustries,butalsobyorganizationsinthesocialsectorincludingeducationalinstitutions.Therefore,thedevelopmentofaqualityculture inany learningorganizationsshouldeventuallybecometheultimateobjectivetoensuresustainabilityofhighqualityoutcomesforgraduates.

Theconceptofcontinuousqualityimprovement(Kaizen),asillustratedinFigure-3,wasconsideredtobethestrengthofJapaneseindustriesintheircompetitionwiththemoreestablishedindustriesinWesterneconomies.Kaizen,originally introducedtotheWestbyMasaaki Imai [Imai1986],today isrecognizedworldwide as an important pillar of an organization’s long-term competitive strategy. The lessonslearnedinotherindustriescanbeappliedtoeducationalinstitutions.

Although an internal quality assurance unit is mandatory for all higher education institutions, itseffectiveness varies significantly between institutions. The policy directions of the MoRTHE shouldprovidetheclearmessagethatstronginternalqualityassuranceistheultimateobjectiveandthismustbereinforcedintheNationalStandardsonEducationandthroughassessmentbyBAN-PT.

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CORRECTIVEMEASURES

IMPROVEMENT

AUDITNORMSANDSTANDARDS

BELOWSTANDARD

MEETSTANDARD

IDENTIFYPROBLEMS

EVALUATESTANDARDS

Figure-3:KAIZEN:Continuousqualityimprovement

2.3 Implementationofcompetencystandards

2.3.1 Skillstrainingproviders

Theskills trainingprogramsaremostlyadministeredunder theauspicesof theDirectorateGeneralofEarly Childhood andNon Formal Education in theMinistry of Education and Culture (MoEC) and theDirectorateGeneralofTrainingandProductintheMinistryofManpower(MoM)3.Nonetheless,varioustechnicalMinistries and industries also undertake skills trainings, e.g. the college of aviation and thecollegemaritimewhicharepartoftheMinistryofTransportation.

Thefollowinggroupsofprovidersaretheproviderstakeholdersintheskillstrainingsystem:

3Thisgroupingisderivedfromtheprevailingregulations(Law20/2003)andalsoimplementedintheorganizationalstructureoftheMoEC.

SkillsTrainingCenters(BalaiLatihanKerja)

In 1970, BLKs were established in several provincial capitals and districts under the MoM toprovideskillstrainingfortheyoungergeneration.BLKshadthepotentialtobecomethebackboneoftheskillstrainingsystem.ThesystemconsistsofonelargeBLKlocatedineachprovincialcapital,supported by smaller training centers at the district level. In total there are approximately 200smallerBLKs locatedall over Indonesia. These centrallymanagedBLKs couldpotentiallybecomepartof the standard-setting training system that, apart fromprovidingmarketoriented training,could serveascentersofexcellence formentoringprivate trainingproviders,providesupport totheapprenticeshipsystem,andconductinstitutionaltraining.

Afterthedecentralizationprocessin2000,however,theownershipofBLKswastransferredtotheregional government (provincial anddistrict level). Todaymany BLKs arenotproperlymanagedandsomecentersarewastedaswellasunderutilized.

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• TheTrainingCenter(BalaiLatihanKerja-BLK)underMoM;• CommunitycollegesunderMoEC(justrecentlylegalized);• NondegreeprogramsofferedbyhighereducationinstitutionsunderMoRTHE;• Privatetrainingandcourseproviders:

o LembagaPelatihanKerja(LPK)registeredandaccreditedbyMoMo LembagaKursusdanPelatihan(LKP)andProgramKegiatanBelajarMasyarakat(PKBM)–

registeredandaccreditedbyMoEC;• ThenationalapprenticeshipsystemunderMoM.

OtherMinistriesalsoprovidetrainingthroughtheirtrainingunits(Diklat)orthroughprivateproviders.Althoughtheircapacityismostlysmall,theyplayanimportantroleintheirrespectivesectors.

ThemostrecentinformationonprivatetrainingprovidersacquiredfromMoMandMoECispresentedinAppendix-1. However, the accurate total number of skills training providers is difficult to determine,sincesomearedouble-counted.ThelatestfiguresacquiredshowthatunderMoEC,74typesofcoursesandtrainingareregisteredandofferedbyatotalof27,321providers.

SECTOR SECTOR1 Computer 5717 8 Automotive 5612 Englishtraining 4423 9 Drivinglesson 4943 Tailor 3111 10 Culinary 4104 Hairdresser 1831 11 Music 3505 Lessoncounseling 1711 12 Arithmetic 3346 Bridalsaloon 1615 13 Embroidery 3067 Beautician 895

Table-1:ProgramsofferedunderMoEC4[MoEC2015]

2.3.2 Competencybasedtrainingandassessment

In order to improve effectiveness and productivity, in early 2000 a Memorandum of Understanding(MOU)betweentheIndonesianChamberofCommerceandIndustry(KADIN),theMoM,MoEC,andMoIwas signed to promote a competency based training system. Based on this MOU, a concept ofcompetency-based training was developed and the principles were later accommodated in theManpowerLaw13/2003.TheLawprovidesarighttoeveryworkertoacquirecompetencies,whichcanbe obtained either through training programs or through competency certification. A competency isdefinedasaworker’sabilitytoperformajobasrequiredbyanemployer. ItshouldbenotedthatthisLawwasenacted9yearsbeforethePresidentialDecree8/2012(IQF)wasissued.

As mandated by the Law 13/2003 and elaborated by Regulation 23/2004,the National Agency forProfessionalCertificationorBadanNasionalSertifikasiProfesi(BNSP)wasestablishedasanindependentagencywiththeresponsibilityofcarryingoutcertificationofcompetencies5.BNSPprovides licensestoprofessionalcertificationbodiesorLembagaSertifikasiProfesi(LSP),whicharelegalentitiesestablishedbyindustryand/orprofessionalassociations,tocarryoutthecertificationprocess.Bytheendof2014,BNSPhaslicensed137LSPs,mostlyinmanufacturing,services,tourism,andgeneralworkers(includingmigrantworkers).BNSPisresponsibleforperiodicallyassessingthequalityofLSPs,anditsdistributionispresentedinTable-2.

4Onlysectorswithmorethan300programsarepresented.5BNSP consists of 25 members assigned by a Presidential Decree for a term of five years; 15 of them represent privateindustrieswhilsttheremaining10representgovernmentagencies. It ischairedbyaChairpersonandaViceChairpersonandsupportedbyaSecretariat.


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LABOURFORCE

EMPLOYED+JOBSEEKERS

GRADUATESCOMPETENTWORKERS

TRAININGPROVIDER

EXPERIENCEDWORKERS

ACCREDITATION

NQFNCS/SKKNI

IPCA/BNSPPCB/LSP

TRAININGPROGRAMME• NCSbasedtrainingmodule• WorkplaceBasedEquipments• CertifiedInstructor• Learningbydoingmethod

• Facilities• Management

• Funding

Intheperiodof2005to2014,theaccumulatednumberofcertifiedworkersisapproximately2.1million,mostlymigrantworkers.Thegovernmenthasanambitioustargettoachieve9millioncertifiedworkersin2019.

BOARDOFTRAININGCOORDINATOR

Figure-4:NationalCompetencybasedtrainingsystem[BNSP2014]

The Government Regulation 31/2006 on the National Skills Training System (Sistem Pelatihan KerjaNasional / SISLATKERNAS) was issued as a platform for the integrated competency based trainingsystem. SISLATKERNAS describes three pillars of competency based training system, namely (i)competencystandard, (ii)competencybasedskills trainingprogram,and(iii)competencycertification.ThelinkagebetweenthethreepillarsispresentedinFigure-4.

SECTOR SECTORCommunicationandinformation 3 Maritimeandfisheries 1Tourism 15 Forestry 2Generalworkers 16 Trading 8Manufacturingindustries 25 Construction 1Financeandbanking 8 SME&cooperatives 3Energyandmining 8 Services 20Transportation 7 Education 10Healthcare 4 Security 1Agriculture 3 Localgovernment 1

Table-2:DistributionofthelicensedProfessionalCertificationBodiesorLSP[BNSP2014]

Thethreelevelsofcompetencystandards(knowledge,skills,andattitudes)are(i)NationalCompetencyStandard(NCS)orSKKNI(StandarKompetensiKerjaNasionalIndonesia)6;(ii)InternationalStandard;and

6SKKNI (Standar Kompetensi Kerja Nasional Indonesia) or Indonesian National Competency Standard is a description ofcompetenciesrequiredbyapersontobeassigned inaparticularoccupationorposition.SKKNIcoversknowledge,skills,andattitude,andshallbeusedasanationalreferenceindevelopingacompetency.SKKNIcouldbearrangedinapackageconsistingofclustersofcompetenciesand/orunitsofcompetencies(unitkompetensi),occupancy,orjobtitle(jabatan).

COMPE

TENCY

ASSESSM

ENT

CERT

IFICAT

ION


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(iii)SpecialStandard.TheNCSisdevelopedbasedontheguidelinesstipulatedintheMoMTRegulation12/2007(laterrevisedbytheMoMTasRegulation8/2012).

ThedevelopmentofaNCS involvesMoM,other relevant technicalMinistries, and theCommitteesofCompetency Standard. Competency Based Training is a training approach that includes modules,trainingaids,methods,and instructors.Theapproachaims toapply competency-basedstandardsandimplement principles to ensure a graduate acquires competencies as required by theNCS, and to beeligible to receive the Certificate of Competency. Unfortunately the current SISLATKERNAS does notincludegraduatesfromformaleducation,i.e.highereducationinstitutionsandvocationalhighschools.

Bytheendof2014,406packagesofcompetencystandards (SKKNI)havebeendeveloped inthemaineconomicsectors,asillustratedinTable-3.ThenumberofSKKNItobedevelopedyetisstillverylarge,considering therapidadvancementof technology. Jobs in informationandcommunicationtechnologyaswellaslogisticsareonlyafewexamplesofnewoccupationsinthemarketthatrequiredefinitionsofcompetency standards. In order to achieve the government target of 10 million certified workers in2019,asignificantnumberofadditionalpackagesareneededinthenearfuture.

Sector Numberofstandards

Agriculture 56Miningandenergy 52

Manufacturing 54

Construction 108

Tourism&Culture 56

Services&Others 80

TOTAL 406

Table-3:Distributionofpackagesofcompetencystandardsdevelopedbysectoruntil2014[BNSP2014]

Competency-basedprogramsadministeredbyMoEChadbeeninoperationforsometimepriortotheissuing of the IQF Decree. Therefore, their structure has to be adjusted to complywith the IQF. Thelearningoutcomesalsoneedadjustment,particularly in shifting theemphasis fromeducation to skillsformation.Table-4presentscoursesunderMoECthathavebeenadjustedtocomplywiththeIQF.

Acupuncture Driver Housekeeping SkinCosmeticsAccountancy Piano JapaneseLanguage ChineseMedicineAerobic Secretary FootReflexology TaxmanagementBabySitting FashionDesign MasterofCeremony TVBroadcastingBridalSaloon Florist MotorcycleMechanics TVCameramanSpa HairDressing Embroidery&Patchwork VideoEditingDriedFlorist Culinary Export&ImportAdm. WeddingDecoration

Table-4:ProgramsunderMoECwithIQFreferredqualifications[MoEC2015]

2.4 RecognitionofPriorLearningTheissues inRecognitionofPriorLearning(RPL)developmentandimplementationcanbecategorizedintotwosectors,i.etheeducationsectorandtheskillsector.

The education sector concerns with at least 3 (three) aspects to widen opportunity of people for i)entering the formal education pathway on the basis of some underpinning aims such as approvinglifelong learning; ii) advocating skills and knowledge upskilling; iii) acknowledging quality equivalenceamongeducationinstitutionsorbetweeneducationinstitutionsandrelevantRPLproviders;etc.

The skill sector on the other hand converges on equating job qualification and competence amongrelevanttrainingprovidersorcareerpathwaybetweenworkplaces;recognizinginformalorexperiential


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learningofindividualemployees;recognizingjobcompetenciesobtainedfrominformalandnon-formalpathwaysorprofessionalcertificationobtainedoutsidetheworkplace.

2.4.1 RPLinhighereducation

InIndonesiaacommonconversionmodelisimplementedbyrecognizingastudent’spreviousacademicstanding by the receiving institution. In its current practice this type of RPL like may be closelycategorizedasacreditearningmodel.Somecommoncharacteristicsofthepracticedprocedurecanbeidentifiedasfollows,

• credittransferisapplicableforcourseswiththesametitleandcurricula,offeredbythesamekindofstudyprogram;

• thenumberofcreditstransferredshouldnotexceed70%ofthetotalcreditearnedinthepreviousstudyprogram;and

• a‘conversionprogram’ismandatoryinthereceivingprivateinstitutionsandtheychooseonlystudentsoriginatedfrominstitutionswithhigherqualitystatus.

ThisRPL-likepractice isnotofficially termedasRPLand isonlyadoptedby individual institutions. Inasimilarmanner, conversion programs from the vocational to academic stream,mostly fromD3 to S1programs, are also commonly conducted among institutions. This recognition model can also becategorizedasan‘unofficial’RPL-likeprocesssincethecharacteristicsoflearningintheD3programaremuch different compare to S1. In most cases the receiving institutions conduct local assessment todetermine the total credit and courses could be transferred to the S1 program. Currently, it is beingpracticedbylimitednumberofhigherdegreeinstitutions.

2.4.2 RPLinwidercontext

Although RPL has been performed in some industries to recognize employee’s competency in careerpromotion process, a national standardized procedure is relatively new for Indonesia. The recentinitiative to implementRPL in Indonesiaaims towideneducationaccessbyproviding theopportunityfor employed workers to pursue a further qualification by reentering formal higher education. Theirpriorexperiencescouldbeassessedtogainexemptionfromsomeorallofstudyprogramrequirements.

In linewiththedevelopmentof IQF intheeducationsector,MoRTHEhasdevelopedan initial ideaonRPL to accommodate a life-long learning scheme to facilitate the recognition of peoplewith relevantemployment experience as qualified lecturers, enabling them to work in higher education. Thus, forexample,workerswhograduated fromvocational programs (D1,D2andD3) andHS (High School) orVHS(VocationalHighSchool) leaverswhowouldseekfurthereducationwillbeassessed.ThroughRPLlearning from their priorworking experiences can be assessedwith a view to granting exemptions inentryrequirementintohigherlevelofeducationforD1,D2,HSandVHSgraduates:aswellastowaiverelevantcoursesforD3graduates,as illustrated inFigure-5.Alsoasmentioned insection2.3.2, intheskills sector, the Government Regulation 31/2006 established the national skill training system(Sislatkernas).


13

Figure-5:ImplementationofRPLinformaleducation

In 2013, theDirectorate of Learning and StudentAffairs (DLSA)7launched a pilot program in selectedstudy programs in public polytechnics. The study programs presented in Table-5 were selected in acompetitivemannerbasedon theirmanagementcapacity toundertake theprogram.Evaluationafterone year shows that in general the results have not been as expected, and a significant effort is stillneededtoimprovethedesignandimplementationmechanisminthefuture.

Studyprogram Institution Studyprogram Institution

D4CivilEngineering PoliteknikNegeriBandung D3FisheryCulture PoliteknikNegeriLampungD4Informatics PoliteknikNegeriBandung D3CivilEngineering PoliteknikNegeriSriwijaya

D4MechanicalEngineering PoliteknikNegeriBandung D4MICE PoliteknikNegeriJakarta

D3Informatics PoliteknikNegeriBatam D3HotelManagement PoliteknikNegeriBali

D3Automotive PoliteknikNegeriBanjarmasin Table-5:Studyprogramsselectedaspilots

Similar procedures are applicable for supporting improvement in the qualification levels of facultymembers who apply for higher status faculty membership. Amore important benefit, as mentionedabove, lies in capitalizing theexpertiseof industrialpractitionerswho,withoutanRPLprocedure,willnotbeeligibletobecomelecturersinvocationalprograms.InordertofacilitateRPLimplementationinhighereducation,theMoECRegulation73/2013wasissued.TheRegulationpromotesRPLfor life-longlearning and facilitates RPL for recognizing professionals with qualifications at IQF levels 8 and 9 tobecomelecturers.However,anoperationalguidelinetorecognizeindividual’sexpertiseandassignthemintheinstitution’spersonnelsystemisrequired.

7NowtheDirectorateGeneralofLearningandStudentAffairs(DGLSA)

SPECIALIST

PROFESSION

987654321

S3

S2

S3

ExemptionawardedtoHS,VHS,D1,D2,D3graduates S2

Coursewaivers

RPLPROGRAMFORLIFELONGLEARNING

S1 D4

D3

Assessmentofworkingexperiences

D2

WORKINGEXPERIENCE GENERAL

HIGHSCHOOLLEARNING

PROGRESSINSCIENTIFIC

DEVELOPMENT

D1VOCATIONAL

HIGHSCHOOL

LEARNINGPROGRESSINSKILLSANDCAREERDEVELOPMENT

HS,V

HS,D

1,D2,D3grad

uates

Directlyenteringworkplace


14

2.5 DefininglearningoutcomesThe Presidential Decree on the IQF requires all study programs, as well as courses and skill trainingofferings, to adjust their learningoutcomeswith reference to the IQF.At thebeginningof this study,descriptors in 75 study programs in 29 fields /professions, within the 8 priority sectors8, have beendrafted,aspresentedinAppendix-1.Attheendof2014,anadditional25descriptorsweredeveloped.

ThePresidentialDecreerevivestheconceptofcompetencystandards incoursesandtraining.Coursesand training that previously used competency standards emphasizing education achievementneed toadjusttheirlearningoutcomestoskillsformation,andmakethisinformationavailableforthepublic.Inordertoimprovetransparency,thequalificationsandcompetenciesofagraduateshouldbestatedinadocument,termedasDiplomaSupplement(SuratKeteranganPendampingIjasah),asrequiredbyMoECRegulation81/2014.Althoughthereputationoftheissuinginstitutioniscurrentlycrucialinappreciatingthe graduate’s competencies, the use of the Diploma Supplement provides additional information toimprovethestakeholders’trustandconfidenceofgraduateoutcomes.

8Nursing,accounting,tourism,engineering,dentalpractitioners,medicalpractitioners,surveying,andarchitecture

Chapter3:Internationalexperiences

15

Chapter3Internationalexperiences

3.1 NationalQualificationsFramework(NQF)9A national qualifications framework in its simplest form is a set of standards for a nation’s agreedqualifications.Qualifications aredefinedby a set of criteria for each type and classified in relation toeachotheraccordingtolevelsofcomplexityandvolumeoflearning.Thisallowsforqualificationsfromthe different education sectors to be understood in relation to each other based on their level ofcomplexity and size; the outcomes can be the same while the purpose and methodology may bedifferent(seebox).

Thecriteriaforthequalificationlevelsandqualificationtypesareexpressedaslearningoutcomesthatis, the expression of what the graduate (the qualification holder) knows, can do, and can apply incontext (such as theworkplace or further learning). The use of learning outcomes, often a paradigmshift for many education systems, requires qualifications to change from an internal institutionalperspectiveoflearninginputstoexternallybenchmarkedstatementsoftheoutcomestobeachievedbygraduates.Theshift to learningoutcomes isabout transparencyofqualifications that is, transparencyaboutwhatistaughtandalsothatassessmentmatchesthepromiseoftheagreedqualificationcriteria.

The shift to learning outcomes-basedqualifications, a key feature of a qualifications framework, putsassessmentfrontandcenter.Thisdoesnotnegatetheimportanceofqualityteachingandlearning,butitdoesallowdifferentpathwaystoachievingaqualificationwhichmaynotbebasedonformallearning.Recognition of an individual’s existing capability for applying knowledge and skills gained in the non-formalandinformalspherescanbeassessedagainstthelearningoutcomesandleadtotheissuingofaqualification.Mechanismsforformallyassessingthesecapabilities,mostnotablyreferredtorecognitionofprior learning(RPL),maximizetheexistinghumanresourcesavailablefortheworkforceandreducepressureoneducationsystemsfor formal learning.Accumulatingcredit throughRPLandother formalcreditarrangementsfacilitatespathways intoandthroughthequalificationsystemandisoftenoneofstructuralaspectsofanationalqualificationsframework.

Accompanying the implementation of learning outcome-based qualifications is the requirement forexternalbenchmarks.Qualificationsaretheculminationofabodyofknowledgeandskillsdevelopedforapurpose,usually foremploymentbutalso for further learning thatultimately leads toemployment.Hence the external benchmarks for qualifications are the standards for undertaking anoccupationoroccupational standards, also referred to as competency standards or professional standards.Occupationalstandardsareagreedbythenation’sindustrystakeholders(suchasemployerpeakbodies,

9FullreportpreparedbyMsAnnE.DooletteoninternationalexperiencesonNQFissubmittedseparately.

QualificationsFrameworkintheEuropeancontext[Coles2006]

Aninstrumentforthedevelopmentandclassificationofqualificationsaccordingtoasetofcriteriafor levelsof learning achieved. This setof criteriamaybe implicit in thequalificationsdescriptorsthemselvesormadeexplicitintheformofasetofleveldescriptors.Thescopeofframeworksmaybe comprehensive of all learning achievement and pathways or may be confined to a particularsector for example initial education, adult education and training or an occupational area. Someframeworksmayhavemoredesignelementsandatighterstructurethanothers;somemayhavealegal basis whereas others represent a consensus of views of social partners. All qualificationsframeworks,however,establishabasisforimprovingthequality,accessibility,linkagesandpublicorlabormarketrecognitionofqualificationswithinacountryandinternationally.


16

professional associations and labor unions) and are informed by international standards reached bymutualagreementsbycountries’occupationalagencies.

3.1.1 Qualityassurance

An essential aspect of a qualifications system, and the foundation for implementation of a nationalqualifications framework, is quality assurance which provides confidence in the qualifications issued.Externalqualityassurancearrangements,robustenoughtosatisfystakeholdersandsocialpartners,areessential if confidence and trust in qualifications is to be established. Successful implementation of anationalqualificationsframeworkisunderpinnedbyrobustqualityassurancearrangementstoprovidecredibility for the qualifications in the framework and users’ confidence in qualifications awarded.Credibilityandconfidenceare importantbothnationallyand internationally if thequalificationsaretoberecognizedashavingvalue.Qualityassurancemustcovertheapprovalprocessesoftheprogramsofstudy leadingtoqualifications(oftenreferredtoasaccreditation),approvalofprovidersauthorizedtodeliver,assessandissuethequalifications(oftenreferredtoasaccreditationorregistration).

Theinternationaloverviewaccompanyingthisreportlooksatboththequalityassuranceprocessesputinplaceforhighereducationinstitutionsandthequalityassurancestandardsagainstwhichapprovalofprogramsof study and theproviders that deliver themare assessed. Together theprocesses and thestandards form the educational quality assurance arrangements required for a national qualificationssystembasedonaqualificationsframework.

Qualityassurancearrangementsareatdifferentstagesofdevelopmentaroundtheworldasisthecasewith the varying stages of development and implementation of qualifications frameworks. However,there isgeneralconsistency inhowqualityassurance isoperationalizedaroundtheworld incountrieswithqualificationsframeworksasthefourcountriesstudiedillustrate.

Collectively theseexampleshighlight thedifferent levelsofmaturityofnationalqualification systems,the similarity in arrangements but also the contrast in approaches. What is evident in these fourexamples is that they have moved beyond the use of collegiate and internal peer-based qualityimprovementmethodologiesfortheirqualityassurancealthoughthisremainsan importantadditionaltool for continuous improvement used by some, for instance New Zealand and for others newer toexternalqualityassurancelikeHongKong(seeTable-9).

Insummary,ifqualificationsaretobevaluedbytheholdersofqualifications(thegraduates),thelabormarket (employers of bothprofessional and skilled human resources and labor unions), governmentsand the community and have credibility internationally, a country needs a set of standards for itsqualifications that are nationally acceptable and can be translated internationally. To establish thevalue, credibility and stakeholder trust, the qualifications framework must be situated within aqualifications system. The component parts of a qualifications system necessary to implement aqualificationsframeworkareillustratedbythosealreadyinplaceandarewelldocumented.

Around the world, higher education tends to be characterized by a demarcation between the olderestablished universities which traditionally are autonomous educational institutions, usually with theauthoritytoapprovetheirownprogramsofstudy,andnewerhighereducationproviderssomeofwhichhavebeengranteduniversitystatus.The formerusuallyhaveastrong traditionof research,areoftenranked highly in the prestigious international ranking tables and commonly attract the best nationalstudentsaswellasinternationalstudents.


17

Approval(initial)of

Institution* MonitoringofInstitution ApprovalofStudyprogramApprovalofInstitutionto

DeliverStudyprogram MonitoringofStudyprogramAustralia

Autonomous Notapplicable TertiaryEducationQualityand Allhaveself-approval Allhaveself-approvalstatus; TertiaryEducationQualityandUniversities StandardsAgency(national status;individualuniversity individualuniversityinternal StandardsAgencyonriskbasis;

governmentauthority)onregular internalprocessesrequired processesrequiredunderTEQSA individualuniversityinternal

cycleandonriskassessment underTEQSAAct Act processesrequiredunderTEQSA

ActOtherHE TertiaryEducationQuality TertiaryEducationQualityand TertiaryEducationQuality TertiaryEducationQualityand TertiaryEducationQualityandProviders andStandardsAgency StandardsAgency(national andStandardsAgency StandardsAgency(national StandardsAgency(national

(nationalgovernment governmentauthorityestablished (nationalgovernment governmentauthority governmentauthorityestablished

authorityestablishedunder underlegislation) authorityestablishedunder establishedunderlegislation) underlegislation)

legislation) legislation) NewZealand Autonomous Notapplicable UniversitiesNewZealand-owned UniversitiesNewZealand- UniversitiesNewZealand-owned UniversitiesNewZealand-ownedUniversities AcademicQualityAgencyforNew ownedCommitteeon CommitteeonUniversity CommitteeonUniversity

ZealandUniversities UniversityAcademic AcademicPrograms(delegated AcademicPrograms(delegated

Programs(delegatedlegal legalauthority) legalauthority)

authority) OtherHE NewZealandQualifications NewZealandQualifications NewZealandQualifications NewZealandQualifications NewZealandQualificationsProviders Authority(government Authority(governmentauthority Authority(government Authority(governmentauthority Authority(governmentauthority

authorityestablishedunder establishedunderlegislation) authorityestablishedunder establishedunderlegislation) establishedunderlegislation)

legislation) legislation) Ireland Autonomous Notapplicable Universities-ownedIrish Individualuniversity Individualuniversityinternal IndividualuniversityinternalUniversities UniversitiesQualityBoard internalprocesses processes processesOtherHE QualityandQualifications QualityandQualificationsIreland QualityandQualifications QualityandQualificationsIreland QualityandQualificationsIrelandProviders Ireland(government (governmentauthority Ireland(government (governmentauthority (governmentauthority

authorityestablishedunder establishedunderlegislation) authorityestablishedunder establishedunderlegislation) establishedunderlegislation)

legislation) legislation)


18

COUNTRIES Approval(initial)ofInstitution* MonitoringofInstitution ApprovalofStudyprogram ApprovalofInstitutionto

DeliverStudyprogram MonitoringofStudyprogram

HongKong AutonomousUniversities

Notapplicable UniversityGrantsCommitteeQualityAssuranceCouncil(governmentsanctionednon-statutorybody)

Individualuniversityinternalprocesses



OtherHEProviders

HongKongCouncilforAccreditationofAcademicandVocationalQualifications(independentgovernmentagencyestablishedunderlegislation)





Note:*Approvalprocessesandstandardsfortheestablishmentofnewuniversitiesareexcludedfromthissummary.

Table-9:Qualityassurancearrangementsforhighereducationincasestudycountries


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The established universities are typically small in number in any country and work cooperatively tomaintain the quality of education and research amongst their collegiate membership. The latter,becauseoftheirshorthistories,arerarelygrantedself-approvalandmonitoringstatusandaresubjecttoexternalqualityassurancebygovernment-sponsoredagencies.Thisdistinctionissointhecasestudycountriesanditinfluencesthequalityassurancearrangementsinthesecountries.

3.1.2 Levelsinthequalificationsframework

Whilealevelsstructureisthemostfundamentalcharacteristicofaqualificationsframework(nationalorregional),agenericdefinitionof the term level in thecontextofaqualifications framework ishard tofind as most qualifications systems describe it in relation to their own systems. For example, in theAustralianQualifications Framework (AQF), levels are defined as: ‘AQF levels are an indication of therelative complexity and/or depth of achievement and the autonomy required to demonstrate thatachievement.AQFlevel1hasthelowestcomplexityandAQFlevel10hasthehighestcomplexity’[AQF2013].Similarly,theNewZealandQualificationsFrameworkdescribesitslevelsas:‘Levelsarebasedoncomplexity,withlevelonetheleastcomplexandleveltenthemostcomplex’[NZQA2013].

Levels are expressed as learning outcomes which increase in complexity with each level. Learningoutcomesinqualificationsframeworksarethedescriptionofthelevelofknowledgeandskillsthatarerequired and the application of the knowledge and skill in context. They usually also specify otherattributes that countriesexpectof their graduatesaboutbroader transferable skills andcitizenshipaswellasemployabilityskills.Whiletheterminologyforeachpartofalearningoutcomemayvaryacrosscountries, they effectively mean the same thing. The importance of levels is the gradation of thecomplexity of both the outcomes and the learning required to achieve the outcomes and therelationshipbetweenqualificationslocatedatdifferentlevelswhichthelevelsestablish.

3.1.3 Qualificationtypes

A key characteristic of a national qualifications framework is the inclusion of qualification types. AqualificationtypeisdefinedintheAQFas‘…thebroaddiscipline-freenomenclatureusedintheAQFtodescribe each category of AQF qualification’ [AQF 2013]. This terminologywas also adopted by NewZealandfollowingitsreviewoftheNewZealandQualificationsFramework(NZQF)whichitundertookatthe same time asAustralia’s review. It describes qualification types in theNZQF as each qualificationtypeisdefinedbyanagreedsetofcriteriawhichincludesthelevelsatwhichthequalificationis listedandthenumberofcreditsrequiredateach level’ [NZQA2013].Thisnomenclaturealsoappears intheEuropeanliteratureonnationalqualificationsframework[EC2008].

Qualificationtypesaredescribedby learningoutcome-baseddescriptions,typicallymoredetailedthanthelearningoutcome-baseddescriptionsforlevels.Thelearningoutcomesforqualificationtypesdefinewhatthegraduatemustknow,beabletodoongraduation.Thisisdescribedintermsofthecomplexityoftheknowledge,skillsandapplicationthatisrequiredandgenerallyisdescribedwithoutthecontentordiscipline requirements. Inaddition,andunlike for levels, thedescription includesanexpressionoftheamountoftimerequiredtoachievethelearningoutcomes(oftenreferredtoasvolumeoflearning)andoftenmakesastatementaboutentryrequirementsandsometimestheexitpathways.Theinclusionofapurposestatementishelpfulifmultiplequalificationtypeswithdifferentpurposesareincludedatthe same level or if this is the future intention. A qualification type is not limited to a particulareducationsector.

3.1.4 Qualificationspathways

Policiesonqualificationpathwaysareideallybuiltintonationalqualificationsframeworks.Qualificationpathwaysprimarilyare intendedto facilitatestudentsmoving through thequalifications levels togainhigher level qualifications; for example this is defined in the AQF as part of its pathways policy asfollows:‘Pathwaysallowstudentstomovethroughqualificationlevelswithfullorpartialrecognitionfor


29

thequalificationsand/or learningoutcomes theyalreadyhave’ [AQF2013]. In reality, thesepathwaysbetweenqualificationlevelscanandshouldbeupwardsfromoneleveltoahigherlevelasstudentsbuilttheir knowledgeand skills,butalsodownwardsor sidewayswhen studentswant to supplement theirexisting knowledge and skills. Policies on pathways between qualifications generally describe thepossible pathways and are built into the qualification type definitions, usually as the entry and exitpathwaysandanycreditthatmayaccruefromacompletedqualificationtowardsanother.

Pathwaysbetweeneducationandworldofworkarealso importantandare ideallyencompassed intoqualifications framework pathways policies. Assessment mechanisms to recognize the body ofknowledge, skillsandcompetenceacquiredatwork shouldbe includedand themost commonway isthrough recognition of prior learning. In the same way, non-formal and informal learning can berecognizedandcontribute togainingaqualificationatany level. If recognizingnon-formalor informallearning is for the purpose of providing entry into a qualification, this may be done without formalassessment because demonstration of the qualification learning outcomes will occur throughout theprogram of learning, however if it provides credit towards the qualification this needs to be donethroughsomeformofassessment.Pathwaysbetweeneducationandtheworkforcearealsoaboutthepathwaysforgraduatesfromtheeducationtoemployment.

A number of major studies on educational pathways have been undertaken in Australia’s quest toimprove the recognition of previously obtained knowledge, skills and experience, themost recent in2009undertakenbythethenAQFCouncil.Thereport’ssummaryofstudentpathwaysininformativeinthiscontext(seebox).

TheimportanceofqualificationspathwaysinanationalqualificationsframeworkisunderscoredbytheEuropeans by their inclusion of this as one of the ten requirements for referencing nationalqualifications frameworks against the European Qualifications Framework. Criterion 3 states: ‘Thenational framework or qualifications system and its qualifications are based on the principle andobjective of learning outcomes and linked to arrangements for validation of non-formal and informallearningand,wheretheseexist,tocreditsystems’[EC2001].

3.2 RecognitionofPriorlearning(RPL)10

3.2.1 RPLWorldWide

Initsregionalandhistoricaldevelopment,anumberoftermshavebeenusedindifferentcountriesandfordifferentpurposesfortheprocessesforRPL,suchas:AccreditationofPriorLearning(APL),CreditingCurrentCompetence(CCC),andAccreditingPriorExperientialLearning(APEL).APLandAPELtendtobecommon in parts of Europe (for example, in the UK and Ireland) whereas RPL tends to be used inAustraliaandNewZealand.CanadausesthetermPriorLearningAssessmentandRecognition(PLAR)aswellasRPLandRecognitionofCurrentCompetence(RCC).Francehasadifferentsystemofprofessionalcertificationinwhichassessmentisknownas‘Blaindecompetences’,‘Blaindescompetences

10FullreportpreparedbyProfessorMariaSloweyoninternationalexperiencesonRPLissubmittedseparately.

Studentpathways[AQFC2009]Student pathways are enabling processes that assist the movement of students between andwithineducationandtraininginstitutionsandthelabormarket.Theyshouldrecognizethatmanystudents do not make a linear progression from one qualification to another at a higher level,exiting toworkwhen their desiredqualification is attained.Many students for example: changetheirmindsandconsequently thedirectionof study; go inandoutof theworkforce toVETandhigher education to gain additional skills and knowledge; undertake additional study/training toaddaspecificskillorskillsforemploymentadvancement;orlooktostudyatalaterstagehavingbeenanearlyschool-leaver.


21

approfondi’,or‘ValidationdeAcquisdesExperiences(VAE)’.AtaEuropeanlevel,commonterminologyisValorizationofPriorLearningorValidationofPriorlearning(VPL).

Taking Europe as an example of a global region, one of the main driving factors underlying RPLdevelopmentintheEuropeanUnion(EU)wasasacontributiontotheaimthatEuropeshouldbecomeaglobally leading, dynamic and competitive knowledge-based region(EC 2008). As part of this, theexpansionanddevelopmentof the knowledgeand skills of theEuropeanpopulationwas regardedasimportant, along with aims to promote active citizenship and social inclusion. Raising skill levels,promoting learning for all, lifelong learning/continuing education, seekingmore flexible responses byeducation and training providers and recognizing knowledge and skills acquired outside formaleducation and training structures combined form elements of this strategy. Studies by OECD andUNESCOshowsimilarpolicyobjectivesalsounderpininterestinRPLinotherglobalregions[OECD2010;UNESCO2012].TheEuropeanCouncilMeetinginLisbon2000wasanimportantmilestoneinpromotingtheconceptofRPLacrossEuropeancountriesand,otherregionsintheworld.

Dependinguponhistoricalandeconomicbackgroundsofindividualcountries,thedevelopmentandaimofRPLinEuropearemostlyrelatedtotheeffortforstrengtheninglifelonglearning,wideningaccesstofurther education, and mobility across countries. Interrelationship between economic and socialdevelopment has also driven lifelong paradigm in formal education context hence promotes RPLconceptintotheNQFdevelopmentstrategy.

The connection between NQFs and RPL schemes in many countries has also accelerated theimplementationofRPLallovertheworld.SomenoteworthyandwellestablishedRPLprogramscanbeidentifiedindifferentcountries,suchasUK,Scotland,Ireland,Australia,NewZealand,CanadaandUSA.Similarly, other countries such as Hong Kong, South Africa, India and Indonesia are now keenlydeveloping RPL agendas for a variety of reasons and objectives. In the case of Indonesia, somearguments toadoptRPLconceptmay related tomore than justeducationoreconomic concernsbutalso include the need to recognize and validate qualification of traditional artists, such as traditionaldancers,musicians, or sculptures,whomay, through informal learning and practice, have achieved acertainlevelofcapacity.

3.2.2 Differentmodels(uses)ofRPL

InternationalreviewsofRPLpracticeselucidatemanywaysinwhichRPLisimplementedwithinnationalandtransnationalcontexts,whichreflecttoconsiderableextentcultural,historicalandsocio-economicconditions. For example, there are notable differences in the legislative contexts underpinningqualifications, ineducationaland training systems,and in theextent towhichprofessionalbodiesareinvolvedinaccreditation.Nevertheless,thereexistsclearlyidentifiablemodelsofRPLandcountrieswithadevelopedtraditionofRPLutilizeamixofanumberofmodelsasthefollowingillustrates.

RPL for access or non-standard admissions: RPL for access offers an alternative to the traditionaladmissions criteria for higher education institutions. Inmany cases prospective learners go through aprocessofmediationandpreparationtowardsassessmentoftheirreadinesstoenterhighereducationprogramsofstudy.InIreland(totakeanexamplefromoneofthefirstEuropeancountriestoimplementa national qualifications framework and the 2015 Chair of the European Qualifications FrameworkReference Group) access to higher education is primarily attained on a competitive basis followingsuccessfulcompletionofLeavingCertificateexaminations.

However, adult/mature students are able to access higher education courses without completing aLeaving Certificate. A Higher Education Authority report [Carroll & Patterson 2011] indicates that, onaverage,maturestudentscomprise15%of thenewfull-timestudentpopulation in Ireland.Bywayofcomparison,only5%ofnewfull-timestudentsinGermanyarematurestudents.InthecaseofIreland,theappealof flexiblepart-time learning,whichhelpsadultstobalancestudyand lifecommitments, isfurtherreflectedinthefactthat92%ofnewpart-timestudentsinIrelandarematurelearners.Whilea


22

significant number of mature students do go onto complete Irish Qualifications Framework level 8qualifications, a higher proportion are enrolled in IQF level 6 and level 7 qualifications attaining, forexample,HealthcareCertificates.

RPL for credit recognition: The credit recognitionmodel of RPL facilitates the granting of credits byassessmentortransfertowardsgrantingpartofaqualificationorafullqualification.Todoso,individualcompetence isassessedaccordingtoprescribedoutcomesandstandards,whichenable institutions tojudgealearner’seligibilityforcreditorstudy.Wherequalificationsareconstitutedbyprogressivestages(suchascertificate,diplomaanddegreestages),alearnerwhohasalreadycompletedalowerstagemaytransferthesecreditsandupgradetoahigherstagebycompletingashortcycleofstudy.

Nursing qualifications in several European countries for example, have evolved from a certificate/apprenticeship to a three-year national diploma to the current bachelor degree. Through creditrecognition,thosewhoqualifiedbeforethestandardqualificationwasupgradedtodegreelevelareableto have recognized their existing nursing qualification and then fulfill the outstanding requirement ofthedegreequalification.Forexample,thisRPLprocesswasusedextensivelyinDublinCityUniversitytoupgradenursingqualifications.

Asystemsupportingthetransferofcreditbetweeninstitutionsbuildsflexibilityintothelearningprocessasitallowslearnerstoenterandleaveeducationprogramswithoutpenaltyandtoprogresstowardsaqualification over time. In Europe, the transfer or exchange of credits is governed by the EuropeanCreditTransferandAccumulationSystem(ECTS),whichassignsacredit,intermsofvolumeoflearning,toeachlevelofqualification.

As itassumesthatcandidateshavesufficientculturalcapacitytoenterandcompletehighereducationprograms, the credit-recognition model is not necessarily viable for people who are economicallyvulnerableordisengaged from formal learning [Cameron2006].However, it ispotentially apowerfulwayoffosteringalternativepathwaysforpeopleupgradingormovingbetweenqualifications.

RPLforskillsassessmentandoccupationaladvancement:Thismodelsupportstherecognitionofskills,knowledgeandcompetenciesforpurposesofrecruitment,promotion,andretraining.ByincorporatingRPLintotherecruitmentprocess,employerscanidentifyapplicants'skillsandcompetenciesandmatchthesetothepositionforwhichtheyareapplying.Auditsofemployeeskillcapabilitiescanfurtherassistin the identification of appropriate training opportunities and therebyminimize the loss of resourcesduetoduplicatedlearning.RPLmayalsobeusedtoaddresscontinuingprofessionaldevelopment(CPD)needs without recourse to training [Collins 2011]. For employees, the recognition of skills can boostconfidenceand identifyavenues for further learningor careeradvancement. Forexample, it supportsthosewhoarealreadyworkinginpositionsforwhichtheyhavequalificationsotherthanthosecurrentlyrecognized for that position. In certain professional scenarios, these individuals may be required toacquirenewcertification inorder tocontinue topractice.RPLpreparationandassessment processesmaybeusedtowardsthiscertification.

RPLforpersonaldevelopment:ThismodelentailsthecapacityofRPLtoaddressthefullpotentialoftheindividual rather than their measurable 'value' for assessment or credit exchange. RPL has thetransformativepotentialtoincreasealearner’sself-confidenceandmotivationforfurtherlearninganddevelopmentbecause’bygivingpeoplethechancetohavetheircompetencesformallyrecognized,weprovide them with evidence of their personal capital and promote self- knowledge and self-esteem’[UNESCO2013:12].Within thedevelopmentalmodel, knowledge is conceived inpersonal andexperiential terms. Through considered reflection, the learner is encouraged to explore his/herexperiencesandvalues.

RPL is particularly significant for goals of social inclusion. In South Africa, for example, policymakersidentifyRPLasameanstowideneducationalaccesstoindigenouspopulationsandtoacknowledgethevalueoftheirindigenousknowledgesystems[duPre&Pretorius2001].


23

ThesemodelsofRPLareassociatedwithanumberofrelatedbenefitsforemployability.ResearchintheUnited States indicates that RPL promotes persistence to complete a program of study as well as acognitive transformation in the learner's ability to solve problems [Travers 2009 cited in Collins2011:115].RPLisfurtherrecognizedashavingthepotentialtoempowerworkerstoadjusttoachanginglabormarketandtomakecareertransitions[PLACentre2008].

3.2.3 RPLandNationalQualificationFrameworks

As mentioned previously, a national qualifications framework (NQF) is a set of nationally agreedstandards,developedby competentauthorities,which recognize learningoutcomesandcompetencesfor all forms of learning [UNESCO 2012]. This requires that each type of qualification is defined at anationallevelbyasetofcriteriaandthenclassifiedinrelationtootherqualificationsaccordingtolevelsof complexity and volume of learning. The NQF thereby allows for the comparison of qualificationsacrosstheeducationandtrainingsectors.

RPLsystemsarebestservedwhen levelsofqualificationsareclearlyarticulated inanoutcomes-basedNQF, with specific competencies articulated for particular economic areas and occupations. PriorlearningcanthenbemappedagainsttheNQFtoproduceaformofrecognitionthatcanbeinterpretedby training providers, employers and the learner. Internationally, the link between RPL systems andNQFs may vary in terms of a country's approach to national reference points; national policy andlegislation; the conceptualization of RPL for social inclusion; stakeholder involvement; and specificfeaturesof the recognitionprocesses [UNESCO2013:13].Currently,RPLsystemsare ’beingdevelopedwithaneyetoafutureinwhichoutcomes-basedNQFswillsupportthenecessaryreformsineducationand training, and facilitate nationally standardized and internationally comparable qualifications[UNESCO2013:14].

Fornon-formal learning,thestandardof learningoutcomesdefinedinNQFstypicallyneedtobemoreflexible than in the formal education system. Some authors, such as Downes [2011], suggest thatstandardizationmay give rise to a loss of identity for the educational sector while also undermininglearners from marginalized backgrounds who were previously alienated from the formal educationsystem. To address these concerns, some countries utilize competence-based frameworks for adultsthatallowforassessmentofnon-formalandinformallearningoutcomes.Regardlessofthevariationsinmethodology, it is internationally recognized that to establish trust and credibility in qualificationsamong all stakeholders – including graduates, the labormarket andwider society - the qualificationsframework must be situated within a qualifications system that can be accepted nationally andtranslatedinternationally.

IntheUKandIreland,eachstagewithinthequalificationsframeworkisreferredtoasa'level',whichisameasureofincreasingdepth,complexityanddifficultyofknowledgeandcompetence.Nationalsystemsvaryinthenumberoflevelsused.TheIrishNationalFrameworkofQualifications,forexample,isaten-levelsystemwhichgivesanacademicorvocationalvaluetoallqualificationsthatmaybeobtained

NQFsandRPL[UNESCO2013]Bjørnåvold[citedinUNESCO2013:18-19)identifiesfourwaysinwhichNQFsarecomplementarytoRPL:

a) NQFsfocusedonthedevelopmentofexplicitoutcome-basedstandardscanaccommodatenon-formalandinformallearning;

b) Recognitionofnon-formalandinformallearningcanopenupqualificationstoabroadergroupofusers–fromthedomainsofwork,adulteducationandthevoluntarysector;

c) NQFsandrecognitionpracticescanenablepeopletoprogressbothverticallyandhorizontallyonthebasisoftheircompetencesratherthanonthebasisofspecificlearning;and

d) Transparentqualityassuranceprocessesmustbedeveloped,ifnon-formalandinformallearningaretobeaccordedthesamequalityrequirementsasformallearning.


24

throughschool,vocational,andfurtherandhighereducation.Acrossthe10 levels,thereare16majorqualifications(awards) includingeighttrainingandhighereducationqualifications,fromlevels6to10.Academicvalueisexpressedintermsofthecredits,ameasureofvolumeoryearscompleted,attainedataparticularlevel.

Inadditionto levels, forRPL it isalso important tohaveasharedunderstandingof thevolumeof theknowledge and competence required. In Europe, for example, the volume associated with academiccredits and qualifications is expressed in terms of the allocation of European Credit Transfer andAccumulation System (ECTS). The equivalent in the vocational sector is the European Credit TransferSystem forVocational Education andTraining (ECVET). Bymaking the learningoutcomesof programsacrossEuropecomparable,ECTSandECVETaimtosupportthetransferoflearningbetweeninstitutionsandthecreationofflexibleentryandexitpointsforstudentspursuingqualifications.

Asanillustration,Table-10outlinesthelevelsintheIrishNationalFrameworkofQualificationsintermsofthemajorqualifications(awards),theirassociatedECTScredits,andtheiralignmenttotheEuropeanQualifications Framework (EQF) and to the EHEA (Bologna) Framework, which defines the learningoutcomesofprogramsagainstthreehighereducationcycles.

The EQF is a ladder in the sense that from level 1 to level 8 the associated learning becomesmorecomplex and makes greater demands on the learner or worker. Increases in level 1 to 8 relate todifferent factors such as: the complexity and depth of knowledge and understanding; the degree ofnecessarysupportor instruction; thedegreeof integration, independenceandcreativity required; therangeandcomplexityofapplication/practice;andthedegreeoftransparencyanddynamicsofsituations[EC2008].

INQFlevel

Comparableaward ECTScredits

EQFlevel

EHEAFramework(Bologna)

1 Level1certificate 2 Level2certificate

1

3 Level3certificate

Juniorcertificate 2

4 Level3certificate

Leavingcertificate 3

5 Level5certificate

Leavingcertificate 4

6 Advancedcertificate

Highercertificate 120 5 Shortcyclewithinfirstcycle

7 OrdinaryBachelordegree 180 8 HonoursBachelordegree 180-240 6 Firstcycle

Higherdiploma 60 9 Mastersdegree 60-120

Postgraduatedegree 60 7 Secondcycle

10 Doctoraldegree 8 Thirdcycle

Table-10:Examplemappingofanationalframeworkontoaregionalframework:TheIrishqualificationssysteminaEuropeancontext

3.2.4 RPLinpractice

Asmentionedpreviously,RPLisimplementedfordifferentpurposesandatdifferentlevelsandprecisemechanisms vary across international experience. To integrate RPL into existing formal systems,UNESCO[2012:5]recommendsthefollowing:


25

• developamechanismfortheformaleducationandtrainingsystemthatpaysmoreattentiontothequalityoflearningoutcomes;

• create awareness and acceptance in formal education and training systems of the learningoutcomesgainedinnon-traditionalsettings;

• useRVAtobuildbridgesbetweenthedifferenteducationandtrainingsectorsandtopromotetheintegrationoftheoutcomesofformal,non-formalandinformallearning;and

• develop approaches to increase interaction between educational institutions, enterprises andvoluntaryorganizations to translate learningoutcomes fromworkingand lifeexperiences intocreditsand/orqualifications[UNESCO2012:5].

InmanycountrieswithalongtraditionofRPL,practices,approachesandmethodologieshavechangedsignificantly over the years. Taking the perspective of the European experience, examples of goodpractice from Ireland and theUK are highlighted. There is considerable documentation regarding thecurrent practice of RPL in Ireland including country reports from theOECD [2008] and the EuropeanInventoryonValidationofNon-formalandInformalLearning[2012]aswellasareportforthenationalExpertGrouponFutureSkillsNeeds[2011].

Led by the Cork Institute of Technology, a working group established under the HEA's StrategicInnovationFund (SIF) reviewedRPLpractices ineight Irishhighereducation institutions. The resultingdocument[Sheridan&Lenihan2009]exploresdetailsofcurrentpracticesandoffersrecommendationsfor further development of RPL. Additional examples of good practice are drawn from the UKexperience,inparticularfromtheScottishCreditandQualificationsFramework,andfromtheEuropeanGuidelinesforValidatingNon-FormalandInformalLearning[Cedefop2009].

LEARNER

ADMINISTRATOR

MENTOR

ASSESSOR EXAMBOARDDATARECORD

INITIALINQUIRY

REVIEWAND

ASSESSAPPLICATION

EXPLAINRPL ANDADVICE RELEVANT HOLD HoD INTERVIEWAS NECESSARY STUDENT

REGISTRATIONON

SYSTEMATDEVELOP APPRORIATESTAGE

EXTENDEDCVAS

APPLICATION ADVICEON

DECISION

ENTER

SIGN

DECISIONON REGISTRATION RPLDBASE FORM

Figure-6:RPLforEntry[Sheridan&Linehan2009:25]

Thefollowingsectionoutlinesgeneralstages in theRPLprocess; roles in theRPLprocess;methodstoidentifyskills;andassessmentmethods.

Stages in the RPL process: RPL processes vary depending on the type of recognition that is sought.Consequently, the stagesof theprocessesand the requirementsplacedondifferentRPLpersonnel ineach stage vary also. In their review of RPL in Ireland, Sheridan and Linehan's [2009] provide thefollowing'processmaps'asageneralguidetothestagesandactivitiesinvolvedinRPLforentry/access(Figure-6)andRPLforcredit-exemption(Figure-7).


26

Amoredetailedpracticalexampleofthestagesinthisprocessisoutlinedintheboxbelowinreferenceto an application for credit recognition within the School of Nursing and Midwifery in the NationalUniversityofIreland,Galway[FIN2011:41].

Figure-7:RPLforExemption[Sheridan&Linehan2009:24]

While many higher education institutions utilize websites to efficiently provide information andguidanceaboutRPL,aUKE-APEL,fundedbytheJointInformationSystemsCommittee,hasexploredthepossibilityofusingelectronictoolstoautomateaspectsoftheprocessandtomakeitmoreintegrativeandpartnerfriendly[seeHaldaneetal.2007].Morebroadly,theGlobalLearningAlliance[2004]reviewsavenuestoincorporatetechnologicaltoolstosupportlearningandtraining.

LEARNER

ADMINISTRATOR

MENTOR

ASSESSOR EXAMBOARDDATARECORD

LOGAPPLICATIONONRPLDBASE

CONSIDERPROGRAM/MODULELEARNINGOUTCOMES

INITIALENQUIRY

EXPLAINRPL

PROCESS

CONSIDEROVERALLLEARNING

PLAN

DEVELOPPORTFOLIOOREVIDENCEONCERTIFIEDLEARNING

ACCEPTPORTFOLIO

ANDPASSFORASSESSMENT

ADVICEONSTEPSFORPORTFOLIO

DEVELOPMENTORCERTIFIEDLEARNINGEVIDENCE

DETERMINEIFLEARNINGOUTCOMESAREMET

ENTERDECISIONONRPLDBASE

ADVICEONDECISION

PRESENTOUTCOMETOEXAMBOARD

ApplicationProcessforCreditRecognitionintheSchoolofNursingandMidwiferyNationalUniversityofIreland,Galway[FIN2011]

Applicantsaremadeaware,ontheapplicationformforadmission,of theoptionofapplyingforamoduleexemptionthroughanRPLprocess.Theformstatesthatlearnersmustmakeacasesettingoutevidenceastowhytheyshouldbeexemptedfromaspecificmodule.

Applicantsmust i)demonstratethattheyhaveattainedthenecessary learningoutcomesthroughsomeotherformoflearning;ii)provideevidenceoftheassessmentofthislearning;andiii)provideevidenceofthecreditgivenforthislearning.

The onus is placed on the applicant to provide this information; theymay often need to contactinstitutions theyhavepreviouslyattended to source information for inclusion in their application.Theapplication is thensent to theprogramdirectorwhowill in turn identify therelevantmoduleleader to assess the application. The module leader will review all the evidence, comparing theprevious learning with the learning outcomes of the relevant module, and will also discuss theapplicationwiththemoduleteam.

A decision, including a clear rationale, is then returned to the program director. The decision issubmitted to the School board for final sign off at School level before being forwarded to theAcademicAffairsOfficeandAdmissionsOffice.AllapplicationsarereviewedbytheStudentAffairsCommittee which has responsibility for ensuring equity in decision making in regard RPL. Thelearner then receives notificationof the decision.Applicants are given comprehensive advice andsupportfromtheoutsetofanapplication


27

3.2.5 ChallengestoRPLimplementation

Creating an enabling environment for the successful implementation of RPL necessitates thedevelopment of appropriate policies in a number of areas including: educational reforms; lifelonglearning; skills strategies; education and training innovation; and social equity. This means that RPLrequires attention at a macro policy level and at a micro institutional level. At the policy level, RPLrequiresamoreflexibleand integratedsystemof life-long learningwhichrecognizes learningattainedoutside formal education, including, in particular, in the workplace and civic life. At the institutionallevel, bottom-up strategies and practices are required to recognize prior learning and to supportlearnersinthisprocess.

Franceisaninterestingcaseinthisregardasit isoneofthefewcountriestowriteintolegislationtherightofallworkingindividualstoearnadiplomaorprofessionalqualificationthroughRPL.Nevertheless,evenincountrieswherethereareexistinglegalframeworks,thereremainsacontinuedneedtodevelopandmaintainmoreeffectiveandtransparentprocedures.

Once RPL has been adopted as a policy imperative, the processes required to implement RPL are, inprinciple, clear and straightforward. Table-11 illustrates the necessary progression of stages from thearticulationofspecificqualificationstothefinalexpertassessmentofthecandidate'sdocumentationorportfolio.

Themovefromtheorytocommonpractice,however, isnotstraightforwardandefforts to implementthepolicyintopracticemayencounteranumberofbarriers.Inparticular,RPLchallengesthetraditionalstructureandapproachof formaleducation intermsofaccess,designandassessment.Morebroadly,RPL requires the intensive investment of resources such that ’the greatest threat to ambitious, well-intentioned policies is the execution of such policies without a clear-sighted and commensuratelyresourcescapacitydevelopmentplan’[Moore&Lewis2005:47].

Articulationofqualifications:Definingoutcomes,levels,andcompetencies

Diplomaselection:Basedoncandidate’sworkexperienceandskills

Recordofevidence:Candidate’sevidenceoflearningSubmissionforassessment:

Candidate’sdocumentationorportfolioAssessment:

Byqualifiedpersonnel

Table-11:StagesofRPLinpractice

3.2.5.1 Resourceconstraints

Developing a sustainable funding mechanism is the key to establishing an RPL system. The financialresourcesrequiredtoputanRPLinfrastructureinplacespanacontinuumoflowtohighdependingonthe nature of the recognition (formal, informal or non-formal) and the purpose (access, credit, oroccupational). In some cases, funding incentives are required to support the financial capacity ofeducationalinstitutionstoimplementRPL[Breier&Burness2003].Toensureasustainablefoundationforfunding,acost-sharingmechanismthatengagesmulti-stakeholderpartnershipsmaybedeveloped.Forexample,inFranceandtheNetherlandsthecostsincurredthroughadditionaltrainingandeducationare offset by incorporating social partners to play a key role in recognizing the prior learning andcompetenciesofemployees[UNESCO2013].

AdditionalsourcesofRPLfundingmaybederivedfromtargetedpublicfundsorthroughtrainingleviesfromenterprises.InIreland,theHigherEducationAuthority’sStrategicInnovationFund(SIF)has


28

engaged short-term targeted fundingona competitivebiddingbasis todeveloppilotprogramswhichcanbescaledup.

Humanresources,particularly inadministrativeareas,areperhapsthemost intensiverequirementforsuccessfulimplementationofRPL.IfrealbenefitsaretobegeneratedfromRPL,itisvitalthata'tickbox'approach to implementation is avoided. In particular, the process of identifying and assessing thecandidate's skills and capabilities requires robust engagement. To this end, successful RPL challengeseducation and training providers as well as individual candidates and employers to engage with adetailedreflectiononlearninggainedfrompriorexperienceswhichgoes‘…wellbeyondanaccountofajob history’ [Remery & Merle 2014: 275]. The international experience also points to the need forsignificantpublicandprivate investment intheformofcomprehensivesupportforcandidatesseekingtomakea transition throughRPL.Thisentails flexibleand responsive teachingpracticesandon-goingsupport for learners as they adjust to and develop academic skills. The provision of 'return to study'courses, mentioned above in reference to RPL for credit recognition in Ireland, is indicative of suchflexibleandsupportivepractices.

3.2.5.2 Institutionalconstraints

For educational institutions, RPL can challenge some of their traditional policies and organizationalstructures,aswellastheir long-standingphilosophicalapproachtoeducation.RPLimpactsuponmanyaspects of the educational institution from the admission policy to the learning environment. Toaccommodate prior learning and the individual learner's pace and level of learning, RPL requires aninstitutionalstructurethatallowsforflexibleentryandexitpointsintoprograms.However,itisnotablethat the concept of RPL hasmademore progress in vocational and professional environments ratherthanintraditionaluniversitysettings[Slowey&Schuetze2012].

ACADEME

DISCIPLINESPECIFICSKILLS

CROSSDISCIPLINARYSKILLS

PROFESSIONSPECIFICSKILLS

PERSONALTRANSFERABLE

SKILLS

WORLDOFWORK

Figure-8:PolesApart:SkillsinHigherEducation[Barnett1994:62]

A review of practice in South Africa for example indicates that the higher education curriculumadaptationismoreoftendrivenbytheintellectualinterestsofacademicsratherthanbypolicy[Moore&Lewis2005].

Recognizing the value of prior learning questions the traditional understanding of what constitutesacademic knowledge. The perception that learning outcomes attained through the formal educationsystemaresuperiortothoseattainedthroughpriorlearningremainsakeychallengeinsomecountries.Consequently,effortstolinkthevocationalandacademicsystemsthroughtheintegrationofformaland

GENERALSP

ECIFIC


29

non-formal learningmaybehinderedwhenthere isastrongsocialand institutionalvalueattachedtoformalacademicqualifications.Theseculturalbarriers impactuponthevalueattributedtonon-formaland informal learning and, as a result, they impact upon the levels of confidence in RPL amongeducationinstitutions,employers,learnersandsocietyingeneral.

The traditional model of knowledge which has informed higher education also presents a challenge.Whileknowledgeisgenerallyunderstoodastheproductoflearning,researchersacknowledgedifferentkinds of knowledge and ways of knowing which has given rise to a ‘great divide’[Breier 2001: 90]betweenknowledgeassociatedwithformaleducationalinstitutionsandknowledgeacquiredinformally.AsRonaldBarnett [1994]elucidates, thetraditionalconceptionofskillshasbeenconceivedalongtwoaxeswhichopposetheacademicwiththeworkplaceandthespecificwiththegeneral(seeFigure-8).Hefurtherconceptualizesashift intheknowledgefunctionsofhighereducationfromonanemphasison'knowing-that'to'knowing-how.

Reconciling this traditional divide is one of the challenges for implementing RPL. In reference toAustralian universities, Pitman [2009] indicates that the profile of RPL has changed significantly suchthatconcernsaboutthelearningandeducationalstandardsofRPLcandidatesarebeingovercomebothconceptually and procedurally. In part, this has been driven by the ‘expansion and diversification ofeducationandtrainingpoliciestowardsabroader,lifelonglearningperspective[which]widensthefocusfrom the delivery of qualifications by formal education and training institutions to include other,moreflexibleroutestoqualification’[Cedefop2009:16].InEurope,ashiftinemphasisfromuniversity inputs -‘whatwill be taught’ - toanemphasison learningoutcomes - ‘what the studentwill learn’ -hasalsoaidedtheaccommodationofRPLandinitiativetorecognizework-basedlearning[Walsh2014:110].

Workbasedlearning(WBL)offers ‘anewwayoforganizingandlearning intheacademyanddoesnotnecessarily arise directly from disciplinary frameworks but exemplifies more local knowledge fromspatial and temporal circumstances of work contexts and situations’[Costley & Abukari 2009:313]. Inmanycountries,disciplines,suchasnursing,teachingandtourism,alreadyrequireworkplacelearningasanecessaryelement forattainingaqualificationsuchthat thepracticalexperiencederived fromworkplacementcomplimentsthetheorytaughtinuniversity.Inthecaseofnursing,thelearningrequiredinapractical context is usually tightly defined by a professional body whereas work placements moregenerally, for example on tourism courses, are often more loosely defined in terms of learningobjectives and assessment [Walsh 2014:110]. An example of good practice in this area is the 2006initiativeby Irishthird levelcollegestoaccreditworked-basedlearning inbusinessandITwithathird-levelqualification[seeIOTI2006].Theprocessbeganwithapromotioncampaigntargetedatemployers,employeesandgroupsrepresentingbusinessandskillsatanationallevel.Bysolicitingtheparticipationand agreement of relevant stakeholders, the initiative was able to proceed with a portfolio-basedrecognitionofwork-basedlearning.

3.2.5.3 StakeholderconstraintsThe successful implementation of RPL requires the commitment of many stakeholders includingemployers,educationandtrainingproviders,professionalbodies,employeerepresentativebodies,andthe policy community. The consultation and engagement of these stakeholders is essential to ensurethat their concerns are addressed and that they fully understand what is required of them. Whenstakeholders are not engaged in the RPL process, there is a risk of a 'compliance' approach toimplementation. That is, participating stakeholders may comply with legislative requirements whilelacking in commitment to the objectives of RPL. As a result, any changes to existing practices andpoliciesmaybelimitedorsuperficial.

Cedefop [2009]developed 'EuropeanGuidelines forValidatingNon-Formaland InformalLearning'andprovides a regularly updated overview of RPL practices across Europe (seewww.cedefop.europa.eu).Thefunctions,motivationsandrolesofstakeholdersidentifiedintheseguidelinesareshownTable-12.


30

Successful RPL implementation requires that stakeholders are aware of the benefits of participating.Somecountries,suchasMauritius,haveinvestedinadvocacyinitiativesandcommunicationstrategiestoraiseawarenessaboutRPLandtobriefmajorstakeholdersoninternationalbestpractices.InIrelandthe targeted funding scheme SIF has been utilized for this purpose. One SIF project, conducted inconjunction with Cork Institute of Technology, developed a review of RPL practices with the goal ofidentifying best practice [see Sheridan & Linehan 2009]. An RPL information guide is also publiclyavailableonlineandoutlinestheroles,processesandtimelinesofRPL(seewww.cit.ie/rpl).

Overallhowever,manyoftheconstraintsonRPLimplementationareculturalasasurveyofarangeofstakeholdersinScotland(anearlyadopterofRPL)concludes[HowiesonandRaffe2012].

Credit recognition is voluntary and education providers vary in their willingness to recognize andtransfercredit.Reasons fornotrecognizingor transferringcredit includethe increasedcostof flexibleprovision;alackoftrustinthelearningorassessmentsdeliveredelsewhere;fundingdisincentives;therequirementsofregulatoryoralackoftrustinthelearningorassessmentsdeliveredelsewhere;fundingdisincentives; the requirements of regulatory or professional bodies; and time-serving norms andexpectations[HowiesonandRaffe2012].

3.2.6Qualityandstandards

The international experiencemakes it clear that thequality assuranceofRPLpractices is vital for thebroader success of RPL policy and implementation. In response to concerns about standards, qualityassuranceiscoretomaintainingthecredibilityofanationalqualificationsframeworkandtheintegrityof individual qualifications. An important outcome of a robust NQF is the formalization of qualityassuranceprocesseswhichmayhavepreviously been informal or loosely defined.As a result, qualityassuranceprovidesabenchmarkagainstwhichtrustinprocessesandqualificationscanbedeveloped.

InaEuropeancontext,asetofnineprinciples forqualityassuranceensurecross-national trust inRPLprocesses.Thenineprinciplesare:

UNESCOrecommendationsTo create a coordinated national structure involving all stakeholders, UNESCO 'Guidelines for theRecognition, Validation and Accreditation of the Outcomes of Non-formal and Informal Learning'recommendthefollowing[UNESCO2012]:

• Ensureallstakeholdershaveclearly-definedrolesandresponsibilitiesindevelopingacoherentand coordinated national structure to oversee the design, implementation and qualityassuranceoftheRVAsystem.

• EstablishmechanismstoadoptcredibleandqualityRPLprocedures,standardsandinstruments,aswellasawardingqualifications.

• Facilitate RVA implementation by putting in place effective administrative processes forreceivingapplications,organizingassessmentandproviding feedbackonoutcomes, recordingresults,awardingqualificationsanddesigningappealprocesses.

• Makeefforts tobuild theRVA infrastructureat local levelso that it isavailablewherepeoplelive,workandlearn,andmakeRVAapartofexistinginstitutionsincommunities.


31

Whoisinvolved? Whataretheresults? Whyaretheydoingit? Howisthisdone?

Europe

anlevel

EUCommissionandCouncil

Europeanqualificationsframework

(EQF)

Comparabilityand

transparencyIncreased

mobility

Openmethodofcoordination(OMC)

Technicalcooperation(peerlearning)

EUagencies

EuropassCommonEuropeanprinciples

forvalidation

Competitivenss

Experimentalandresearchprograms

(Lifielonglearningprogram,

Frameworkresearchprograms)

CedefopandEuropeanTraining

Foundation(ETF)

DraftEuropeanguidelinesfor

validationLifelonglearnmg

Socialpartnerorganizations

Europeancreditsystemforvocational

educationandtraining(ECVET)and

Europeancredittransfersystem(ECTS)

Ministersofeducationand

training

Employmentministers

Natio

nallevel

Ministries Nationalcurricula Knowledgesociety SystemsProjects

Qualificationauthorities Qualifications Mobility NetworksFinancing

Socialpartners Innovation Legalframework

NGOs Skillssupply

Ed

ucationan

dtraining

sector

Localgovernmentinstitutions Educationprograms(standards) Educationforall Definingassessmentandvalidation

methods

Privateinstitutions Certificatesrecognisingparticipation Tailoredtraining

Assessmentcentres Shortenedstudyperiod

Universities Diplomas Increasedadmission

Vocationalschools

Specialistrecognitioncentres


32

Voluntarysector

Busin

esss

ector

Whoisinvolved? Whataretheresults? Whyaretheydoingit? Howisthisdone?

Businessmanagers

Occupationalstandards

Modernisation

Mapping

Humanresourcemanagers Competenceprofile Competitiveadvantage Counseling

Tradeunionrepresentatives Workdescriptions Resourcing Assessment

Careerplanning Validation

CommunitiesNGOs Socialandpersonalreasons

EmployabilityMappingYouthpassEuropassCV

Projects

Motivationtolearn Personalreasons Supplementarylearning

CandidateEmployee Mobility Takingpartinassessment

Personalreasons Entrancetoeducation

Table-12:Anintegratedviewofvalidationofnonformalandinformallearning[Cedefop2009:19]

Self-esteem Employability Documentation

Proofofknowledgeandskills Careeradvancement

Skillsprofile

Individu

al


33

a) qualityassurancepoliciesandproceduresshouldcoveralllevelsofeducationandtrainingsystems;

b) qualityassuranceshouldbeanintegralpartoftheinternalmanagementofeducationandtraininginstitutions;

c) qualityassuranceshouldincluderegularevaluationofinstitutionsorprogrambyexternalmonitoringbodiesoragencies;

d) externalmonitoringbodiesoragenciescarryingoutqualityassuranceshouldbesubjecttoregularreview;

e) qualityassuranceshouldincludecontext,input,processandoutputdimensions,whilegivingemphasistooutputsandlearningoutcomes;

f) qualityassurancesystemsshouldincludethefollowingelements:- clearandmeasurableobjectivesandstandards;- guidelinesforimplementation,includingstakeholderinvolvement;- appropriateresources;- consistentevaluationmethodsincludingself-assessmentandexternalreview;- feedbackmechanismsandproceduresforimprovement;- widelyaccessibleevaluationresults;

g) international,nationalandregionalqualityassuranceinitiativesshouldbecoordinatedtoensureoverview,coherence,synergyandsystem-wideanalysis;

h) qualityassuranceshouldbeacooperativeprocessacrosseducationandtraining,involvingallrelevantstakeholders,withinMemberStatesandacrossthecommunity;and

i) qualityassuranceguidelinesatcommunitylevelmayprovidereferencepointsforevaluationsandpeerlearning[Cedefop2009:23].

Many countries have developed a body to oversee and ensure the quality assurance of education andtraining. InSouthAfrica, forexample,theHigherEducationQualityCommittee iscomposedoftheSAQA,whichprovidesintellectualandstrategicleadershipfortheimplementationoftheNQF,andtheCouncilonHigher Education, which has statutory responsibility for coordinating and generating standards for allhighereducationqualifications.

3.3 Governance11

3.3.1Nationalqualificationsauthorities

Themajorityof countries thathave implementedaNQFhavecreateda singlequalificationsauthority todesignand/orimplementandmanagetheirNQF.However,theseauthoritiesvarysubstantially,especiallyintheirtermsofreference,operations,sizeandcapacity[Allais2010].Inessencethevarianceisdueto:

• nature,scopeandpurposeoftheNQF;• characteristicsofthequalificationssystem,includingthequalityassurancearrangementsinplace

ordesired;• degreeandscopeofdesiredstakeholderengagement;and• socialandpoliticalcharacteristicsofthecountry.

Generally,thevariancesareasaresultofwhethertheauthorityhasaqualityassuranceroleornotwithinthequalifications system.Somecountriesmayhaveestablishedmultipleagencies tomanage thequalityassurance of various sub sectors (e.g. Australia), however each country has established only one singleagencytomanagetheNQFandmanageorcoordinatetheimplementationofitsNQFacrossalleducationandtrainingsectorswithinthescopeofitsNQF.

11FullreportpreparedbyMsAndreaBatemanoninternationalexperiencesofgovernancearrangementsissubmittedseparately.


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TheunderpinningpurposeofanNQFcanaffect thegovernancearrangementsof the responsibleagencywithinacountry.ANQFisasetofnationallyagreedstandards,developedbycompetentauthorities,whichrecognizelearningoutcomesandcompetencesforallformsoflearning[UNESCO2012].Raffedistinguishesbetweenthreetypesofqualificationsframeworks[Raffe2009],

• communicationframeworks;• reformingframeworks;and• transformationalframeworks.

A communications framework is defined as one that takes the existing structures of the education andtrainingsystemandaimstomakeittransparentandeasiertounderstand.Areformingframework isonewhich takes the existing structures of the education and training system and aims to improve it. Thetransformational framework on the other hand looks towards the future for the education and trainingsystemandaimstodevelopstructurestoachievetheproposedchange.

NQFscanvary intermsofwhethertheyaretightor looseframeworks[Tuck2007].TuckstatesthattightNQFs are generally based on legislation or regulation with which accreditation of qualifications are tocomply. As such, there are often common rules and procedures for the development and approval ofqualificationsforalleducationandtrainingsectors.Looseframeworks,ontheotherhand,tendtobebasedongeneralprinciplesandaremoreguidanceratherthanrequirementstocomplywith[Tuck2007:22].

Tuck[2007]indicatesthattightframeworksaremoreappropriateforaregulatoryenvironmentandalooseframework more appropriate when the framework has more of a communicative focus. Tuck’sclassification does not imply that there are only two types of NQFs, but that there is a continuum ofapproaches.However,thetwoapproacheshighlighttheneedtoconsiderthedegreeofcentralcontroltobeexertedinregardstoimplementation,andthereforeaffectstheroleoftheresponsibleagency(i.e.theIQFBoard).

SixNQFswere reviewed i.e.Australia,HongKong, Ireland,NewZealand,ScotlandandSouthAfrica.NewZealand is citedas a tight frameworkwith set criteria and requirements asopposed to thatof Scotland,whichhasgreaterflexibilityastowhatisaqualificationandwhatcanbeincludedintheframework.Otherframeworks canbeamixofpurposes, forexample, theAustralianQualifications Framework (AQF) at itsinception provided a basis for a regulatory approach to vocational education and training qualificationsdevelopment, whereas with the higher education sector (especially with universities) it was said to bereflective of the status quo. Some frameworks clearly stated overarching objectives related to socialinclusion, forexample, SouthAfrica’sNQFnotesa keyobjectiveas ‘accelerate the redressofpastunfairdiscriminationineducation,trainingandemploymentopportunities’[SAQA2000:5].

3.3.2 Characteristicsofthequalificationssystem

Tuck [2007] categorizes qualifications systems into tracked, linked or unified. In a tracked system thevocationaleducationandtraining(VET)sectorandhighereducationareseparateanddistinct. Ina linkedsystemtherearedifferenttracks,butemphasisisontheirsimilaritiesandequivalences.Inaunifiedsystemallprovisioniswithintheonesystem.

Generallyspeaking,mostcountrieshavetrackedsystems.AustraliaisclearlyatrackedsystemwiththeVETsector being distinct from higher education; although there is some blurring of provision with someprovidersandqualificationtypesandaverystrongemphasisatalllevelsonaccessandprovisionofverticalandhorizontalpathways.

Withinanyqualificationssystemthequalityassurancearrangementsinclude:

• approval(andmonitoring)oftheachievementstandards(suchasstudyprograms,curriculum,occupationalstandards,educationalorcompetencystandards);


35

• approvalofeducationandtrainingproviders,includingapprovaltobeestablishedandapprovaltodeliverspecificprograms);

• monitoringandauditingofproviderprocessesandoutcomes,includingstudentlearningandemploymentoutcomesandstudentandusersatisfactionlevels;

• control,supervisionormonitoringofassessment,certificationandgraduationproceduresandoutcomes;

• providerorsystem-wideevaluationsofquality,includingevaluationsbyexternalagencies;and• provisionofpublicinformationontheperformanceofproviders[Batemanetal2012].

Countriestypicallydividethesefunctionsacrossdifferenttypesofagencies,suchas:

• accreditationagencies;• providerregistrationandmonitoringagencies;• qualificationsagenciesandawardingbodies;• licensingagenciesandprofessionalbodies;• self-accreditingand/orawardingproviders;and• externalqualityagenciessuchasthoseresponsiblefortheISOstandards[Batemanetal2012].

Thenumberandtypeofagenciesandthebalanceoftheirresponsibilities,aswellastheprocessesthatareusedtoundertaketheirfunctions,arevaried.

For the six countries reviewed, the quality assurance arrangements vary and different models exist. InAustralia,although there isonlyoneNQF, the responsibility forqualityassurance is sharedbetweentwonationalregulatorsfortheVETandhighereducationsectors,andthereareseparatequalitystandardsandseparateprocessesforapprovingqualifications.Themanagementofthenationalqualificationsframework(AQF) fallsunder thepolicydirectionof theMinistryofEducationandTraining. In Ireland,prior to2012,quality assurancewas a shared responsibilitywith four agenciesbutwas replacedby a single integratedagency,QualityandQualificationsIreland(QQI).InNewZealand,theNewZealandQualificationsAuthority(NZQA)isresponsiblefortheoversightoftheNZQFandalsoqualityassuresthenon-universitysectorwithUniversities New Zealand being the key quality assurance body for universities acting under delegationfromtheNZQA.

3.3.3 Legislativebasis

Castejon,Chakroun,Coles,Deij&McBride’s[2011:40]researchofEuropeanUnioncountriesindicatesthatcountriesuselegal instrumentsto‘definechangesinthequalificationssystemthatenablesthesystemtorecognizelearning’.Includedinthetypesofchangesnotedinlegalinstrumentswere:

• coordinatingtheagenciesworkinginthequalificationsfieldbyoutliningthevariousadvisorygroups,steeringgroupsandexecutivegroups;

• settingupanewqualificationsagency;and• settingoutrelationshipswithothernationalentities.

Castejon et al [2011:40] notes that in the various stages towards changing the qualifications system thefinalcriticalstagesinclude:

• definingthemanagementofallorpartofthenewqualificationssystem,includingtheremitofrelevantbodies(suchasqualificationsbodies,employmentsectorcouncilsorcertificationbodies);

• reviewingexistinglegislationtoidentifywhethertheexistinglegislationiscapableofamendmentorifnewprovisionsarerequired;

• draftingthelegalinstrumentforconsultationwithstakeholderstoresolveissues;and• testingthelegislationandcostingisdetermined.


36

ForeffectiveimplementationofanNQFacrosssectorsit isacceptedthatsuccessdependsontheleveloftrust between the sectors [Tuck 2007]. Building communities of trust between the sectors relies onaccurateandtransparentinformationinrelationtothequalityassurancearrangementsdeployed.Theroleof the responsible agency for managing the NQF could be instrumental in communicating the qualityassurancearrangements,providingforlinkagesbetweensectorsandencouragingflexiblepathways.

Of the six countries reviewed, the mechanism for the establishment of the responsible agency isintrinsically linked to the legal basis of the country’s NQF. The legislative basis of the NQFs in the sixcountriesvaries.BothIrelandandSouthAfrica,forexample,havealegaldocumentestablishingtheirNQFs.On the other hand, Australia did not establish its NQF through specific legislation but focused onagreementsbetweengovernmentagenciesandkeystakeholders.TheAQFdidnothavespecificlegislationfor its establishment, but has relied on the collaboration of both Commonwealth and state/territorygovernments [Keating 2003]. Currently the AQF is mentioned in supplementary legislation and/orregulationspertainingtothetwonationalqualityassuranceregulators,anddocumentedviaAQFpoliciesandobjectivesandinformationaboutthegoverningandmonitoringarrangementsfortheAQF.

Of the six countries reviewed all had different mechanisms for the establishment of their responsibleagency:

• some have established a legal basis of their responsible agency through legislation focusing oneither the responsible agency role or on theNQF, for example, Ireland,New Zealand and SouthAfrica.

• others have not established a legal basis of their responsible agency through legislation, butestablishedanindependententitysuchastheScottishCreditandQualificationsFramework(SCQF)PartnershipBoard

• othersareembeddedanexecutivearmwithinagovernmentdepartment,forexample,HongKongandcurrentlytheAustraliansituation.

Table-6belowsummarizesthelegalstatusoftheresponsibleagencyineachofthesixcountries.

Country Name LegalbasisofagencyAustralia(past) AQFCouncilorAQFBoard CommitteeofministerialcouncilAustralia(current) BasedwithinaMinistry WithinaministryHongKong QualificationsFrameworkSecretariat ExecutivearmwithintheEducationBureauIreland QualityandQualificationsIreland StateagencyNewZealand NewZealandQualificationsAuthority CrownentityScotland SCQFPartnershipBoard BoardisacompanylimitedbyguaranteeSouthAfrica SouthAfricanQualificationsAuthority Juristicperson–anentitygivenalegalpersonalityby

thelawTable-6:Legalbasisofthenationalagency

In all but Australia and Hong Kong, the current responsible agency has a legal basis and a level ofindependencefromthatofthegovernment.Thislegalindependencehastwoadvantages–itprovidesforapolitical mandate for its role in the maintenance, implementation and promotion of the NQF and alsoprovides for a level of autonomy from the direct influence and competing demands of governmentministriesandpotentialforchangesinpolicies.

3.3.4 Scopeofresponsibilities

Castejon,Chakroun,Coles,DeijandMcBride’s[2011]researchintoEuropeanUnioncountriesnotethattheremitofnewqualificationsagenciescanbegeneralizedintovariousfunctions,including:


37

Australia(Board)

Australia(Council)

NewZealand

HongKong

Ireland

Scotland

SouthAfrica

MaintenanceofFramework

ü

ü

ü

ü

ü

ü

Monitor&supportimplementation

ü

ü

ü Monitorcrosssectoralinterface,linkages,pathways

ü

ü

ü

PromoteQAineachsector

ü

ü

ü

Maintainregisterofresponsiblebodies

ü

ü

ü

ü Website/Promotion

ü

ü

ü

ü

Provideadvice

ü

ü

ü

ü

LiaisewithQAbodies ü ü ü ü Approvecreditrating/standardsdevelopmentorprofessionalbodies

ü

ü

Seekfeedback,collectdata

ü

ü

ü

Promoteinteragencycollaboration

ü

ü

Internationalmonitoring&liaison

ü

ü

ü

ü

ü

Internationalalignment

ü

ü

ü

ü

ü

ü

Coordinatesubframeworks

ü Assessforeignqualifications

ü

Table-7:Summaryofrolesandresponsibilities

• providepolicyadviceastotheimplementationofNQFsandthequalificationssystem;• ensurelinkswithothernationalandinternationalqualificationsframeworks;• cooperatewithsimilarbodiesinothercountries;• carryoutdissemination,suchasconferences,research,consultancyandpublicationactivities;and• arrangeforrecognitionofskillsandqualificationsforstudentandmanpowermobility.

Eachofthesixcountries’agencieshasarangeofrolesandresponsibilities,whichmayhavechangedovertime. The documented12 roles and responsibilities of the six countries’ responsible agencies (excludingquality assurance responsibilities)13 were analyzed. A summary of these roles and responsibilities isincludedinTable-7.

12Responsibleagenciestendtohaveabroaderrangeofactivitiesthanwhichisexplicitlydocumented.13Excludingsuchrolesasapprovingqualificationsandmaintainingaqualificationsregister;andapprovingandmonitoringproviders,maintainingaproviderregisterandmonitoringprovision


38

Research across the six countries in terms of roles and responsibilities indicates quality assuranceresponsibilities (applied by the agencies of Ireland, South Africa and New Zealand) and the commoncommunicativeandcoordinationrolesrelatedtoitsNQFinclude:

• monitoringtheNQFintermsofapplicability,currencyandimplementation;• disseminationandpromotionoftheNQF,includingtheroleofinformationcenter;• disseminationandpromotionofqualityassurance,throughliaisonand/oranoverarchingquality

assurancerole,andprovidingassistanceaswellascapacitybuilding;and• liaisonwithinternationalbodiesandpromotionofeachcountry’sNQFandqualifications,including

alignmentactivities.3.3.5 Membershipofthegoverningbody

Acrosscountries,membershipofgoverningentitiesisgenerallyeitherrepresentativeoftheeducationandtrainingsectorsandstakeholdersofthequalificationssystem;orhasexpertmembershipwithexpertiseintheareaofqualificationsframeworksorqualityassurance.Thesetwoapproachesdonotexcludeexampleswhichincludeanotionofbothoptions.

The membership of each the agency responsible for the NQF in the six countries was reviewed.Membership numbers generally range from 8 to 16members; however, in the case of South Africa theBoardinitsinitialstage(anddirectlyaftertheapartheidperiod)hadupto25members.Ofinterestis:

• onlyoneagencyhadstudentrepresentationonthegoverningbody;QQIhastwostudentmembers,oneofwhichistobenominatedbytheUnionofStudentsinIreland;

• previousarrangementsinAustraliaincludedaninternationalobserver;• SCQFPartnershipBoardincludesaScottishGovernmentrepresentativeasanobserver;• Someagencieshaveidentifiedspecificsectors,agenciesorpeakbodies(e.g.teachers,principals)

fromwhichnominationsaresought(e.g.SouthAfrica);and• Someagenciesincludecommunityrepresentation(e.g.Scotland).

The summary oversimplifies the membership information of the six countries reviewed as it does notexplain the level or scope of representation of the members, the authority to select membership, theprocessforseekingnominations,andtheselectionprocessesofthemembers.

Ananalysisofthesixcountriesreviewedindicatesthatvariousprocessesareutilized:

• appointmentsaregenerallymadebytherelevantMinister;• someagenciescanco-optadditionalmembers(e.g.SCQFPBoardinScotland);• someagencieshaveaChairselectedfromwithinthemembersorhaveanindependentChair;• nominationsincludeconsiderationofskillsandexpertise,e.g.AQFCouncil(Australia),QQI

(Ireland),SCQFCommittee(Scotland),SouthAfrica;• membershipistohaveabalanceintermsofgender,expertiseinapproval/monitoringofprograms

andproviders,andknowledgeofeducationandtrainingsystems;and• nominationsaresoughtfromrelevantbodiesordirectlyappointedbytherelevantMinisterusually

underadvicefromspecificministries.

Termsofmembershipvariesfromtwotofiveyears,althoughinalmostall instancesthismembershipcanbe extended through either Chair orministerial approval. Remuneration detailswere not always explicitacross the four countries reviewed.14Both Ireland and South Africa include remuneration details in theirlegislation. Remuneration generally covers cost of attendance for members (unless a publicservant/governmentbodyemployee)andpossibleadditionalremunerationfortheChair.

14ExcludingAustraliaandHongKongastheresponsibleagencyiswithingovernmentdepartment.


39

Theprocessforappointingmembersvariedacrossthesixcountriesreviewed.Forexample,inSouthAfricatheMinisterseeksnominationsthroughnoticesintheGazettetoorganizationsthatcannominatepersonsonthebasisoftheirexperienceandexpertise;andthereistobenomorethanonenominationmadebyanyorganizationorunion.

Conflictsof interestsofmembershipareaddressed invariousways,either through legislationor throughprotocolsestablishedfortheresponsibleagency.

3.3.6 Reportingstructures

Areviewofthesixcountriesalsorevealedvariationsinreportingstructures.Themajorityoftheagenciesisconsidered as Quasi-autonomous non-government organizations and is responsible in some way togovernment. Inthemain,mostresponsibleagenciesreporttotheirgovernmentviaanannualreportandalsohavetheirfinancialaccountsauditedannually.Reportsaregenerallysubmittedtoparliamentandarerequiredtobemadepublicontheirwebsite(e.g.NewZealand).Inaddition,someagenciesarerequiredtosubmit strategicplans; in the caseof Ireland it is every three years and inAustralia itwasonanannualbasis.OfinterestisthattheNewZealandQualificationsAuthorityreportstotwoMinistersacknowledgingthecrosssectoralnatureofNQFsandinAustraliathepreviousstructuresofaCouncilorBoardreportedtotwoministerial councils of commonwealth and state and territory ministers – again acknowledging thecrosssectoralnatureandemphasisoftheNQF.

3.3.7 Sourcesoffunding

An analysis of funding sources across the six countries reviewed indicates that in themain key fundingsourcesarelinkedtothereportingstructures,nationaleducationandtrainingfunds,andfeesreceivedforcertificationservices.Detailsofeachcountry’ssourceoffundingareillustratedinTable-8below.

Country SourceoffundingAustralia GovernmentHongKong GovernmentIreland* Exchequergrantfunding

Non-Exchequer,includingfundingfromtheEUCommissionforspecificprojects,feesrelatedtocertification.

NewZealand* CrownrevenueOther:Feesfrom-Examination,qualificationrecognitionservices,NationalCertificateofEducationalAchievement,provisionofotherservices

Scotland ScottishFundingCouncilVoluntaryandinvestmentincome,charitableactivities

SouthAfrica* CouncilofHigherEducationNationalSkillsFund

DHET-CareerDevelopmentServices Note:*theseagencieshaveaqualityassurancerole.

Table-8:Sourcesoffunding

Those agencies that have a quality assurance role are able to source additional funds through otheractivitiesorservices.However,thoseagenciesthathadapurelyNQFmanagementrolearegenerallysolelyfundedthroughgovernmentsources,as there isminimalopportunity for themundertakeandcharge forotheractivitiesorservices.

Chapter4:Findings

40

Chapter4 Findings

The findings in this chapter emerged from stakeholder engagement. These included focus groupdiscussions,stakeholderengagementsessionsandworkshopswiththepilotfieldsasoutlinedbelow.

The study team undertook Focus Group consultations with a range of key agencies including theIndonesianNursingDiplomaEducation InstitutionsAssociation (AIPDKI), IndonesianNursingEducationInstitution Association (AIPNI), Indonesian Nursing Association (PPNI), Association of Nursing StudyPrograms,MinistryofHealth (BPSDM),HotelHumanResourceManagerAssociation (HHRMA), JakartaInternational Hotel Association (JIHA), Food & Beverage Executive Club (IFBEC), HousekeeperAssociation (IHKA), Tourism study programs (HILDIKTIPARI), Ministry of Tourism (BPSD), IndonesianAssociationofAccountants (IAI), Indonesian InstituteofCertifiedPublicAccountants (IAPI),TechnicianAccountant Association (APPTASI), Ministry of Finance, Indonesian Hotel & Restaurant Association(PHRI),selectedDeansandHeadofStudyPrograms,aswellaslecturersintherelevantfields.

The team also conducted sessions with other stakeholders, such as the Indonesian Chamber ofCommerceand Industry (KADIN),NationalProfessionalCertificationAgency (BNSP),BoardofNationalEducation Standards (BSNP),National AccreditationAgency forHigher Education (BANPT), aswell assomeRegionalCoordinatorsforPrivateHigherEducationInstitutions(KOPERTIS).Theteamvisitedafewsampled institutions, such as University of Indonesia, Padjadjaran University, Institute Technology ofBandung,AtmaJayaUniversity,andCollegeofTourism(STIP)Bandung.

WorkshopswereconductedinJakarta,Bandung,Denpasar,Yogyakarta,Surabaya,andManadowithkeystakeholders of the three pilot fields - nursing, accountancy and tourism.A thorough literature studywascarriedoutbyteammembers,particularlyontheinternationalexperiencesof implementingNQF.The team also conducted overseas study trips to Hong Kong, Ireland, and England, and took severalimportantstakeholdersasparticipants.Theteamwasinvitedtopresenttheinterimfindingsatthe12thInternationalWorkshoponHigherEducationReform2015:Policyandpracticeofqualityassuranceandcontrolinhighereducation,heldinTianjin–China,on21-23October2015.Thedetailedreportsonthefindings from the literature study, study trip, workshops, and paper presented are presented in theannexes of this document. This chapter presents the summary of the findings and analysis of the 4stagesinthisstudy,asplannedintheinceptionreport.

4.1 Governance

4.1.1 Segmenteddevelopment

Itwasevident inconductingthisstudythatactivities inthedevelopmentofthenationalqualificationsframework (IQF) have, to date, been conducted by many ministries, professional associations, andindustries,withlimitedornocoordination.ThethreemainplayersaretheMoM,MoEC,andMoRTHE.Until recently thedevelopmentof the IQFcouldbeconsideredassegmented,betweentheeducationsector (under MoEC) and the skills training sector (under MoM). Under MoM, the process ofcertificationofanindividual’scompetencehasbeenconductedlongbeforethePresidentialDecreeonthe IQF was issued, and uses the Law on Manpower 13/2003 as its basis for the development ofcompetency based training. In many cases theministries’ bureaucracies tend to avoidmingling withissues outside their jurisdictions, resulting in lack of synergy betweenministries, even between unitswithinthesameministry.

Certification process for competency based courses under MoEC is carried out separately, includingcoursesinthesamefieldsasthoseconductedunderMoM.Somecertificationprocessesarealso

Chapter4:Findings

41

conductedbyuniversity’sfacultiesanddepartmentsunderMoRTHE(previouslybyDGHEwithinMoEC)forfewprofessionsbeyondS-1degree,e.g.pharmacy,medical,dentistry.

ThesegmenteddevelopmentoftheIQFunnecessarilyincreasescost,drivesthesystemintounnecessaryduplication and cumbersome bureaucracy, and could become a major obstacle in the Indonesia’spreparation to enter ASEAN economic integration. Therefore the issuance of the Presidential Decree8/2012isagoldenopportunitytoimprovecoordination.TheDecreerequiresalleducationandtrainingprogramstomakereferencetotheIQF,andatthesametimeimposingnationalqualificationlevelingtoallprogramsbasedontheirequalityinlearningoutcomes.Nevertheless,lackofcoordinationathigherleveldoesnotdiscourageattempts todevelopcoordinationbyunitsunderMoRTHEandMoM.SomeLSP/PCBs have been established at polytechnic institutions, whereby the certification process andoutcomesarenationallyendorsedandrecognizedbyBNSP.

4.1.2 Weakcoordination

The term training (under MoM) and course (under MoEC) providers is in practice the same, sinceprovidersunderbothMinistriesoffersimilartraining.Despitethis,mostprovidersunderbothMinistrieshavetoregisterseparatelywiththeaccreditationauthoritiesauthorizedbyMoMandMoEC.EachoftheMinistries has established separate agencies for registration, accreditation, assessment, andcertification. To acquire recognition and funding assistance from both, providers are subject toregulationbybothMinistries.

Policy makers in the government bureaucracy tend to avoid mingling with issues outside theirjurisdiction. Hence it is not uncommon to find overlapping, sometime even conflicting, regulationsissuedbydifferentMinistries.OtherMinistriesandagenciesadd to thecomplexityof theproblembyissuingregulationswithlimitedcoordinationwithMoMandMoEC.Thisbureaucraticpredicamentmaytherefore extend to other IQF related issues such as RPL if coordinating policies are not rigorouslystipulatedduringtheIQFdevelopmentphase.

4.2 QualificationsFramework

4.2.1 Lackofnationalcompetencystandardsasareference

In some sectors, implementation of competency standards for the some industries is already in theadvanced stage. Tourism is an example of such sector, whereby competency standards have beenimplemented long before the IQF was decreed. On one hand such an advanced stage benefits theimplementationprocessfortheIQF,butontheotherhanditrequiresasignificantefforttoharmonizethe existing standards with the IQF. When the industries in this sector began to implement thecompetency standard, national competency standards for Indonesia did not exist and they had nochoice but to develop their own. The standard of competencies have to be synchronized with therelevantIQFlevelofqualificationthatfurtherequatethelearningoutcomesagreeduponintheASEANMRA.Moreover,somejobtitlescurrentlydefinedbyprovidersneedtobeadjustedtoconfirmregionallyrecognizednomenclatures(seeboxbelowandreportonFGDinAnnexA).

TourismIssues tobe resolved in the tourismsectorarenomenclature thatdoesnot fitwith thenationalstandardsasrequiredbytheIQF,jobtitlesdefinedbyprovidersthatdonotalignwiththejobtitlesregionallyagreeduponintheASEANMRA,andlearningoutcomesthatdonotcomplywiththeIQFrequirements. In this study significant efforts have been given to provide assistance through aseriesoffocusgroupdiscussions(FGDs)toresolvetheseproblems.

Chapter4:Findings

42

Thetourismsector isperhapsauniquecase,since Indonesia isconsideredasalready in theadvancedstage in developing and implementing learning outcomes compared to some other ASEAN membercountries. Nevertheless, it demonstrates the critical role of national competency standards in thedevelopmentandimplementationofanationalqualificationsframework.Withoutnationalagreement,the development of competency standards will continue to be fragmented, segmented, anduncoordinated.Hence,theflowofRPLprocessinthissectormayalsobeaffectedinwhichrecognitionofprioracquiredcompetencystandardcannotbeappropriatelyassessedandvalued.

4.2.2 Irrelevantqualificationlearningoutcomes

In some fields, thedevelopmentof learningoutcomes forqualificationshasnotproperly involved thestakeholders,particularlyemployers,inameaningfulmanner.Accountingisonlyoneexampleofsectorswithirrelevantlearningoutcomesforqualificationsthatatoddwiththejobrequirementsfortheworldofwork.Duringthisstudy,rigorousassistancethroughaseriesofFGDshasbeenprovidedtorectifytheproblem(seeboxbelowandreportonFGDinAnnexA).

Thecaseofaccountingisnotuniqueanditisexpectedthatitwillbefoundinotherfieldsaswell.Manyprovidersdonothavesufficientcapacity tosolicitmeaningful inputs fromtheemployerstakeholders,due to lack of cooperation and communication between the two sides. The improved competencyrequirement in the workplace as a result of the advancement of technology is inadequatelycommunicatedbystakeholderstotherelevantproviders.Therefore,continuousqualityimprovementofcurriculumandenrichmentoflearningoutcomesbasedontransformationsofuser’srequirementneedto be evaluated by providers to abreast with new development. In relation to RPL developmentprogram,thismutualenhancementinitiativeswillwellequipthegraduateswithupdatedcompetenciesandappropriatenessoflearningoutcomesfromwhichcapacityassessmentandrecognitionprocesscanbeconducted.


Competencytestingisconsideredasaneffectivemethodtomaintainstandardsthatit is implementedbysomeprofessionalassociations,suchasmedicaldoctorsandaccountants.Asimilarprincipleofexittestingorexaminationisalsousedinalltestsleadingtocertification.

Othercases,wherethesimilarprincipleisapplied,arethesecondaryschoolfinalexaminationandtheentrance examination to the university system. In both cases, the decision of pass or fail is almostentirelydependentonthatonetimeassessment.Inthesecases,therewardofpassingtheexamisso

AccountingstudyprogramsAccounting is one of programs that attract the largest number of high school graduates inIndonesia,drivingmanyhighereducationinstitutionstoopennewprogramsinaccounting.Attheendof2013,578S-1and474D-3studyprograms inaccountingwereoffered.Programsofferedwerenot limited toD3andS1,butalso includedD1,D2,andD4.Since the IQF requiresdistinctlearning outcomes for each program, providers have created a specific job titles for each studyprograminanattempttomaketheprogramsrelevanttotheworkplace.However, the job titles defined by providers are mostly irrelevant to the employers’ needs.Accordingtoemployers,onlyD3andS1qualificationsarerequiredintheworkplace.Furthermore,manyemployersconsideredbothD3andS1qualificationstobesuitableforentrylevelpositions,further illustrating inaccuratedemandanalysisby theproviders.Despite theworkshops,workingcompetenciesaswellasknowledgecomprehensionbetweengraduatesatthetwodifferentlevelscannot be clearly differentiated. An attempt to use the International Federation of Accountants(IFAC) as abenchmarkbyproviders failed toproduce satisfactory results. Finally, theofferingofthenewD4programcreatesmorecomplicationratherthansolvingtheexistingproblem.

Chapter4:Findings

43

significant that it drives some participants to try to beat the system by cheating or using othermanipulativemeasures.

Thereforethequalityassurancesystemhastoberigorouslyimplementedinternallywithinthetrainingproviders and externally through accreditation, as well as othermechanisms. The oversight agenciesshould clearly send a signal to training providers that the exit examination is not the sole evaluationprocess,andseriousattentionshouldalsobegiventostrengthentheinternalaswellasexternalqualityassurancemeasures.

The existing quality assurance agencies conduct assessment with too much emphasis on inputs andprocesses,andlessattentiontooutputsandoutcomes.Thevery largevolumeofworktocarryoutbyagencies, such BAN-PT, drives them to rely on mechanistic methods instead of qualitative expertjudgment.Thelimitedresourcesandfunding,aswellasqualifiedassessors,alsoisaserioushindrancefortheseagenciestocopewiththechallenges.

4.3 RecognitionofPriorLearningThe IQF opens new opportunities that previouslywere not possible, such as the recognition of priorlearning(RPL).AlthoughRPLhasbeenimplementedbyindividualhighereducationinstitutionsaswellasindividual industries for quite some time, a national approach is yet to be developed. The FGDsconductedbythestudyteamrevealmanychallengesforRPLimplementationforthemainstakeholders(seethefollowingboxes,reportonFGDs,aswellasreportonRPLsurveyintheAnnexes).

In the case of entry requirement and recognition of previous personal or job experience by formaleducation,noclearprocedure is implemented. Insomecasespolytechnics recognize thecertificateofcompetency from reputable training providers. In fact some polytechnics have conducted specificcompetencybasedcertificationprogramstoincreasetheirgraduate’semployability,byinitiating

Educationandtrainingproviders• Awarenessof RPL is notwidespreadand formal engagement (if any) onRPL is still at initial

stages;• RPLisfrequentlyseenasaseparateprogramratherthananintegratedprocesswithexisting

studyprogramsandqualitysystems;• WeakinternalQAsystemsandpersonnelwhoneedextensivestaffdevelopment-inparticular

in relation to guidance and assessment- may be a key obstacle for the immediateimplementationofRPLonanextensivescale;

• Curriculumdesign,teachingandlearningmethodologiesandassessmentstrategieshavebeenadvocated,butarestillattheinitialstageandlimitedinpolytechnics;and

• SynchronousapproachesbetweenrelateddivisionswithintheMinistriescouldbecomeafirststeptowardimprovedcoordinationandsynergy.

Skillstrainingsector• ComprehensiveawarenessofRPLisnotwidespread,althoughpartialorindividualrecognition

ofpriorexperientiallearningmayhavebeenconductedbyindividualemployers;• TheexistenceofRPLprocessesbyemployersisrecognizedandCertificateofCompetency

achievedthroughassessmentservices(LSP)islooselyaccepted;• Datagatheringandanalysisforensuringcredibility,continuousmonitoringandauditing

processesatanationalleveldonotexist;and• DisseminationandpublicationonRPLeitheronofficialoremployerwebsitesdonotexist.

Chapter4:Findings

44

communicationwithBNSPfordevelopingan institutionalcertificationprogram.TheLSPestablishedatpolytechnicinstitutionislicensedbyBNSPtoissuerecognizedcertificates.

4.3.1 BenefittingfromRPL

Anational approach toRPL isneeded fora varietyof reasons, including inparticular tohelpupgradelevels of certification of the adult population; thus it can be used for adults with sufficient workexperiencewhowould like to reenter the formal education or training system in order to achieve ahigher level of qualification or to enable recognition of the skills and knowledge gained for otherpurposes.His/herexperiencesneedtobeproperlyassessedbeforeadecisionismadeonwhethersomeacademic work could be exempted. Although not frequent, such mechanisms are not uncommon insomehighereducationinstitutions.

IndonesiafacesaproblembecausethenationalsystemhastodealwithamassivevolumeofpotentialRPL cases, such as theupgradingof 46,000unqualifiednurses (seeboxbelowand report on FGDs inAnnex).Without anational approachas a reference, quality couldbe compromisedbynegotiation atlocallevels.Sincethenursingprofessiondealswithpatients,theriskisintolerable.

4.3.2 Industryexperiencedlecturers

Insomefields,particularlyvocationalandprofessionaleducation,itishighlydesirabletohavelecturerswith extensive working experiences. For example in fields such as manufacturing, engineering, orperforming arts, lecturerswithworking experience are essential.Many such potential candidates forlecturer positions, however, do not possess the required formal qualification. The Law 14/2005 onTeachersandLecturersrequiresthatlecturersshouldholdatleastaS2qualificationtobeeligible.

TheMoECRegulation73/2013providesanimportantsolutiontothisproblembygivinganopportunityforhighlyexperiencedindividualstomeettherequirementthroughRPL.Theirworkingexperiencescanbe assessed, and if all criteria aremet they can be granted the formal eligibility to lecture. Grantingeligibility does notmean awarding themwith degree although theremight be financial incentives aslecturers.However,problemsstillexistinregardsto:whowilldotheassessmentorwhoiseligibletodothe assessment; what reference points will be applied e.g. competency standards; and how theconsistency of the RPL of the process will be assured. Professional development of assessors anddocumentationofprotocolsforRPLarecrucialtothisprocess.

4.3.3 EnsuringconfidenceinRPLdecisions

RPL assessment should be integrated into mainstream quality assurance systems to ensure that thedecisionsmadebyassessmentprovidersareacceptedbyallstakeholders.RPLshouldbeconsideredasan alternative and legitimate pathway for entry into programs and for recognition of qualifications.Consultationandfocusgroupsconductedbythestudyteamrevealedthatthis issue isachallengeforRPLimplementation.

NursingThe Law 38/2014onNursing requiresD3 as theminimumqualification to qualify as a practicingnurse. As a consequence, nurses without a D3 qualification are considered unqualified and arerequired to be upgraded to D3. The government’s first priority is for nurses in public hospitals,which isestimatedat46,000nurses.Whenthecoverage isextendedtothoseworking inprivatehospitals, the number could easily exceed 100,000. Most of the 100,000 nurses have been inserviceforyearssoitisexpectedthatsomeoftheirworkexperiencecouldberecognizedthroughRPL.

45

Chapter5:RoadmapforIQFimplementation

Chapter5RoadmapforIQFimplementation

5.1 RationaleofIQFIQFwasdevelopedtorespondtheaforementionednationalneedandregionalandglobalinvolvement.Itisanintegralpartofthestrategytoimprovethequalityofnationalhumanresourcesbyactingas:

(i) anationalreferencetomatchandharmonizelearningoutcomesresultedfromformalandnon-formaleducation,oracquiredthroughjobexperiences;

(ii) as guidelines and reference for the development and improvement of the quality of nationalhighereducationandforworkers,industry,business,andpublicinstitutionstoplananddevelopcareerpaths;

(iii) asareferencefortheimprovementofthequalityofprivateandpublictraininginstitutions;aswellasfortheprofessionalassociationstodevelopprofessionalpathways;and

(iv) at the international level, the IQF serves as a device to translate internationalworkforce andstudentsqualificationstomeettheIndonesianqualificationsystem.

5.2 StructureoftheIQFIQF is a unified national qualifications framework that is intended to be utilized by all sectors inIndonesia.

The Presidential Decree 8/2012 defines the framework as'…a framework of competency qualificationlevelingwhichcorresponds,equalizesandincorporateseducationalfieldswithworktrainingfieldsandworkexperience inorder toprovidework competency recognitionaccording to thework structure invarioussectors’.

TheIQFconsistofninelevelsoflearningoutcomes.Itimpliesequality,thusactsasanationalreferenceto mutually recognize learning outcomes from any means of education. It is a device to translateoverseasqualificationsintotheIndonesianqualificationsystemandviceversa.

TheIQFleveldescriptorsarebasedonlearningoutcomesdefinedthroughacomprehensivemappingofthe current condition of Indonesian workforce and derived from two-way need of supply-push anddemands-pullapproach.EachdescriptionreflectsscientificandskillaptitudesaswellastheattitudestorespectdiversitiesasareflectionofPancasila,Constitution,nationalintegration,andBhinnekaTunggalIka.

TheIQFisintendedtobeunderpinnedbyrobustqualityassurancesystemtoprovidecredibilityforthequalificationsintheframeworkandusers’confidenceinqualificationsawarded.

5.3 ImplementationstrategyThekeyperformanceindicatorofasuccessfulIQFimplementationistherecognitionandacceptanceofIndonesian workforces’ qualifications by stakeholders around the world. Consequently, scope of IQFimplementation should not be limited to Indonesia, but should include other countries as well, asillustratedinfigure-9.

46


Figure-9:Implementationscopeandroadmap

At national evel,mutual recognition of qualifications among producers (higher education institutionsandtrainingcenters)aswellasemployers (governmentand industries)shouldbeengaged.GraduatesfromhighereducationinstitutionsandtrainingsshouldholdIQFqualificationsrecognizedbyeachotherreciprocally,bytheircounterpartinothercountries,aswellasbyglobalusers.QualificationsrequiredbythegovernmentandindustrialsectorsshouldbedescribedbyreferringtoIQFleveldescriptionsandberecognizedbytheiroverseascounterpartaswell.

In order to achieve mutual recognition, a robust quality assurance system should be imposed in allsectors.Thisinitiativeinduecoursewillimproveaccountabilityofqualifications’holdersateachsectorandleadtotheIQFacknowledgmentasameaningfulstandardsystemofqualifications.

At global scope, IQF qualifications should be benchmarked to regional qualifications such as AseanQualifications Reference Framework or European Qualifications Framework in addition to specificrelevant countries. This proposition will bring about recognition from international society towardsIndonesianworkforces’qualifications.

ThecomprehensiveroadmapofIQFimplementationisimpliedasfunctionsandtaskofIQB.ThissectionwillcoveronlytheIQFimplementationmapinhighereducationsector.

5.3.1 LegislativeBasisforImplementationofIQF

Inhighereducationsector,therearethreemajorimplicationsofIQFpolicy:

(a) Positioningandsanctioningalldegrees (qualifications)producedbyhighereducationtowards IQFlevels.Hence,accountabilityofprovidersandtheirqualityassurancesystemindeliveringdegrees(qualifications)shouldbevalidatedandimprovedaccordingly.

(b) Mutually recognized outcomes of various higher education types (academic, vocational,professional,specialist)andcomprehendthemultientryandmultiexitsystem.

(c) Cultivating and flourishing acknowledgement of various pathways (non formal and in formal) byhighereducationprovidersaspartoflifelonglearning.

EQF

HEGRADUATES TVETGRADUATESQUALIFICATIONS QUALIFICATIONS

IQF Mutu1a2l34 56789Recognition

INDUSTRY GOVERNMENTQUALIFICATIONS QUALIFICATIONS

AQFNZQF

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Toundertakethesepropositions,thePresidentialDecree8/2012onIQFwasfurtherelaboratedforthehighereducationsector.Article29oftheLaw12/2012onHigherEducationexplicitlystipulatesthattheNQF should be referred in developing qualification. This article is elaborated further in the followingregulations:

• MoEC Regulation 49/2014 on the National Standards on Higher Education, particularly thearticlethatregulatesminimumlearningoutcomes(currentlyintheprocesstoberevised).Thisregulation rule accountability of providers in delivering degrees (qualifications) in accordwiththeirIQFlevels.

• MoEC Regulation 81/2014 on Diplomas, Competency and Professional Certification in HigherEducation. This regulation supportsmutually recognize outcomes of various higher educationtypes(academic,vocational,professional,specialist)aswellasaccountabilityofproviderintheformofdiplomasupplementpublication.

• MoEC Regulation 73/2013 on the Implementation of IQF in Higher Education. This regulationfacilitateacknowledgementofvariouspathways(nonformalandinformal)byhighereducationprovidersaspartoflifelonglearningintheformofRecognitionofPriorLearning(RPL).

5.3.2 Implementationstages

TheimplementationstageregardingRPL(pointc)willbedeliberatedinChapter6,hencethefollowingimplementationstagesexplaintheaforementionedpointsaandb.

5.3.2.1 Promotingaccountabilityindeliveringdegreeprograms

UnderMoECRegulation49/2014ontheNationalStandardsonHigherEducation,thehighereducationministryhasundertakenapilotprogramtodevelopmorethan100degreeprogramsinordertoproducenationally-agreedlearningoutcomesofthequalifications.Oncethenationally-agreedlearningoutcomesin accordance with certain levels of IQF are established, they need to be incorporated into the IQFofficialpublicationforhighereducationandpublishedontheIQFhighereducationwebsite.

These fieldof study-specific learningoutcomeswillnotbestatic,unlikegenericnon-discipline-specificqualificationtypedescriptors,becausefieldofstudyrequirementschangewithadvancesinknowledgeand changes to skill demands. Because theywill have a limited shelf life, a process for their ongoingrenewalandsubsequentdisseminationtousersisrequired.

To ensure sustainability of these learning outcomes, consistency in their use by institutions, andacceptable by users, the development process including the involvement of employers and industrystakeholders, the ongoingmaintenance and renewal requirements, and their storage and availabilityrequirementsshouldbeformalizedfortransparencyandaccountability.ThiscouldbedealtwithbythedevelopmentofaMinistrypolicypriortoadoptionbytheIQB.

These nationally-agreed learning outcomes developed in accordance with the Ministerial Regulation49/2014alsofunctionasqualityassuranceinhighereducation.Thequalityassuranceagencies(BAN-PTandtheLAMsas theyareestablished)havetheauthority toaudit thehighereducation institutions inproducingthespecifiedlearningoutcomes.

5.3.2.2 Newqualificationtypesanddefinitions

Qualification types canbedevelopedby any sector, eachwithdefinitions that detail the knowledge,skills and competence, regardless of the sector in which they are offered. There is no limit to thenumberofqualificationtypesnorthenumberofqualificationtypesatalevel,althoughthemoretherearethelessunderstoodtheybecome.

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AsthequalificationtypesareownedbytheIQF, leadershipfromtheproposedIQBisrequired.Shouldanyofthequalificationtypesbesharedbytwoormoresectors,thegovernanceagencywouldbethecoordinationpointforagreement.ItiscriticalthatonlyqualificationtypesthathavebeendecreedanddefinedareacceptedaspartoftheIQF.AshighereducationisastakeholderofqualificationtypesintheIQF,whetherornottheyareofferedbythesector,theMoRTHEshouldcontributetothedevelopmentprocessforanynewqualificationtypesandtheirdefinitions.

5.3.2.3 Respectablequalityassurancesystem

ImplementationoftheIQFrequiresrobust,government-sponsoredqualityassurancearrangementsthatinclude fit for purpose standards and a respected external agency to approve and monitor studyprogramsand institutionalcapabilityandwhichapplytoall.Thearrangementsmustbeguidedbytheprinciples of transparency, accountability, fairness, objectivity, reliability, effectiveness (or fit forpurpose),efficiencyandaffordability.

Qualificationsthathavenotbeenqualityassuredbytheagreedqualityassurancearrangementsforthequalifications framework cannot be accepted as part of the IQF. The arrangements must have thesupport and confidence of national stakeholders and they must be trusted internationally so thatgraduates’qualificationsareacceptedglobally.Withoutthis,implementationofanationalqualificationsframeworkcannotcommence.

Thequalityassurancemustcoverthefollowing:

• theapprovalprocessesofqualificationsthemselves(usuallyreferredtoasaccreditation);• theapprovalofprovidersauthorizedtodeliverand/orassessthequalifications(commonly

referredtoasaccreditationorregistration).CurrentlymostofthequalityassurancearrangementsareinplaceinIndonesia,withsomeexceptions,howeverqualityassuranceagainsttherequirementsfortheIQFhavenotyetcommenced.

a. QualityAssuranceStandards

ThenewqualityassurancestandardsfortheIQFinhighereducation,Regulation49/2014,areasoundmixofrequirementsfortheapprovalofstudyprogramsandinstitutionalreview.Howevertheyneedtobestrengthenedtobuild into thestandards the relationshipbetweenthequalityassurancestandardsand the IQF so that once their use commences, it is mandatory for study programs to meet therequirements of the IQF. Without closing this loop, the quality assurance agency will not have theauthority to enforce the use of the IQF and hence the uptake of IQF-compliant study programs. Thestandards,notyetimplemented,arecurrentlybeingreviewedtomakeotherminoramendmentssothisrecommendedchangeneedstobemadeatthesametime.

Once the changes to the standards are settled, it is imperative that the standards and processes aredocumentedintoonecomprehensivedocumentinamannerthatisaccessibletoallusersandtheyaredisseminated widely to all stakeholders. There must be a version in English (the official language ofASEAN), in addition to Bahasa, so that they are accessible to both the ASEAN nations aswell as thebroader international community as a means of building international knowledge of and trust inIndonesianqualifications.AswellasthispublicationbeingavailableontheBAN-PTwebsite,itshouldbereferencedandlinkedontheIQFhighereducationwebsite.

Aperiodof stability for thequality standards is required to support the successful implementationoftheIQFinareasonabletimeframe.

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b. QualityAssuranceAgency

The quality assurance agencies need to ready itself to assess and approve study programs andinstitutionsagainstthestandards.ItneedstodeveloptimelinesfortheimplementationofIQF,sothatitcoulddevelopresources,processes,andassessors intonationallyandinternationallyrespectedqualityassurance standards.An immediateassessmentneeds tobemadeof theadequacyof its establishinglegislationandfundingtoensureitsongoingexistencewithoutundueinfluenceofchangingprioritiesoftheMinistryunderwhichitsits.Similarly,itneedstoreviewitsownprocessestoensurethatitthereisobvious objectivity and externality built into its evidence gathering requirements to counter anypotentialcriticismofitscurrentprocessofpeerreviewbyexistinguniversitystaff.

Qualityassuranceagenciesmustbesubjecttosomeformofexternalassessmenttodemonstratethatitmeetsuniversallyacceptedstandards15.ThiswouldideallyoccuroncetheagencyisreadytocommenceoperationundertheIQFrequirementssothatabaselineisestablishedagainstwhichimprovementsmaybemonitoredasthesystemimproves.Thiscouldbeundertakenatleastevery5yearsbutconsiderationshould be given to the second assessment occurring after 3 yearswith the intent of building trust inqualityassuranceasquicklyaspossible.

All institutions need to be subject to external assessment. For international credibility, autonomousuniversitiesmust replicate the quality assurance standards and processes accepted for the nation aspart of their internal quality assurance. Their internal arrangements should be subject to scrutiny bystakeholdersthrougharequirementtopublishtheirprocessesandreportsontheiroutcomesontheirwebsites.TheMoRTHEcouldprovideassistancetospeeduptheprocess.

c. QualityAssuranceinProfessionalStream

The creation of a second form of approval for study programs for the professional stream in highereducationwiththeestablishmentoftheLAMscreatesanaddedlevelofcomplexityinasystemtryingtoestablishitself.

Ashiftawayfromtheeducationalqualityassuranceofstudyprograms,particularlyintheearlyphaseofimplementationoftheIQF,carrieswithittheriskofpotentialvarianceinqualityacrossthequalificationtypesinhighereducationwiththeintroductionofadualandsplitsystemforqualityassurance.AttheveryleastthereneedstobearelationshipbetweenapprovalbytheLAMandapprovalbyBAN-PT.TheconfusionshouldberesolvedthroughtheIQBregulations.

IfaLAMtakesonthefunctionofapprovalofstudyprogramsfortheprofessions,itisaqualityassuranceagencyandneedstobesubjecttothesamecontrolsandaccountabilityastheprimequalityassuranceagency.Itmusthaveagreedstandardsandprocessesforapprovalandtheseneedstobedocumentedand published in Bahasa and English. Its assessors need to be trained and perform their functionsconsistent with the BAN-PT assessors. It needs to be subject to external assessment againstinternationally agreed standards for quality assurance agencies the same as BAN-PT, otherwiseinternationalcredibilitywillemergeasanissue.

A risk to the IQF is the branding of the qualifications awarded as a result of this quality assuranceprocess.AdecisionneedstobemadeaboutwhoisresponsibleforputtingthestudyprogramapprovedbytheLAMsontheIQFregisterandwhoisresponsibleforauthorizingtheinstitutiontousetheIQFlogoonthetestamursofcompletedstudyprogramsapprovedbytheLAMs.

15UseoftheINQAAHEprinciplesforqualityassuranceagenciesprovidean idealsetofstandardsandanassessmentteamofinternational quality assurance specialists. The IQB could acquire the assistance of external agencies, such as INQAAHE orAPQN,indevelopingstandardnormsandproceduresforBAN,aswellasaudititsoperations.


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5.3.2.4 Officialdocumentation

ItisimportanttobringtogetherallofficialdocumentsregardingIQFinthehighereducationsectorasonecomprehensivedocumentsystemandmakeiteasilyaccessibletoallstakeholders.

• TheIQFmustbeknownandtrustedbyall inthecommunityanditsusemustbeencouragedandthis can only occur if it is fully understood. Transparency and accessibility, both nationally andinternationally, is needed. In higher education, all elements of the qualifications framework andmost of the quality assurance requirements have been designed and decreed but access to thedetailremainsdifficult.TheIQFrequirements,currentlyinmultiplelegislativeinstruments,mustbebrought together in one document andmade accessible to all. Users should not have to searchmultipledocumentstofindinformation;notonlythisisadisincentiveforuse,itcreatesahighriskthatuserswillnotfindsomeoftherequirements.

• An immediate task is to document all components of the IQF for higher education into onecomprehensive written publication in a manner that is accessible to all users. This includes thestructureanddefinitionsofthequalificationsframeworklevelsandqualificationtypes,therulesforand protection of qualifications, the quality assurance arrangements including the standards,processes and agencies that are in place, and the relationship with other agencies such as theprofessionalstandards-settingagencies

• The IQF higher education publication needs to be published in Bahasa for national use and inEnglish for international use. An English language version is essential because it is the officiallanguageofASEANandIndonesiaisamemberoftheASEANEconomicCommunityandasignatorytotheASEANQualificationsReferenceFramework.

• Aglossaryof terminologyneeds tobe included in the IQFpublicationbecause in somecases theterminology used by Indonesia differs from that used internationally and that may lead toconfusion. In most cases, the terminology is defined in the decrees; where it differs frominternationally agreed or commonly used terminology, a reference to the international languageshouldbeincludedintheglossaryofterminology.

• Inthelongterm,maintenanceofthepublicationcouldbecometheresponsibilityoftheproposedIQB as a way of promoting cohesion and integrated of the IQF across each sector. HoweverbecauseimplementationoftheIQFinhighereducationappearstobemoreadvancedthanintheothersectors,thisshouldbetheresponsibilityoftheMinistryresponsibleforhighereducation intheshortandthisMinistrymusttakeontheimmediatefunctionofdevelopmentandmaintenance.

5.3.2.5 IQFHigherEducationWebsite

In parallel with the production of an IQF publication for higher education, an IQF higher educationwebsiteneedstobebuilttofacilitatereadyaccesstoinformationontheimplementationoftheIQFinhighereducation.ThewebsitewillprovidethebestrepositoryforalloftheIQFpublications.

5.3.2.6 IQFLogoandRegister

Onceimplementationcommences,theintegrityofthequalificationsframeworkneedstobeprotectedbyensuringthatqualificationsawardedundertheIQFarebrandedasIQFqualifications.

Thefollowingactionsarerequiredtoensureintegrity:

• First, the testamursawarded tograduatesofqualifications thatmeet the IQF requirementsmustincludeanIQFlogowhichbrandsthemasqualificationsapprovedwithintheIQF.AstheIQFlogo


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must apply to qualifications in all sectors, the development of the logo, rules for its use, andongoingmonitoringofitscorrectuseshouldbeafunctionoftheproposedIQFgovernanceagencyand recommendations about this are included in the section of the report about governance.However, its application in higher education must also be described in the IQF publication forhighereducationandexplainedontheIQFhighereducationwebsite.

• Second,studyprogramsandinstitutionsapprovedagainstthequalityassurancearrangementsforthe IQFneedtobe identifiedas IQF-compliantonthedatabaseofhighereducationqualificationsandinstitutions.ImmediateactionneedstobetakentoensurethatthisdatabasecanserveastheIQFregister.Intheshortterm,thiscanbeachievedbymodifyingtheexistingdatabasetoincludeanotationofthestudyprogramsandinstitutionsthatareapprovedundertheIQF.

Inaddition,adiplomasupplementcanbeusedtosupplementthebrandingofqualificationsissuedundertheIQF.Thisdocument,giventograduatesalongwiththeirtestamurs,needstoexplaintheIQF, thenatureofqualification typeawardedand thequalityassurancearrangementsapplied tothe study program and the institution. While it serves as an addition means of branding andexplainingtheIQF,itcannotincludethelogowhichmustbepreservedforthetestamuronly.

5.4EngagementstrategyAnengagementstrategyneedstobeinitiatedtoinformandencouragetheimplementationofIQF.AllstakeholdersnationallyneedtohaveenoughinformationaboutthebenefitandotherdetailsonIQFandhow to use it. This is required to encourage the uptake of IQF qualifications by employers seekingqualifiedemployees,aswellasstudentsandtheirparentsseekingqualificationsspecifiedordefinedbyemployers.Ultimately broader engagement activities for the IQF are one of IQF governance agency’sroles,once it isestablished.Howeverthisdoesnotnegatethe importanceoftheMinistryresponsibleforhighereducationtodisseminatetheIQFbenefitsnationallyandinternationallytoallstakeholders.

ProvidinginformationontheIQFinhighereducation,inadditiontoseminarsandworkshops,couldbethroughtheofficialhighereducationwebsiteandTV/newspapermedia.Socialmedia(e.g.FacebookandTwitter)areotheroptions.

Use of an official higher education website with easy links for public access and social media areengagement strategies suitable for Indonesia. Internet usage in 2010 reached 45 million users, andmobilephonepenetration in the sameyearofover211millionusers [Lim2011:4].Theseoptionsarecostefficientwithawidepotentialreach.

Some countries have spent considerably in launching their qualifications frameworks.Others use lessexpensive approaches. Scotland for exampleuses amore affordable strategywhichhasproved tobesuccessfulwhererecognitionoftheScottishqualificationsframeworkiswellknown.Publicationstargetdifferent groups including employers and students through information brochures which are readilyavailable on itswebsite (see for example the following brochure for students (http://scqf.org.uk/wp-content/uploads/2014/05/Achievement-Counts-FINAL-WEB-Feb-2015.pdf).

Consideration shouldalsobegiven todevelopingapublicationespecially forproviders toassist themwith internal professional development of their staff. This is particularly important for staff with theresponsibilityforimplementingtheIQFandtheprimarytargetgroupforthisistheuniversities’internalqualityunits.

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Chapter6:RoadmapforRPLdevelopment

Chapter6RoadmapforRPLdevelopment

6.1 RationaleforRPLinIndonesiaThe need to implement RPL in Indonesia is clearly stated in the Presidential Decree 8/2012 on IQF.Within theeducation sector (formerlyMoEC),RPL iselaborated inamoredetail fashion in theMoECdecree73/2013.Itdefines3(three)mainobjectives,whicharetorecognizelearningoutcomesof,

· individualsacquiredthroughnon-formalandinformaleducationorthroughpersonalexperienceundertheprincipleoflife-longlearning;

· graduatesfromeducationandtrainingprovidersmanagedbyministersoutsidethe(former)MOECasafoundationtograntaformaldegreecertificate;and

· experts(withinoroutsidetheMOECjurisdictions)whoarerecognizedtoholdqualificationlevelequaltomasterordoctoraldegreeasuniversitylectures.

Figure-10 illustratesageneralconceptofRPL inwhichall sectorsof interestareconsidered, includingthe relationship of RPL with the IQF, and expanded relationship with the international qualificationframework. It indicates thatRPL is intended to functionasa commonequality systemwithnecessaryadjustmentsforeachsectorofinterest.

Figure-9alsoshowsthatthemainreferenceforequatingqualificationwillbebaseduponthe learningoutcomesdescribed in thequalification systemof IQF. The leveling systemofqualificationwithin theIQFwill later bemutually agreedwith other countries throughMRA, consequently the results of RPLprogramimplementedelsewhere in Indonesiashouldmeetthequalityanddescriptionofqualificationlevelwith relatedcountries.Therefore, inorder toobtaina trustful implementationprogram, internalandexternalqualityassurancesystemwillplaytheimportantroleinapprovingeligibleRPLproviders.

Figure-10:GeneralconceptofRPLdevelopmentinIndonesia

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6.2 PurposesofRPLBy recognizingprevious learningexperiencesofadults,RPL seeks toextendparticipation ineducationandtrainingtomeettheneedsofindividuals,employersandarangeofnationaleconomic,educationaland social needs. Although it is theoretically possible for RPL to apply to young people under 16, inpractice RPL primarily caters to adults who have been out of formal education for some time, haveworking experience (paid or unpaid) and are now seeking to have their learning from life and workexperience recognized. In thisway, RPL is closely connectedwith lifelong learning and the continuedneedforaskilledandadaptableworkforce[SloweyandSchuetze2012].

RPLisnotasolutiontoincreasestudentenrolment,sincemanyotheroptionsaremuchlessexpensiveand easier to implement to achieve such purpose. In Indonesia, the potential benefits of RPL reflectthosethatemergedfromanOECD[2010]reviewofRPLpoliciesandpracticesin16membercountries,includingthefollowing.

Employability&adaptability:RPLboostsemployabilityandadaptabilitybyimprovingthetransparencyofworkers' competenciesandbyhelpingemployers tobettermatchemployees to tasks. In thisway,RPL aids the recruitment and promotion processes. It serves as a vehicle for the promotion of workbasedlearning(WBL)throughthe identificationandtargetingofnecessaryskillsandcompetenciesforemployeelearninganddevelopmentwherebycompetenciesindicateasatisfactorystateofknowledge,skillsandattitudesandtheabilitytoapplytheminappropriatesituations.

Upgradingqualificationsofpopulation:RPLsupports strategicefforts toupgradepopulationskills forsustainable economic growth by connecting knowledge and skills with labor market requirements.Withinanationalqualificationsframework,unemployedandlow-skilledindividualsareabletoupskillatthemost appropriate levelwhile the time required to attain regulatory qualifications is reduced. RPLfurthersupportsamovetowardscomplianceforundeclaredworkersastheskillstheyacquirethroughinformalorundeclaredworkmaybeformalized.

Equity and fairness: RPLpresents ameans to re-conceptualize ideas of social inclusion andequity as‘individualswhohavehad limitedaccess to,or lowachievement in, formaleducationand training,orwholearnedskillspredominantlyintheworkplaceorothersettingsoutsidetheformalsystem,areoftendisadvantagedinfurtherlearningandtraining,andinthelabormarket’[UNESCO2013:12].

Stimulusforinnovationineducationandtraining:RPLstimulatesinnovationintheeducationsectorbycallingforgreatertransparencyandflexibilityinlearningprovision.Traditionally,administrativesystemshaveaccommodatedcredittransferinrelationtosubjectsandmodulesratherthanlearningoutcomes.To facilitateRPL,credit recognitionand transfer,highereducationand trainingprovidersareurged tomake their provisions explicit in terms of learning outcomes and credit. Through the clarification oflearningoutcomesandcredit,RPLisrecognizedasameansforeducationalinstitutionstomoreclearlyaddressthemobilityandflexibilityneedsofworkerswithintheknowledgeeconomy.

Mobility&flexibility:Whenlinkedtoawell-developedandrobustnationalqualificationsframeworkaswellasadefinedsystemoflearningcredits,RPLenablesopportunitiesformobilityandtransferbetweeninstitutionsandcountries.Bysupportingflexibleentryandexistpointstoeducation,RPLhasbeen

Adaptingtoalifelonglearningperspectivesuggeststhat:

‘a freshelement intheeducationalproject is required.That is,onewhich isconcernedprimarilywiththekindsofdevelopmentthatisrequiredbeyondinitialeducationalprovisionsandneedstobe supported inwayswhichare commensuratewith individuals'needsacrossworking lives, thekindoflivestheyleadandthekindoflearningthattheyneedandthemostoptimalwaysinwhichthatlearningcanbesupported’[Halttunenetal.2014].

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shown toenhance the individual's learner'smotivationand self-esteemas they re-entereducationortrainingframeworks.

6.3 PrinciplesunderlyingRPLInternationallyRPLwasintroducedduetovariousreasons,amongotherseducationreforms,economicconcerns and/ormanpower enhancements. Consequently, the approaches of RPL arrangementsmayvary fromcountry to country, so, in the caseof Indonesia the social andeconomicenvironmentswillinfluence the operation and objectives of an RPL system. The underlying principles however arecommon to thoseunderpinning the IQFas awhole: transparency, accountability, fairness,objectivity,reliability,effectiveness(orfitforpurpose),efficiencyandaffordability(6.4.2.3above).

Inpracticalapplicationof thenext stageofdevelopmentofRPL in Indonesiaanumberof criteriaarerequiredtobeincludedinthestrategy,suchas

• ability to comprehend the complete regulation requirements related to RPL’s entry orassessmentprocedurestoplanprospectuscareerandqualificationdevelopmentprograminthefuture;

· proficiency to clearly and appropriately document relevant evidence of the acquired priorlearningorcompetencyintheformofprerequisitesinformation;and

· capacity to demonstrate the prior learning that is in-depth and goes beyond the averageknowledge and skills needed to accomplish an assessment task fromwhich qualification levelandvolumeoftheattainedlearningcanbefittinglyvalued.

Thereisnorestrictionontypeandpathwaysbywhichtheexperienceisgainedorachievedas longastheacquiredknowledgeandskill canvalidateagainst therelevantqualifications framework.ThemainprincipleofRPLfocusesontheoutcomesratherthanhow,whenorwherethelearningoccurred.RPListhereforeconcernedwithgivingvaluetoknowledgeandskillsindividualshavegained,whetheracquiredthroughformal,non-formalor informaleducation;careerachievements inworkplace;professionalorcompetencybasedtraining;individuallifeexperienceortalentendeavors.Sincetherecognitionprocessis basedon a qualifications framework, RPLwill therefore inspire formal education tomake essentialadjustments such as wider and more flexible entry access and to design exemption procedures formodulesorcourses.

RPLshouldfollowtheformaleducationprocesses,includinglegalcertificationandawarding,educationortrainingdevelopmentprograms,assessmentproceduresandqualityassurance.

Although ‘formal’, ‘non-formal’ and ‘informal’ are used as discrete terms, in practice these learningprocessesareofteninterrelatedandtheyhaveparticularmeaningsintheIndonesianeducationsystem.Thatis,insomeinstancesnon-formallearningmayleadtoqualifications;particularlyinthosecountriesmovingtowardsthecertificationofalllearning.Effortstomakenon-formalandinformallearningmorevisiblemayalsoleadtoaformofrecognitioncomparabletothatintheformalsystem.

Recognition or validation is usually defined as the process of granting official status to learningoutcomesand/orcompetences,whichcan leadtotheacknowledgementof theirvalue insociety.TheOECDmaintains the term ‘recognition’of informal andnon-formal learning to refer to theprocessofgathering and assessing evidence to establish whether learners have demonstrated the learningoutcomes specified for the standards and qualifications such as those registered in the nationalqualifications framework. Validation should be seen as an integral part of the national qualificationssystem [because] treating validation as something isolated from the rest of the certification systemcouldthreatenitsoverallcredibility[Cedefop2009:8).

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6.4 StakeholdersAnRPL-likeapproachhasactuallybeenpracticedinenterprisesandjobsectors inIndonesiathroughavarietyofmodestoassessemployees’performanceandcapabilityduringwhichrecruitmentorcareerlevelingprocessesarecarriedout.Similarly,otherstakeholderssuchasprofessionalassociationshavealsoemployedRPL-likeapproaches invaluingqualification improvementof theirmembersapplyingtohighermembershipstatus.ItmayindicatethatRPLmaybemucheasiertobeadoptedandestablishedinenterprisesandprofessionalassociationscomparedwiththeformaleducationsector.ApplicationofRPL in theeducationsectormayrequiremore in-depthstudyandcomprehensiveassessmentprior toconstructinganappropriateRPLprogram.

InrelationtotheIQF,itisessentialforaRPLprogramtoclearlydevelopandensureattainmentofRPLagainst the qualification levels and learning outcome of the IQF. NQFs are generally designed toaccommodatemulti-entry andmulti-exit approaches inwhicheachqualification level canbeattainedfromvariousendeavorsof learningandtraining.Consequently,RPLprogramsestablishedmustensurethesamepolicyframeworkastheIQF.Inaddition,theassessmentapproachshouldrecognizeandvalueanykindofachievementrelevanttotherequirementofaqualification.

TheimplementationofRPLinvolvesawiderangeofstakeholders,including:

· Highereducationinstitutions:Intheuniversitysetting,academicsareusuallyrequiredtobethefacilitatorsofthereflectiveprocessandtoconductRPLassessments.AsRPLassessmentsonaone to one basis are labor-intensive and require more staff and staff-time per learner thanmainstreamassessmentprocedures,facultymembersinvolvedinRPLneedsupport.

· Professional bodies and employee representatives:Professional bodies and tradeunions areimportantstakeholdersintermsofpolicyandpracticeasitisvitalthattheyhaveconfidenceinqualificationsandoutcomesachieved.WhereRPL isutilized in thecontextofapprenticeships,training schemes and professional qualifications, the participation of professional bodies isnecessarytoassistindefiningtheskillsandcompetenciesforuseinassessment.

· Employers: Much like professional bodies, the success of RPL requires that existing andprospectiveemployershave faith in theprocessandconfidence in the resultingqualifications.As noted above, employers have an incentive to participate in RPL as it supports efficientrecruitment and training processes. While the participating employers are often large-scale,small to medium enterprises could potentially group together to engage in RPL. From thelearner'sperspective,theawarenessofRPLamongemployersis importanttoassist learnersinprovidingdocumentaryevidenceoftheirpriorlearningandexperiences.

· Learners: The learner plays a central role in the RPL process as he/she finds and presentsrelevantevidenceofpriorlearningandseekstoprogressinworkoreducation.Outlinedbelowaregoodpracticemechanismsformentor/facilitatorstosupportthelearnerashe/sheproceedsthrough the RPL process. More broadly, it may be noted that learners benefit from beingsocialized into theprocess through interactionwithpersonnelandother learnersandthroughconstructivefeedback,whichallowsthemtoplanaheadandprogressconfidently.

· The policy community: Establishing a firm legislative basis for RPL engages structures andsystems that operate appropriate mechanisms for standards, transparency and consultation.This means that agencies and governing bodies have clearly defined roles, functions andprocesseswithintheoveralleducationsystem.

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6.5 IdentifyingpriorlearningskillsThetoolsusedforassessingnon-formalandinformallearningareoftenthesametoolsusedinassessingformallearning.However,formallearningtoolsmayneedtobeadaptedtotakeintoaccountdifferentcontexts of prior learning and the range and depth of learning that needs to be assessed. Cedefop's[2009]'EuropeanGuidelinesforValidatingNon-FormalandInformalLearning'recommendthefollowingcriteriatoevaluateassessmenttools:

· validity:thetoolmustmeasurewhatitisintendedtomeasure; · reliability:theextenttowhichidenticalresultswouldbeachievedeverytimeacandidateis

assessedunderthesameconditions; · fairness:theextenttowhichanassessmentdecisionisfreefrombias(contextdependency,

cultureandassessorbias); • cognitiverange:doesthetoolenableassessorstojudgethebreadthanddepthofthe

candidate’slearning;and · fitnessforpurposeoftheassessment:ensuringthepurposeoftheassessmenttoolmatchesthe

useforwhichitisintended[Cedefop2009:59].

Theassessmentofpriorlearningcantakemanyformsandassessmentforthepurposesofcertificationoften involves a combination of methods. As outlined in Figure-11, Van Rooy [2002:78] identifies acontinuumofmethods from thehighly individualizeddevelopmentof aportfolio tohighly formalizedassessmentviaexaminations.

Individualized

Portfolio Assessment Challenge Standardized Programand

Formalized

Development interviews tests examinations courseevaluations

Figure-11:Individualizedandformalizedassessmentmethods[VanRooy2002:78]

As the purposes of RPL can vary depending, for example on vocational and professional certificationrequirementsandlevelsofinstitutionalautonomy,thefollowingeightmethodsofassessmentidentifiedby Cedefop could be used in Indonesia depending on the precise purpose, sector, level etc. involved[Cedefop2009].

a) Tests & Examinations: Standardized testing is useful where there is a nationally uniformcurriculum, which supports the transfer of test results between institutions. As standardizedtesting does not facilitate recognition of cross-disciplinary competencies, this method is alsomostsuitablewherethereisaclearsubjectareaintowhichthelearnerseeksentry.Testsmaybecompletedorallyorinwrittenformandoftenemployamultiplechoiceortrue/falseformat.As testingmaybeconductedata relatively lowcostand isperceived tobe fair, it is awidelyemployedmethod.

An examination differs from a test in so far as it is widely applied and overseen by qualityassuranceprocesseswhichgoverntheadministrationoftheexamanditsassessment.Challengeexaminations are useful where individuals lack documented evidence of their learningexperience and have sufficient cultural capital and academic skills to complete formalexaminations. Unlike standardized tests, the content of examinations and the means ofevaluationmayvarybetweenorwithininstitutions.Wherethereisalargecohortinvolved,suchas is the case, for example, examinationmay be a cost effective and transparentmethod toassesspriorlearning.

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b) Declaration: To declare learning candidates presents an evidence-based statement, which is

writtenaccordingtoasetofcriteriadesignedforthepurposeofassessment.Thesestatementsmay demonstrate a candidate's skills in communication and critical reflection but are oftensupplementedwithadditionaltoolsforamoreobjectiveassessment.

c) Interviews: Assessment interviews are useful where individuals may lack the literacy skillsrequired for formalassessment.Although it requires intensive investment in termsof trainingassessorsand time resources, it ispotentiallya less intimidatingapproach for learners.This isparticularly relevant in light of an international review which found that learners frommarginalizedbackgroundsmaybealienatedbytheprocessofinstitutionalassessment[Carrigan&Downes2009].Interviewsareoftensupplementedwithadditionaltoolsforamorethoroughassessment.

d) Observation:Observationentailstheassessmentofacandidate'sbehavioranduseofskillsinaparticular setting. Itmay be conducted by a third partywith pre-defined assessment criteria.Whileobservationcanbecostlyandtime-consumingincertaincontexts,itisparticularlyusefulinaworkbasedenvironment.

e) Simulation:Simulationsupportstheassessmentofcomplexskillsasthecandidateperformsinasimulatedmodelofareallifesituation.Althoughsimulationisapopularmethod,itcanbecostlyandrequiredclearassessmentcriteria.Variationsonthismethodincludegrouprole-playingtosimulateascenarioandthedemonstrationofskillsthroughverbalreporting.

f) Portfolio:Portfoliodevelopmentisusefulwherecandidateshavesufficientabilitytodocumenttheir records of learning experiences. However, candidates may require initial assistance toreflectontheirlearningandtocompiletheportfolio.WithinEurope,NorwayandDenmarkhaveplacedparticularemphasisondevelopingassessmentbyportfolioforformativeobjectivessuchascreatingcareerdevelopmentstepsornewcareerswithinasectororanorganization.

g) Presentation: Presentations are suitable for candidates with strong analytical andcommunication skills. The candidate is required todelivera formalpresentation toapanelofexperts and, consequently, must be able to demonstrate the ability to organize andcommunicateclearly.

h) Debate: Candidates participate in debates to ‘confirm their capacity to sustain a consideredargumentanddemonstratedepthofadequateknowledgeofasubject’[Cedefop2009:60].Asaresult,debatespresentagoodopportunitytoevaluateacandidate'ssocialandcommunicationskills.

Theprocessof identifyinga learner'sexisting levelsof knowledgeand skills canprovidean importantfoundation for establishingoverall learningobjectives. This follows theprinciple that adult learning isbestservedwhen it isgoalorientated.However,bridgingthegapbetweenthetheoryandpracticeofadultlearningrequiresconsideredattentiontothelearner'ssocialcontextandtheir'readiness'tolearn.

As identifying learner skills can be a time-consuming process, it may be fruitful to conduct theseexercises with groups of learners. By taking the example of one activity or experience, amentor/facilitatorcanwork throughaseriesofquestions tohelp learnerswithinagroup identifyandreflectuponhowtheyhaveusedspecificskillsandwhattheyhavelearnedfromtheexperience.Figure-12showsasetofindicativequestionsforsuchanexercise.

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i)Figure-12:Indicativequestionsinidentifyingskills

UNESCO [2013] recommends the following four steps as a roadmap to good practice in summativeaccreditation[UNESCO2013:27]:

· Buildupontheexisting(national)procedureforqualityassuranceofformallearningoutcomes; · Professionalizethestaffassignedtoqualityassurancebyrecognizingandassessingthevalueof

sector-relatednon-formalandinformallearningoutcomes; · Strengthenexpertisebysettingup(orstrengthening)networkrelationswithrelevant

stakeholdersinthesector(employers,tradeunions,etc.);and · Focusonregionalpracticesinlearningandworking.

6.6 ActorsintheRPLprocessThesuccessandqualityofRPL isdependentuponthecapacityofadministrators,mentors/facilitators,assessorsandotherpractitionerstosetupandmaintaininclusiveprocesses.Tothisend,‘RPLprocessesshould include and clearly indicate academic and administrative responsibilities and accountabilities,and these should bewidely published bothwithin institutions and to potential learners’ [Sheridan&Lenihan2009:26].

ItisvitalthatRPLpersonnelhavetheappropriatequalifications,skillsandcompetencestoallowthemtomanageandconducttheassessmentandrecognition/validationprocesses.Forthisreason,theongoingandcontinuoustrainingofRPLpersonnelisrecommendedforthesharingofpractices,knowledgeandexperiences. An established system of training for RPL personnel facilitates the development ofnetworksformutuallearningatlocal,nationalandinternationallevels,whichfurtherscompetenceandthedevelopmentofgoodpractice[UNESCO2012].Tothisend,forexample,theIrishHigherEducationQuality Network (IHEQN)was formed in 2003 to provide information for, and a space for discussionamong, the various national stakeholders involved in the quality assurance of higher education andtraining in Ireland [seewww.iheqn.ie/). Consultations and FDGs indicated that stakeholders sawmuchvalueinthesetypesofnetworks.

ThekeyrolesintheRPLprocessareoftencarriedoutinaneducationalcontextbutcouldbeconductedinawork-basedenvironmentoracombinationofwork-basedandeducationalenvironments.KeyroleswiththeRPLprocessinclude:

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Counselors/Mentors: The counselor/mentor's role is to liaise with candidates throughout the RPLprocess.Thecounselor/mentorprovidesthecandidatewithinformation,adviceandguidancefromthebeginningoftheprocessthroughassessmentandfollowingtheassessmentdecision. Inparticular, thecounselor/mentor has an important role in preparing the candidate for assessment. The Europeanexperienceindicatesthattheroleofthecounselor/mentoriscrucialtothesuccessofRPLasitprovidesthecandidatewiththenecessarysupporttoproceedwithandcompletetheprocess.

Assessors: The RPL assessor evaluates the candidate’s evidence of prior learning according to therequiredstandards.Assuch,theassessoroccupiesthe instrumentalroleof identifyingthecandidate’sprior learning in relation to the wider system of practice [Harris 2000]. Consequently, assessors arerequiredtobe familiarwith theRPLprocessandmethodsofassessmentandtheymustbe trainedtoprovide an appropriate setting for assessment and appropriate evaluation. Regarding the latter, theEuropeanGuidelinesindicatethat‘theauthenticityoftheassessmentsituationislikelytobeimprovedwhensectoralexpertscandirecttheuseofanassessmentinstrumentorjudgetheoutcomesofitsuse’[Cedefop2009:68].

Thetrainingofassessorsmayalsoneedtotakeintoaccountthesocio-economicandculturalcontextsofthe country such as linguistic complexities, which may impede fair assessment. In higher education,academics are usually required to facilitate and conduct assessments. In this context, the role of theassessor has changed from being a 'gatekeeper' of further learning within a traditional admissionscontext toa supportiveenablerof further learningwithina learner- centeredapproach [SAQA2004].This entails that assessors are trained to be reflexively aware of the different types of knowledge acandidatemaypresent[Hendricks&Volbrecht2003].

Process managers: Processmanagers oversee the validation process including financialmanagementandthefunctionsofotherRPLpersonnel.

External observers/independent reviewers: The external observers provide quality assurance byreviewing the process. They may also provide feedback and guidance to counselors/mentors andassessors.

Interested stakeholders: As noted above, it is vital that stakeholders have confidence in the RPLprocess. To develop and maintain this confidence, stakeholders may be invited onto advisorycommitteesorconsultedregularlyforinput.

6.7 AssessmentandawardingmodelsIngeneral,assessmentandawardingsystemsmayvaryfromsectortosectororfromcountrytocountrydependingoncriteriaandobjectivesoftheRPLdesign.Nevertheless, thefollowingmodelsaremostlyimplemented.

Education WorkforceAssessment portfolio portfolio

knowledgeandskillsassessment jobcompetencyassessment verbalinterview verbalinterviewAward credittransfer jobplacement

courseexemption certificateofcompetence degreeaward certificateofprofessionalqualification

Table-16:Assessmentandawardingmodels

Figure-4inchapter-2showsthatcompetencyrecognitioncancomefromtwotracks:trainingprogramsandworkexperiences.TheschemetakesintoaccounttheIQFasanationalreferenceforqualification.Whilstinfigure-5inchapter-2illustratestheexistingimplementedproceduresintheeducationsector.


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Nonethelessamoreextensiveprocedureshouldbedesignedanddetailedinmanydifferentinstancesofeachsector.

6.8 ImplementationchallengesImplementationchallengesidentifiedinfieldworkreflectthosefoundinternationally,including:

· lack of enthusiasm from learners to apply for RPL based on the fact that learners prefer andvalue the learning process and accompanying social interactions is influential to thedevelopmentoftheirqualifications;

· RPL implementationhashada tendency tobebesetbyheavybureaucracy that left an imagethatpursuingRPLrequiresalotofeffortandlabor;

· inadequate supports for evidence gathering and lack of credit to quality assurance havesometimes led to onerous requirements in fulfilling the application for RPL that subsequentlydiscouragethecandidates;and

· confusing language and procedure to equate the prior learning components into thequalificationsframeworksandstandardizedunitsthatmakeRPLunpopularasanalternativetothelearningprogram.

Withintheeducationsectorforexample,anumberofproblemsneedtobeclearlyelaborated,suchas[Gibson&Whittaker2012]:

· policyandprocessthatrelatetoadmissions,teachingandlearningprocess,assessmentstrategyandqualityassurancemechanism;

· curriculumdesignthatexplicitlyaddressesflexiblemodesofentry,progressionanddelivery; · buildingstaffcapacityinconductingRPLprogramsandhandlingexistingworkload; · use of technology in enhancing RPL provision such as e-portfolio, development of blended

learningapproachorintegratedmodeloflearningandemployability;and · data base development for maintaining continuous development, analysis and evaluation as

wellastrackingsystem.

InternationalexperienceshowsthatevencountrieswithmatureNQFs face thechallenges listedhere.This ispartlybecause,ashighlightedearlier,RPLcanbeused foravarietyofpurposes.Whatever thepurpose, for credibilityand transparency,allpartiesmustbe confident in the rigorof theassessmentmethods.

A key principle therefore inmoving to the next stage of implementation of RPL in Indonesian highereducation is to ensure that RPL is fully integrated into themainstream quality assurance and qualitycontrolsystemsofthehighereducationinstitutions,accreditingagencyandotherrelevantbodies.

Chapter7:RoadmapforIQBestablishment

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Chapter7RoadmapforIQBestablishment

7.1 RationaleforIndonesianQualificationBoard(IQB)A national qualifications framework (NQF) is a set of nationally agreed standards, developed bycompetent authorities,which recognize learningoutcomes and competences for all formsof learning[UNESCO2012].WiththeintroductionoftheIndonesianQualificationFramework(IQF),16considerationneedstobegiventohowto:

• communicatetheframeworks(bothnationallyandinternationally);• coordinateandratifyfurthernationalIQFdeterminations;• manageandmaintainit,includingensuringprogressiveimplementationacrossthevarious

educationandtrainingsectors;17and,• linktoandsupportqualityassurancemechanisms.

TheestablishmentoftheIQBisparticularlyessentialfor:

• providingconsistentnationalIQFinterpretationsofqualifications,qualificationstypes,qualificationtypedescriptors;

• harmonizingtheexistingqualificationsystemsoperatedunderdifferentauspices,e.g.MoM,MoEC,MoRTHE,MoH18,professionalassociations,otherministries;

• takingtheleadingroleinpromotingandeducatingthepublic;• playingthekeyfocalpointfortheIQFindealingwithinternationalcounterparts;and• providingadditionalqualityassuranceoftheeducationandtrainingsystem.

7.2 BasicprinciplesGovernance can be defined as: ‘…the set of responsibilities and practices, policies and procedures,exercised by an agency’s executive, to provide strategic direction, ensure objectives are achieved,manage risks and use resources responsibly and with accountability’[Australia 2007]. In relation toqualifications frameworks, governancecan refer tohowanagencypromotes,managesandmaintainsthe framework, including ensuring progressive implementation across the various education andtraining sectors. It also refers to the legislative or regulatory basis of the agency and its roles andresponsibilities.

ThegovernanceoperationoftheIQBshouldmeetthefollowingrequirements:

• transparencyandaccountability;• integrity,includingresolutionofpotentialandactualconflictsofinterestwithselflessnessand

objectivityinthepublicinterest;• duediligence;• inclusive;and• economy,efficiencyandeffectiveness.

7.3 NationalcurrentcontextIndonesiaappearstohaveastrongsegmentation,especiallybetweentheskillsandtrainingsectorandthehighereducationsector,thoughvocationalprogramsareofferedinboththeeducationsectors

16PresidentialDecree8/2012ontheIndonesianQualificationFrameworks(KerangkaKualifikasiNasionalIndonesia)17Inclusiveofallpathwaysandalleducationandtrainingsectorsincludingskillssector18MoH=MinistryofHealth


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undertwoministries.TheresponsibilityforthesetwomainsectorslieswiththeMoM,MoEC,MoRTHE,aswellasother lineministries(whoprovideeducationandtraining),plusarangeofqualityassuranceplayers across various sectors with very little current documentation to explain how the strategiesinterconnectorindeedoverlap.

ThemainqualityassuranceagencyincludedinthehighereducationsectorisBAN-PT,whichiscurrentlyresponsibleforprogramandinstitutionalaccreditation,whilstBSNPisresponsibleforthedevelopmentofqualitystandardsforeducationproviders.Intheskillstrainingsector,MoMhastheresponsibilityforfacilitating the development of competency standards and qualifications in conjunction with lineministries.UnderMoM, the LA-LPK19is responsible for the approval of trainingproviders and trainingprograms. Inaddition,BNSPprovidesassessment servicesandcertification tocompleting students,aswell as existing workers, through the registration/licensing of assessment providers (i.e. professionalcertificationbodies).

The Indonesia qualifications system, being heavily tracked and with the limited coordination acrossministries, does not facilitate studentmobility between the academic sector and the vocational skillssector,eitherhorizontalorverticalpathways.

In the case of Indonesia, the IQF outlines existing structures and provides additional information tofacilitate qualifications transparency. The IQF is promulgated in Presidential Decree 8/2012.ThePresidential Decree stipulatesa hierarchy of 9 levels of learning outcomes aligned to 9 levels ofqualificationstoenableequivalencingofqualificationsandlearningoutcomesacrossformaleducation,non-formal,informal,orworkexperiences.ThePresidentialDecree8/2012ontheIQFdoesnotdescribequalifications types (either descriptors or volume measures). The Presidential Decree currently issupportedbyarangeofMinisterialregulationsfromtheMoM,MoEC,andMoRTHEthatappeartocoverthescopeofwhat ‘makesup’aqualifications framework. It is lessclear ifministerial regulations fromtheMoMcoverthesamescopeanddepthof information.Assuchthe IQF iscurrentlynotacohesiveand transparent national qualifications framework; this will be the biggest challenge for the IQB todevelop the Presidential Decree (Perpres) or Government Regulation (PP) into a fully integrated andcohesiveNQF.

7.4 ScopeoftheresponsibilitiesStrong governance arrangements, including a political mandate for the IQF Board, are critical to thesuccessfulimplementationoftheIQF.Inallknowninstancesofinternationalexamples,theresponsibleagency’s scope or focus is on the country’s qualifications system and the relationship with thequalifications framework. There is only one single agency; not to do so would provide for multipleagenciesandmultiplefocalpoints,whichispotentiallyconfusingtolocalandinternationalstakeholders.

The roles and responsibilities of the IQB should be clearly defined and distinct from the role of thevariousministriesandagenciesinIQFimplementation.TherolesandresponsibilitiesoftheIQBshouldinclude:

a) coordinationandmonitoringofIQFimplementationacrossthesectors;b) policydirectionoftheIQF;c) beingthesinglevoiceadvocatingandpromotingthebenefitsandroleoftheIQFatanational

levelandinternationallevel;d) liaisonwithrelevantinternationalagencies;

19LembagaAkreditasi–LembagaPelatihanKerja


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e) provisionofcrosssectoralobjectiveadviceontheeffectivenessofIndonesia’squalifications

system;andf) coordination and maintenance of agency quality standards, meta-evaluation of the quality

assuranceagencies.AkeyroleoftheIQBistoholdallministriesandagenciesaccountablefortheirperformance.TheIQBwillmaintainaregisterofrecognizedqualityassuranceagencies.

The IQF addresses all threemain sectors of education and training: schools, vocational skills training,andhighereducation,andassuchthat the IQBshouldrepresentall sectors, includingnon-formalandinformal learningoutsideestablished formalizededucationand training institutions.The IQBneeds tobesupportedbyastrongSecretariattoundertaketheoperationsandfunctionsoftheIQB.

7.4.1 MaintenanceandmonitoringofIQF

ThePresidentialDecree8/2012doesnot refer to theestablishmentof the IQB tomanageormonitortheimplementationoftheIQF.ReferenceisonlymadetoimplementationoftheIQFthroughministriesand other agencies. The international research has shown that there should be one single agencyappointedtheremitofmanagingandmonitoringanationalqualificationsframework.Withoutthisrolebeingundertakenbyoneentity in Indonesia, the successful and coordinated implementationand thepurportedbenefitsofaqualificationsframeworkisatrisk.

7.4.2 Policydirection

CurrentlytheonlyhighlevelpolicyontheIQFisthePresidentialDecree8/2012,allotherregulationsareat individualministry level and relate to the specificministry’s implementation of the IQF.Without asinglepointofpolicydevelopmentfortheIQF,theinterpretationofoutcomesandqualificationsacrossvariousministries and agencieswill vary. In all known international instances there is only onepolicy‘maker’ for the national qualifications framework although decisions and policy development areundertakeninconsultationwithkeystakeholders.

A national qualifications framework is generally made up of key features, such as level descriptors;qualificationstypes,e.g.bachelordegree;qualificationtypedescriptors;andcreditorvolumemeasures.Frameworksalso include supportingpolicies related to implementationof the framework,e.g.agreeddefinitions;certification;rulesfordesignandconstructionofqualifications;(includingtheuseofaNQFlogo20); pathways opportunities (such as recognition of prior learning); and international referencingprocesses.

Within Indonesia, definitions related to Indonesian qualification systems, if evident, are in specificregulations related to relevant ministries and do not necessarily have national scope or nationalcommitmenttoacommonunderstanding.Theonlyhighlevelpolicydocumentatnationallevelisthatof the Presidential Decree 8/2012.This Decree established the IQF and includes a limited number ofdefinitionsincludingthoserelatedto:

• nationalqualificationsframework;• learningoutcomes;• equalization;• qualification;• workexperience;• workcompetencycertification;• workcompetencycertificate;and

20AnIQFlogocouldbeutilisedifandwhenqualificationsandqualityassurancearrangementsmeettherequirementsoftheIQB’spolicies.


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• profession.

It is imperative to come to an agreement (or a common understanding) on terminology across theeducation and training sectors for further discussion and implementation of the qualificationsframework in Indonesia. It is proposed that the IQB could take a prominent role in consulting withrelevantministriesandprovidingpublicdocumentationofagreedterms.

In Indonesia, the Presidential Decree 8/2012outlines the level descriptors but does not provide anyotheradvice in relation toqualifications.A reviewof regulations from theMoEC indicates that in theother component parts of a framework are mostly included for higher education. Whether similardocuments are developed by the ministry responsible for manpower is less clear. To promotetransparency of the IQF and to avoid a mix of qualification types and descriptors, definitions andapplication of certification, the IQB should be responsible for developing overarching national policydirectlyrelatedtotheIQF,includingnationalpolicyon:

• qualificationsincludingcomponentpartse.g.,qualificationtypes,qualificationtypesdescriptorsincludingthevolume;

• recognitionofpriorlearning;• certification,includingnamingconventionsanduseoftheIQFlogo;21• internationalreferencingactivities;and• educationandtrainingdefinitions.

The relevant regulations documented by MoEC could be ’co-opted’ as IQB level documents onagreementfromMoMandotherministries,anditneedstobepublishedasonedocument.Relevantlineministriescouldstilldevelopadditionalspecificrequirementsaslongastheyarenotconflictingwiththenationalpolicy.

7.4.3 Coordination

ThePresidentialDecree8/2012 indicatesthat lineministriesandrelevantagenciescan implementtheIQF as they see fit. Theminister in chargeof education affairs andminister handling labor issues areassignedtodevelopany‘furtherstipulations’.However,theDecreedoesnot:

• makeitclearifanystipulationsaretobejointorindividual,orwhetherbothministriescanissuevaryingstipulationsonthesameissue;and

• indicateifotherlineministriesoragenciesneedtofollowthesestipulations.

ThereisnooverarchingbodythatmonitorsandprovidesobjectiveinformationtothePresidentofhowtheIQFisbeingimplementedacrossalleducation,skills,andtrainingsectorsandwhethertheaimsofthe IQF will or are being met. There are similar international models of peak agencies being acoordinating body, e.g. South Africa where the South African Qualifications Authority is required todevelopasystemofcollaborationtoguidethemutualrelationsoftheAuthorityandthethreeQualityCouncils.

ThereforetheIQBcouldtakeacoordinationroleby:

• developingasystemofcollaborationacrossalleducationandtrainingsectorsandqualityagenciesministriesandagencies;

• facilitatingmeetingsandbuildingrelationshipsbetweenthethreekeyministriesandwithotherministriesandagencies;

21Limitingapplicationtoqualityassuredprogramsandproviders(recognisedbyanaccreditingagency);onlyusedoncertificates/awards,excludingdiplomasupplements,statementofresults,andmarketingmaterialsetc.


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• facilitatingdevelopmentofhighlevelIQFdocumentsthatareimplementedbyallministriesand

agencies;• informingministriesandagenciesofimplementationtargets;andprogress;and• requiringdatatobesentfromeachoftherelevantministriesandagenciestoanalyzeandgaina

betterpictureofimplementationoftheIQFinalleducationandtrainingsectors.7.4.4 Advocatingandpromoting

Researchacrossthesixcountriesindicatesthatoneofthekeyrolesandresponsibilitiesoftheagencyistodisseminateandpromote theNQF. For anNQF tobe successful inmeeting its country’s goals andambitions,aNQFneedstobewellunderstoodbyallstakeholdersincluding:

• employerandemployergroups;• parents,potentialstudents,studentsandgraduates;• internationalagenciesinvolvedincrossbordereducationprovisionandstudentmobility;• internationalagenciesresponsibleformanpowermobility;and• professionalassociationsandlicensingbodies.

The IQBcouldprovidegeneralandhigh level informationregardingthe IQFand linkwithministries inpromoting the IQF in their circle of remit. As the focal point, the IQB should be able to provide thenecessaryinformationregardingtheIQFanditslinkwiththeinternationalstandards.Thisfunctioncouldbefacilitatedbyawebsitethat:

• includesIQFlevelinformationandpolicies;• linkstorecognisedpeakqualityassuranceagencies;and• linkstoministrywebsitesdedicatedtotheirimplementationoftheIQF.

The IQB also has a key role in linking other non-qualification recognition strategies (e.g. licensing,professional associationmembership) to enhance the linkages between the IQF and the system (butseparate in terms of certification) to these other outcomes.Without a centralised single agency, theinformationandpromotionoftheIQFcouldresultinconflictinginformation.

7.4.5 Liaisonandfocalpoint

Promotingandbeinga focalpoint for international relationships isacknowledgedasakey functionofthe singleNQFagency. Indonesia, asoneof the foundationASEANmember states, is involvedwithanumberofinternationalactivitiesthatareofparticularrelevancetotheIQB:

• The UNESCO Regional Convention on the Recognition of Studies, Diplomas and Degrees inHigher Education in Asia and the Pacific was established in 1983, to which Indonesia was asignatory. The new convention, the Asia-Pacific Regional Convention on the Recognition ofQualificationsinHigherEducation[2011],aimsto‘ensurethatstudies,diplomas,anddegreesinhigher education are recognized as widely as possible, considering the great diversity ofeducational systems in the Asia-Pacific region and the richness of its cultural, social, political,religious, and economic backgrounds’ [UNESCO 2012].The Convention focuses on establishingbasic principles for the provision of information and the implementation of the convention.ArticleIX.3.1indicatesthat‘anetworkofnationalinformationcentersonacademicmobilityandrecognitionshallbeestablishedandshallupholdandassistthepracticalimplementationofthisConventionbythecompetentrecognitionauthorities’[UNESCO2012:10].

• ThebasisfortheASEANQualificationsReferenceFramework(AQRF)isderivedfromtheASEANChartersignedbythetenASEANleadersinSingaporeon20November2007,where aspirations


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to become a single entity – an ASEAN Community – were reinforced. The AQRF has beenapproved and will support other multilateral and bilateral arrangements within the communityincludingmutualrecognitionagreements[AQRF2014:1].Theproposedgovernancearrangementsof the AQRF indicate that therewill be a regional committeewhichwill liaisewith one focalpointineachASEANcountry.Thenationalfocalpointisexpectedtorepresentalleducationandtraining sectors and promote theAQRF andNQF linkages. In addition, there is to be one keyfocal point to coordinate the in country activities, including the referencing activity (whichincludesestablishinganationalreferencingpanel).

Providing support in negotiating mutual recognition agreements, participating in other internationalstrategies, andbeinga focalpoint for international collaborationandalignmentactivities shouldbeakey responsibility of the IQB.One single focal point promotes coordination of these strategies at thehighestlevel,andisanexpectationatleastbytheAQRF.

7.4.6 Evaluation

In any qualifications system there are competing demands and allegiances. Ministries implementingqualityassurancearrangementsandpromotingtheirsectorsystemaresometimesreluctanttoidentifyandreportinefficiencies,duplicationandissuesofimplementation.Somecountrieshaveestablishedanagencytoadviseseniorministersonnationalissuesorconcernsregardingthecountry’seducationandtrainingsystem,i.e.acrossallsectors.InIndonesiatheeducationandtrainingsystemisdisjointed,therearelimitedpathways(verticallyandespeciallyhorizontally),recognitionofpriorlearningislimited,andtherearealargenumberofqualityassuranceagencies.

If the IQB is to take on this role, it will need to be able request data, reports and information fromrelevantministries,peakqualityassuranceagenciesandbodiestobeabletopiecetogetherandprovidecross-sectoral, objective advice as to future directions and strategies to improve the education andtrainingsystemofIndonesia.

ItisproposedthattheIQBcouldprovidethisadvicetoensurethatissuesareraisedatthehighestlevelregardingthequalificationssystemandtheNQFandwhethertheyaremeetingIndonesia’saspirationsandneeds.


Ofthesixcountriesreviewed,threeagenciesalsohadqualityassuranceroles,especiallyofqualificationsand of institutions. Given the varied number of quality assurance agencies across all education andtraining sector in Indonesia, it isnot recommended for the IQB to takeonaqualityassurance roleofachievementstandardsandofinstitutionalprovision.However,confidenceinthecertificationprocessisacriticalaspectofbuildingconfidenceinIQFqualifications.InthisrespecttheIQBcouldtakearoleinassuringqualitybyholdingthequalityassuranceagenciesaccountablefortheirownperformanceandthatofanyoftheirsubsidiaryqualityassuranceagencies’orbodies‘performance.

AregulatoryapproachfortheIQBwouldmeanthatitcould:

• approveandmonitorqualityassuranceministriesandagencies,whichwouldmeanauditingtheagenciestoensuretheymeetdocumentedcriteriaorstandards;

• havethepowertorefusemembershipand/orsanctionqualityassuranceagencies;• maintainaregisterofqualityassuranceministriesandagencies,thatincludesanythathave

beensanctioned,thatcouldbepubliclyviewed;and• createanotherlayerofregulationthatmakesanalreadycomplexsystemmorecomplex.


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However,aregulatoryapproach isonlyonewayfor instillingconfidence in IQFqualifications.The IQBcould take an accountability approach by monitoring and ensuring that the peak quality assuranceministries andagenciesmeet agreedquality standards and complywith keyperformance targets andreporting requirements. Quality assurance agencies meeting quality standards is a model usedinternationallyincountryandacrosscountries.InthisqualityassuranceapproachtheIQBwould:

• developqualitystandardsforqualityassuranceagencies;22• requireannualreporting(oradditionalreportingifrequested)forthepurposeofmonitoring

andmeta-evaluationorreview;• maintainaregisterofqualityassuredagencies;and• reporttotheOfficeofthePresident(orasdefinedinthedecree)onagencycompliancetothe

requirements.

Itisrecommendedthattheaccountabilityapproachisadoptedinpreferencetoaregulatoryapproach,whichwilladdress:

• governancearrangementsandaccountabilityrequirements;• continuousimprovementapproachtoqualityrequirements;• periodicexternalauditrequirementagainstthequalitystandards;and• eligibilityformembershiptointernationalagencies,e.g.INQAAHE23.

Any quality standards should reflect the benchmarking quality standards referenced in the ASEANQualificationsReferenceFramework,giventhatanyreferencingprocessoftheIQFtotheAQRFrequiresa benchmarking exercise of a country’s quality assurance processes of its qualifications system.CurrentlytherearethreequalityassuranceframeworkscitedintheAQRFtowhichmemberstatesaretobenchmarkthequalityassuranceoftheirqualificationssysteminthereferencingprocess.

Unsatisfactoryperformanceofpeakquality assuranceagencies couldbeaddressed through the IQB’sreporting requirements.Regardlessofwhethera regulatoryoraccountabilityapproach isapplied, thescopeoftheIQB’squalityassuranceactivitiescouldbe:

• limitedtopeakqualityassuranceministriesandagencies;24or• appliedtoallqualityassuranceministriesandagencies.

TheIQBcouldtake:

• Ablendedapproachrequiringallagenciestocomplywithgeneralreportingrequirementsandalsobesubjecttoqualityaudits;or

Another alternative is a staged approach,which ismoving from a regulatory approach for all qualityassuranceministries or agencies to overtime progress to an accountability approach limited to peakministriesoragencies.

22The quality standards would specify the requirement for peak quality assurance agencies to be subject to externalinternationalqualityassessmentatleasteveryfiveyears.Thequalitystandardswouldalsoincludearequirementforthepeakagenciestoqualityassureanyagencies/bodiesitdelegatesorlicencestheresponsibilityofqualityassuranceofqualifications,providersand/orprovisionofeducation,trainingandassessmentservices.23INQAAHE=InternationalNetworkonQualityAssuranceAgencyinHigherEducation24Peak agencies are those at the top tier i.e. those that either take full responsibility for quality assurance (e.g. BAN-PT) ordelegateorlicenseotherstoactontheirbehalf(e.g.BNSPwhichlicensesProfessionalCertificationBodies).


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7.5 RecommendedmembershipMembership of the IQB is critical to demonstrating at thehighest level the importanceof a cohesivequalificationssystemtomeettheneedsandaspirationsofIndonesia.Howthevariousplayerswithinaqualifications systemhave ‘a voice’ in themanagement andmaintenance of theNQF is important inensuringthatallsectorshaveasenseofownershipoftheframework.Aspreviouslymentioned,acrosscountries,membershipofgoverningentitiesisgenerallyeither:

• representativeoftheeducationandtrainingsectorsandstakeholdersofthequalificationssystem,or

• expertmembershipwithexpertiseintheareaofqualificationsframeworksorqualityassurance.

Thesetwoapproachesdonotexcludeexamplesthatincludeanotionofbothoptions.

Young[2005]notesthatextendingthemembershipofaNQFagency‘canconsiderablyextendtherangeof stakeholders involved’ and he states ‘the benefits of this extension are the scope it provides fordemocratizingdecisionmakingaboutqualifications’(2005:24).However,Youngemphasizestheneedtobalance‘expertsindifferentoccupationalfieldstostakeholderssuchasusers,communityorganizationsandtradeunions’[2005:25].Henotesthatanimbalancecouldresultin‘adangerthatspecialinterestswill dominate, and conflicts…are introduced’ [2005:25].An interesting point made by Castejon,Chakroun,Coles,Deij&McBride[2011]isthatcreatinganewlawcanchangethebalanceof‘influenceandresponsibilityofthevariousbodiesthatworkinthequalificationssystem’[2011:41].Anewlawcanalso‘influencethegovernanceofqualificationssystemsthroughtheprocessofinvolvingstakeholdersintheconsultationprocess’[2011:42].

ThefollowingmembershipoftheBoardisrecommended.

Stakeholder Member ReasoningMoM 1,ex-officio

echelon-1officerArticle9,Decree8/2012,MoM

MoEC 1,ex-officioechelon-1officer

Article9,Decree8/2012

MoRTHE 1,ex-officioechelon-1officer

Article9,Decree8/2012

Coordinatingministries 2,ex-officioechelon-1officer

Decree8/2012referstootherministriesthatareinvolvedinimplementationintheirsector.HowevernotallotherrelevantlineministriescanberepresentedduetomanageabilityoftheBoard’snumber.

Qualityassuranceagencies,e.g.BAN-PT

1 Selectedtorepresentthebroadrangeofqualityassuranceagenciesinthetraining,assessmentandcertificationprocess.

Industry 1 Peakbodyrepresentingindustry.Thereareatleast2(i.e.KADIN,APINDO)andoneistobenominated.

Professionalassociations

1 Tobeselectedfromapeakbodyofprofessionalassociations.

EducationandTrainingProviderassociation

1 Peakbodyrepresentingacohortofeducationandtrainingproviderassociations.

Manpowerunion 1 Peakbodyrepresentingakeyunion,e.g.teachers’union,butitisuptothepeakmanpoweruniontodecidewhoisthemostappropriateunion.

Civilsocietyorcommunity

1 Membershipsoughtfromdisadvantagedgroups/agenciesandcommunitygroups/agencies

Additional 2 Withexpertiseintheareaofqualityassuranceorqualificationsframeworks,nationallyorinternationally

Chair 1 Independentwithexpertiseinthearea,nominatedoutsidethemembership

Table-13:DetailsofIQBmembership


69

Therefore careful consideration needs to be given to themembership of the IQB to ensure that thebalanceofpowerisnotundulyinfluencedandthatthereissufficientrepresentationofkeystakeholdergroups. The Presidential Decree 8/2012, Article 9 provides some guidance as to who are the keystakeholdersintheimplementationoftheIQF;whichisthe‘ministerhandlinglaborissuesandminsterinchargeofeducationaffairs’[2012:5-6].

Thetotalproposedmembership is13plusan independentChair.Thesizeof the IQB isdependentonthe level of representation and expertise needed. To further promote a balanced membership,considerationneedstobegiventonotonlythebalanceofrepresentativesontheBoardbutalsooftherelativepositionsofthosenomineesontheBoard.

7.6 Secretariat:asupportingorganizationIt isessentialthattheIQBtobesupportedbyastrongSecretariat,thoughnotnecessarilystaffedbyalarge number of personnel. The staff quality and competencies aremore important than quantity. Inaddition to the necessary administrative work to support the Board, the Secretariat should besufficiently equipped tomaintain a databaseof all information concerningquality assurance agenciesoperatinginIndonesia.

DependingonthequalityassuranceapproachandthescopeoftheremitoftheagencytheSecretariatwillneed tobesupportedbyadditional staff.The tablebelowoutlines the twoapproaches toqualityassuranceandtheimpactonstaffingrequirements.

Approach Scopepeakagenciesorallagencies

Accountability Periodicreporting

Metaevaluations

Externalinternationalevaluationevery5years

Regulatory Asaboveplusannualmonitoringaudit

approach

Staffingneeds

Tocarryoutmeta-evaluationstheIQBcoulddrawfromexpertsfromtherelevantparties(e.g.employers,professionalassociations,industries,educationproviders,skillsandtrainingproviders,civilsociety)andindependentinternationalexperts.

Tomaintainindependence,staffforfiveyearinternationalevaluationscouldbeinternationalexpertscommissionedbytheIQB,includingthosedrawnfromwithininternationalqualityagenciesorwithextensivequalityassuranceexperience.Inadditiontotheabove,foranmonitoringauditapproach,theIQBcoulddrawassessorsfromtherelevantparties,i.e.professionalassociations,industries,educationproviders,skillsandtrainingproviders,civilsociety)andindependentexperts.

Sincetheseassessorswouldbehiredonassignmentbasis,adatabaseofapoolofqualifiedassessorsneedstobeproperlymaintainedbytheSecretariat.

Toinstilltrustintheprocessandoutcomes,itisdesirablethatassessorsareindependentandthatthereisnoconflictofinterests.Howindependenceisachievedifassessorsaredrawnfromtheorganisationsnotedabovewouldneedtobeexplored.25

Table-14:Qualityassuranceapproach

.

25Notethatitiscommonforagenciestoutilisecontractassessorswithexperienceinthesectorbutnotcurrentlypracticingwithinthesector,e.g.ASQAinAustralia.


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7.7 PossiblelegalstatusTherearearangeofoptionsastowheretheBoardwillbebased,howevernotallaresuitableforthelongtermsustainabilityofthe IQFandtheBoard. Inaddition, it iscriticalthatthe legislativebasishasprecedenceoverregulationsrelatedtoministries.

Given that Presidential Decree 8/2012 specifically refers to the ministries responsible for educationaffairsandforlaborissues,oneoftheseministriescouldberesponsiblefortheBoard.However,theIQBshould not be sectorally based26as research has shown that in order to be successful, qualification-systemreformsrequirethatallstakeholdersaremobilizedandinvolved,andthattheyareawareoftheobjectives and they take ownership of the necessary changes [UNESCO2015]. If the IQB is sectorallybasedwithinaministryorexclusivetoaministry,thenothereducationandtrainingsubsectorswillnotbefullyengagednormobilized.

Ministry Legalentity OfficeofthePresident/StateSecretariat

Benefit

Relevanttotheneedsofprovidersandemployers/

users

Independentandnoteasilyaffectedbyanygovernmentintervention

Ensurepolicycoordinationandsynchronizationacrosssectors

Fundingisassuredbygovernmentbudget

Fundingcouldbeacquiredfromgovernment,thoughcouldstillgeneraterevenuethrough

"feeforservices"

Fundingisassuredbygovernmentbudget

Risk

Tendtobesegmented Couldbedifficulttoharmonizeitspolicywith

governmentpolicy

Overcentralizationoftaskscurrentlycarriedoutbydifferent

agencies EasilyaffectedbyMinisterial

sectoralpoliciesServicescouldbecomeunaffordabledueto

hightariffcharged

Unnecessarygovernmentinterventioncouldaffect

independence Governmentintervention

couldreduceindependence

Table-15:PossiblelegalstatusofIQB

Theinternationalexperiencesindicatethatthemajorityofresponsibleagenciesarequasi-autonomousnon-governmentorganizations; responsible to thegovernment. Sucha structuremayprovide the IQBwitha levelof long termstability.Asa separateentity, the IQBcan thenmeet someof its proposedroles,e.g.cross-sectoralandobjectiveadvice,withoutbeingsubjecttothevagariesofpoliticalchangesandpolicywithinministries.

Consideringthatarelevantministry isnotthebestoptionforplacementoftheIQB;anotheroptionisthattheIQBreportsdirectlytotheOfficeofthePresidentortheStateSecretariat.ThiswouldprovidetheIQBwithalevelofindependencefromanyoneministry.

26Withinaministrydedicatedtoasubsectoroftheeducationandtrainingsystem.

Chapter8:Recommendations

71

Chapter8 Recommendations

ThenatureofIQFconcernswithintereststhatspanovermanysectors,ministries,institutions,andmanydifferentstakeholders.Althoughtheoriginal termsofreferenceof thisstudy limit thescopetohighereducation, in practice it is not possible towrite recommendationswith such limitation. Although themajorstakeholdersmightbeMoM,MoRTHE,andMoMasproviders,theimplementationofIQFcoversamuchbroaderscopeandinvolvesamuchlargerpopulationofstakeholders,particularlytheusersandemployers.

Asdescribedinchapter4,thelevelofunderstandingofIQFvariesbetweensectors.Somesectorsmightbemorereadytoimplementit,butothersmightstillneedtoimprovetheirunderstandingtobeabletoimplementit.Thereforetherecommendationspresentedinthischaptertakesintoaccountthesector’ssensitivity, and further deliberation might still be needed for some sectors. In this chapterrecommendations are presented based on concerned parties to make it easier to be referred indevelopingpolicies.

8.1 Government

8.1.1 EstablishmentandgovernanceofIQB

Atthisstage,thestudyteamconcludesthatthereisanurgentneedforthegovernmenttoestablishanationalcrosssectoralagency,possiblytobecalledtheIndonesianQualificationBoard(IQB)orBadanKualifikasi Indonesia,with a mandate to coordinate all activities related to the implementation andongoingmaintenanceoftheIQF.Inordertominimizeresistance,itisimportanttomakeclearthatthisagency does not take over activities which are the currently mandated responsibility of othergovernment units. Its main responsibility is to coordinate implementation activities, develop andmaintain quality assurance standards for quality assurance agencies, meta-evaluate the qualityassuranceagencies,liaisewithsimilarinternationalagencies,andpromotetheIQFtothestakeholders.In carrying out its responsibilities, this agency should be positioned above all ministries and othergovernment agencies. It is strongly recommended that there is one single agency to maintain andmonitortheIQF,anditsscopeofresponsibilitiesisacrossalleducationandtrainingsectors.TheIQBwillalsobecomeIndonesia’sliaisonagencyindealingwithrelevantinternationalorganizations.

The study team recommend that the IQB takes responsibility for all national cross sectoral policydocumentation related to the IQF, including identifying qualifications (e.g. qualification types,qualification type descriptors, volume measures); recognition of prior learning; certificationspecifications including naming conventions and design and use of the IQF logo; internationalreferencingactivities;andnationaleducationandtrainingdefinitions.Thesenationalpolicydocumentsaretobeagreedtobyalleducationandtrainingsectorsandkeystakeholders,andaccessibleinBahasaandEnglish.ThisincludestheestablishmentofanIQF/IQBwebsiteforallcrosssectoralinformationandwithlinkstorelevantministriesandqualityassuranceagencywebsites.

Thestudyteamis intheopinionthatministriesarenotthebestoptionforplacementoftheIQB,andrecommends that the IQB reportsdirectly to theOfficeof thePresidentor theStateSecretariat. Thiswould provide the IQBwith a level of independence fromany oneministry, possess the authority tocoordinate the IQF activities of ministries as well other government agencies, and ensure nationalsynergy in implementing the IQF. It is the responsibility of the Office of the President or the StateSecretariattoadvancetheestablishmentoftheIQB.Afteritsestablishment,theOfficeofthe


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Presidentor the State Secretariat will seek nominations and make the final decision to appoint itsmembers.

WerecommendthattheIQBbesupportedbyastrongSecretariat,whichisstaffedwithasmallnumberofqualifiedandcompetentstaff.Dependingonthequalityassuranceapproachtakenandthescopeoftheremitof the IQBfor thequalityassuranceagencies,27theSecretariatwillneedtobesupportedbyadditionalstaffthroughshorttermcontractassignment.

8.1.2 Preparationforfullimplementation

8.1.2.1OfficialIQFdocumentation

Forthehighereducationsector,theimmediatetaskistodocumentallcomponentsoftheIQFforhighereducation intoonecomprehensivewrittenpublication inamanner that isaccessible toallusers.Thisincludesthestructureanddefinitionsofthequalificationsframeworklevelsandqualificationtypes;therules for theprotectionofqualifications; thequality assurancearrangements including the standards,processes and agencies that are in place; and the relationship with other agencies such as theprofessionalstandards-settingagencies.TheIQFhighereducationpublicationneedstobepublishedinBahasaaswellasEnglishasaconsequenceofAECeconomicintegration.Aglossaryofterminologyforthe higher education sector needs to be included in the IQF publication to avoid confusion due todifferentterminologyused.

The task of maintaining the documentation will be transferred to the IQB to promote cohesion andintegratedoftheIQFacrosseacheducationandtrainingsector.ItalsoprovidesthebestrepositoryforalloftheIQFrelatedpublicationsfromtheothersectors.

8.2.1.2Officialimplementationcommencingdate

In the higher education sector, the level of preparation for implementation has been relativelymoreadvancedcomparedtoothersectors.WhilewaitingfortheIQBtobeestablishedandoperational, it isrecommended that theMoRTHE immediatelydeclare theofficialMinistry-endorsed start date for theIQFimplementationinhighereducation.

A timetable for implementation needs to be developed and transition dates for approval of studyprogramsandinstitutionsagainsttheIQFrequirementsneedtobesetandannounced.SincetheMoECRegulation49/2014hasanimplementationdateofmid-2016,theimmediateactionistopromulgateacommencement date for the quality assurance arrangements for the IQF to coincidewith this. Oncequalityassuranceactivitiesare ready tobeconductedagainst the IQF, the implementationof the IQFcancommence.

8.1.3 Capacitybuildingforinstitutions

InalargedevelopingcountrylikeIndonesia,somesectorsandinstitutionsaremorepreparedtomakeadjustmentsthanothers.Thegovernmentshouldprovideassistanceandsupportforthoseinstitutionsthat enable them to cope with the challenges. The team strongly supports the view that relevantministries design and implement a systematic program of capacity building in IQF and RPLimplementationforinstitutionsasapriority.Toensureanationalapproach,theIQBshouldprovide

27TheIQBcouldtakeresponsibilityforqualityassuringallqualityassuranceagenciesoronlypeakqualityassuranceagencies.Peak agencies are those at the top tier i.e. those that either take full responsibility for quality assurance (e.g. BAN-PT) ordelegate or license others to act on their behalf (e.g. BNSP which licenses Professional Certification Bodies).Peak qualityassurance agencies are responsible for the agencies to which they delegate or license the responsibility for the qualityassurance of qualifications, providers or provision of education, training and assessment services. Peak quality assuranceagencieswillbeheldaccountableforthisdelegationunderIQBagencyqualitystandards.


73

oversightandguidanceoncapacitybuildingneedsandpriorities.AproposedtermsofreferenceforthisprogramispresentedinAppendix-3ofthisreport.

8.1.4 Buildingaqualityculture

Itiscriticalforthecentralgovernmenttosendaclearmessagetoallstakeholders,throughitslegislativeefforts and the establishment of the IQB that the ultimate goal of introducing the IQF is to build aculture of qualitywithin each institution. The implementationof the IQFprovides the countrywith anationalreferenceforeducationalimprovement,benefittingboththeeducationandtrainingprovidersaswell as theemployers. Itwill alsohelp thecountry in its transition toward integrating itseconomyregionally.

Meetingtherequiredadjustmentsmightnotbeeasyforsomeandwillneedconsistenteffortandstrongcommitmentbyallstakeholders.Havingsaidthat,theteamstronglyconsidersthattheimplementationof the IQFshouldnot reduce institutionalautonomy inhighereducation, instead it should strengthentheinstitutionalaccountability.

8.2 Highereducationinstitutions

8.2.1 Testamurs

The first to be done is that the testamurs awarded to graduates of qualifications thatmeet the IQFrequirementsmustincludeanIQFlogowhichbrandsthemasqualificationsapprovedwithintheIQF.AstheIQFlogomustapplytoqualificationsinallsectors,thedevelopmentofthelogo,rulesforitsuse,andongoingmonitoringof itscorrectuseshouldbea functionof theproposed IQB.ThehighereducationIQFwebsitecouldrefertotheIQBwebsiteforthispurpose.

Secondly,studyprogramsandinstitutionsapprovedagainsttheQAarrangementsfortheIQFneedtobeidentifiedasIQF-compliantonthedatabaseofhighereducation.Immediateactionneedstobetakentoensure that this database can serve as the IQF register. In the short term, this can be achieved bymodifying theexistingdatabase to includeanotationof the studyprogramsand institutions that areapprovedundertheIQF.

Inaddition,adiplomasupplementcanbeusedtosupplementthequalifications issuedunderthe IQF.Thisdocument,giventograduatesalongwiththeir testamurs,needstoexplainthe IQF,thenatureofqualification typeawardedand thequalityassurancearrangementsapplied to thestudyprogramandthe institution.While it serves as an additionmeansof explaining the IQF, it cannot include the logowhichmustbepreservedforthetestamursonly.28

8.2.2 Qualityassurancenetwork

Due to its reliance on creative works for developing knowledge, universities needmore institutionalautonomy than others. In most cases universities are trusted tomaintain its ownmatters, includingassuring quality. However autonomy should come together with accountability. Universities shouldreform itself by introducing, developing, and strengthening the internal quality assurance toward asustainablequalityculture.

In the Indonesian context, the autonomous public universities (PTN-BH) enjoy more autonomy thanother higher education institutions. These universities are also seen as the role model by manyinstitutions.Forinternationalcredibilityandpublicaccountability,theautonomouspublicuniversities28FinalspecificationstobedeterminedbytheIQB.


74

mustadoptthenationalstandardsandprocessesinqualityassuranceaspartoftheminimumstandardsin their internal quality assurance. Their internal arrangements should be subject to scrutiny bystakeholdersthrougharequirementtopubliclydisclosetheirprocessesandreportsontheiroutcomes.These institutions should be encouraged to jointly establish their own quality network, with theobjectivetomonitorandassistthequalityassurancewithinthese institutions.Thisnetworkshouldbethen share its expertise with non-autonomous institutions by conducting training and providingtechnicalassistance.

The government could intervene by introducing funding schemes that encourage and support theinternalqualityassurancesystem.Inaddition,allinstitutionsneedtobesubjecttoexternalassessment,including autonomous universities. A proposed term of reference for this program is presented inAppendix-3ofthisreport.

8.2.3 CapacitybuildingonRPL

Itisrecommendedthatthehighereducationinstitutionsconductextensivestafftrainingtosupportthedevelopment and implementation of robust systems of RPL, particularly in relation to guidance andassessment.AsRPLdependsontheexistenceofclearlyarticulatedlearningoutcomes,bothdirectlyandindirectly this can feed into curriculum reform and innovation in deliverymethods. The governmentcouldprovidetechnicalassistancetoacceleratethisprocess.

8.3 OtherskillstrainingprovidersSkills trainingprovidersunderMoMshoulddeveloptheirtrainingprograms inreferencetothe IQF, inlinewiththeMoMRegulation21/2014.Inordertotransformtheindustry-definedjobqualificationsintotrainingmodules, providers need todevelop their capacity, recruit instructorswith sufficient industryexperience,andbuildsufficientlearningfacilities.

Whenthoserequirementsaremet,providerscouldestablishfirstpartyprofessionalcertificationboard(PCBorLSP) toaward licensetotheirgraduates,asstipulated in theBNSPRegulations201and202.Itcould also establish industry partnerships to develop RPL in the workplace,29 which would benefitemployeesbyawardingcertificateofcompetencies.

8.4 Qualityassuranceagencies

8.4.1 PreparingforIQFimplementation

Thequalityassuranceagencies inhighereducationneedtopreparethemselvestoassessandapprovestudyprogramsandinstitutionsagainstthestandards.Similarrequirementsarealsoapplicabletootheragencies outsidehigher education.Once the timelines for the implementationof IQF are agreed, thequalityassuranceagenciesneedtodeveloptheirresources,processes,andassessors inreadiness forthestartdate.

Animmediateassessmentneedstobemadeoftheadequacyoftheestablishinglegislationandfundingfor BAN-PT to ensure its ongoing existence without undue influence of changing priorities of theMinistry under which it sits. Similarly, it needs to review its own processes to ensure that there isobvious objectivity and externality built into its evidence gathering requirements to counter anypotentialcriticismofitscurrentprocessofpeerreviewbyexistinguniversitystaff.

29SometimesalsocalledRCC(RecognitionofCurrentCompetency)


75

8.4.2 Externalevaluation

Qualityassuranceagenciesmustbesubjecttosomeformofexternalassessmenttodemonstratethattheymeetgloballyacceptedstandards.30Thiswould ideallyoccuronce the IQB is ready tocommenceoperationundertheIQFrequirementssothatabaselineisestablishedagainstwhichimprovementsmaybemonitoredasthesystemimproves.Thiscouldbeundertakenevery5yearsbutconsiderationshouldbe given to the second assessment occurring after 3 yearswith the intent of building trust in qualityassuranceasquicklyaspossible.

8.5 EmployersIndustries and employers are strongly recommended to intensify their commitment through in-depthinvolvementindevelopingstandardsandconductingassessment.Theirmainresponsibilityistoproviderecent accurate information on industry competencies, which is essential to define competencystandards. At the later stage these competencies could be grouped to define appropriate IQFqualifications. A possible government intervention to accelerate the development of competencystandardsispresentedinAppedix-3ofthisdocument.

Employer associations are encouraged to establish third party PCB/LSPs,which have the authority toassessandawardcertificatestoworkersintherelevantsector.ItisrecommendedfortheMoMtomakethe certificate of competencies amandatory requirement in the recruitment and promotion process,particularly in the priority sectors. In order to accelerate the implementation of the IQF, it isrecommendedforthegovernmenttoallocatefundingforthedevelopmentofpackagesofcompetencystandards(SKKNI).

8.6 ProfessionalassociationsProfessional associations, which previously did not involve, are recommended to strengthen theirinternalorganization.Withoutstrongcommitmenttoget involve,theywill failtoearnthepublictrustandconfidence31. It isstronglysuggestedthattheseorganizationscollaboratewiththeIQBinassuringquality,byassistingwiththeexternalmeta-evaluationstobecarriedoutbyIQBasmandatory.

8.7 WorkersandjobseekersIt is strongly recommended for workers and job seekers to continuously search for information oncompetencies required by industries, as defined in the IQF qualifications. Relevant information couldalsobeacquiredbysearchingthePCB/LSP’scertificationschemes.Suchinformationisessentialforjobseekersinselectingtrainingprovidersthatoffercompetenciesrelevanttotheindustries’needs.Trainingproviders who have been licensed as first party PCB/LSPs are highly commendable, since graduatescouldobtaincertificateofcompetenciesfromthesameinstitution.

For obtaining required competencies, workers and job seekers could pursue competency basededucation/training at accredited education/training institutions and participate in competencyassessment doneby licensedPCBs. The government, employers, andprofessional associations shouldcontinuouslyeducatethepubliconhowtoaccesstherelevantinformation.

30UseoftheINQAAHEprinciplesforqualityassuranceagenciesprovideanidealsetofstandardsandanassessmentteamofinternationalqualityassurancespecialists.31Insomesectors,suchasmedical,theprofessionalassociationisorganizationallystrongandhasbeendeeplyinvolvedwiththeimplementationofIQF.


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8.8 TimelineA timeline for theestablishmentof the IQBand the implementationof the IQFgohand inhand.Theimplementation of the IQF at national level and across all sectors should be overseen by the IQB toensurethatthereisalignmentininterpretationandapplication.

ThefollowingrecommendedtimelineindicatesthetimenecessaryfortheestablishmentoftheIQBandtheimplementationoftheIQF(beyondthatachievedatministrylevel).

November2015

November2015

MoRTHEtofinalizeareportonthelessonslearntfromthepilotMoRTHEprogramonRPLin40polytechnicsanddisseminatetorelevantstakeholders.AgreeduponstrategytosubmitajointproposalbyMoEC,MoRTHE,MoM,MoTforestablishingtheIQB

December2015 OfficeofthePresidentortheStateSecretariattoconfirmthattheIQBwillbeestablished.December2015 MoRTHEandMoECto initiatedialoguewithinformalandnon-formalsectors (e.g.MoM,

BNSPandprofessionalassociations)todeveloplearningoutcomesagainsttheIQFtowidenfutureRPLopportunities.

December2015 MoRTHEandMoECinconjunctionwithotherrelevantministriesandLAM,tofinalize astrategy for RPL and associated upgrading of nurses. The strategy is to include capacitydevelopment of the higher education sector in relation to RPL assessment, partnershipengagementwithemployersanddeliveryofflexiblelearningprograms.

March2016

May2016

OfficeofthePresidentortheStateSecretariatfinalizesthelegislationdraftfortheetablishmentIQBisestablishedbyaPresidentialdecreeorGovernmentRegulation

June2016 MoECandMoRTHEtoreachaharmonizednationalRPLimplementationstrategy.June2016 AgreementonRPLrequirementsandIQF levelsisreachedbytheprofessionalassociation

andemployersassociationinconjunctionwiththeMoM.June2016

June2016

OfficeofthePresidentortheStateSecretariattoseekIQBmembershipnominations,andappointmentsmade.EstablishmentoftheIQBSecretariattoundertakeitsoperationsandfunctions.

June2016 Disseminatehighereducationpublication(inBahasaandEnglish)ofIQF requirements(including all IQF and quality assurance requirements) to all HE providers; conduct apublicityprogramtoinformallhighereducationprovidersofIQFimplementationdatesforhighereducation

June2016 Disseminatecompletedpublication(inBahasaandEnglish)ofthediscipline-specificlearning outcomes for study programs developed by the DGHE to all higher educationproviders;publishanddisseminatetoallhighereducationprovidersandstakeholderstheDGHE guidelines for the development, review, storage and publication of these learningoutcomes

June2016 BANPTcommencesusingthenewqualityassurancestandardsandassesses studyprograms against the requirements of IQF from this date; the quality assurancerequirementsarepublished(inBahasaandEnglish) inaneasilyaccessibledocumentandmadeavailabletoallhighereducationproviders, includingontheBANPTwebsite.BANPTshould have developed any new procedures and assessors should have receivedprofessionaldevelopmenttrainingonthenewstandardspriortothis.

June2016 ThehighereducationdatabaseismodifiedreadytobeusedashighereducationregisterofIQF-compliantstudyprograms;thisisaMinistryresponsibilitybecauseuseofthedatabaseforthispurposewillbebyallhighereducationqualityassuranceagencies(currentlyBANPTandLAMs)

June2016 LaunchhighereducationwebsitefortheIQF(inBahasaandEnglish) containingallinformationthatisneededtosupportimplementationoftheIQFinhighereducation

September2016

September2016

IQBtofinalizemeetingprotocolsforcoordinationofimplementationwiththeministriesandtotaketheleadinconsultationsIQBtodraftagencyqualitystandardsandprotocolsforrecognitionasapeakqualityassuranceagencyforthepurposeofIQFqualificationcertification.

Shortterm


77

September2016 IQBtoconfirmallIQFdocumentationatnationalleveltobeimplemented atministerialand or international level, including definitions, IQF logo and use specifications,qualificationtypes,qualificationtypedescriptors,RPLpolicy.

December2016 Under theauspiceof IQB,extensiveengagementwithmajoremployers (from thepublicand private sectors) is commenced with a view to make explicit RPL opportunities forcareerprogressionandtounderstandthebenefitsoftheIQFandRPL.

December2016 IQBtoendorseagencyqualitystandardsandprotocolsforrecognitionasapeakqualityassurance agency for the purpose of IQF qualification certification, and specify therequirementsforaregister(whichwillbetheministriesresponsibility).

December2016 IQBtoestablishapubliclyaccessiblewebsitetopromotetheIQF,theIQB, nationalpolicydocuments in relation to the IQF,agencystandardsandprotocols, registerof recognisedpeak quality assurance agencies, and links to relevant ministries and quality assuranceagencies.

December2016 IQBtocompleteshortanalysisofimplementationofIQFatministrylevel(e.g.education,manpower).ProposesimilarprojecttothiscurrentprojecttobeestablishedintheMoM.

March2017 AllqualityassuranceagenciesthathaveappliedtoberecognizedbytheIQBhavebeen

initiallyevaluatedaccordingtotheagreedstandardsandspecifications.December2017

December2017

Confirmationofallrecognizedqualityassuranceagenciesasmeetingqualitystandardsandspecifications, or agencies to implement strategy for continuous improvement andmonitoredbyIQB.RegisterofrecognizedqualityassuranceagenciesispubliclyavailablethroughtheIQB/IQFwebsite.

LongtermJune2020 IQBtoundertakesystemwideanalysisofimplementationoftheIQF.June2021 Highereducationqualityassuranceagencies(BANPT&LAM)areexternallyassessedbyan

independentinternationalagencyaspertheIQB’sspecificationforpeakqualityassuranceagencies.

June2021 AllstudyprogramsinhighereducationarequalityassuredasmeetingtheIQFrequirements.

January2023 IQBtomonitorthatallinitiallyrecognizedqualityassuranceagencieshavebeenexternallyevaluatedaccordingtotheagreedcriteriaandprotocols.Thisisanongoingprocess.

January2017Mediumterm

AnRPLpilotprogramisimplementedoutsidethehighereducationsector.

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Appendices

Appendix1:Registeredprivatetrainingandcourseproviders32

PROVINCE LPK-MoM LKP-MoEC

JAWABARAT 1,109 1,730JAWATIMUR 981 2024JAWATENGAH 857 1466SUMATERAUTARA 656 939SUMATERABARAT 321 253SULAWESISELATAN 295 506LAMPUNG 288 346BANTEN 253 338KALIMANTANTIMUR 251 218BALI 247 373SUMATERASELATAN 228 305BENGKULU 197 197KALIMANTANSELATAN 194 259KALIMANTANBARAT 172 184SULAWESITENGAH 161 311BANGKABELITUNG 142 101NUSATENGGARABARAT 133 344

DIYOGYAKARTA 131 212

DKIJAKARTA 131 519

NUSATENGGARATIMUR 120 281

SULAWESIUTARA 117 192

JAMBI 77 249

NANGGROEACEHDARUSSALAM 71 248

PAPUA 67 35

KALIMANTANTENGAH 67 110

KEPULAUANRIAU 67 143

RIAU 64 179

MALUKUUTARA 46 64

SULAWESITENGGARA 40 143

GORONTALO 30 80

SULAWESIBARAT 29 151

MALUKU 25 58

PAPUABARAT 13 21

KALIMANTANUTARA 12

TOTAL 7,580 12,591

32MoMandMoEC2014

Appendices

83

Appendix-2:Studyprogramscompleteditsdescriptors33

Statusattheendof2013

SOCIALSCIENCES ENGINEERING BUSINESSANDCOMMUNICATION1 Int'nalRelations S1 28 Engineering D

3 55 BusinessAdm. S1

2 Int'nalRelations S2 29 Engineering D4

56 BusinessAdm. S33 SocialWelfares S1 30 Engineering S1 57 Management S14 SocialWelfares S2 31 Engineering S2 58 Management S35 SocialWelfares S3 32 Engineering S3 59 PublicRelations S16 SocialDevelopment S1 33 ElectricalEng. S1 60 Broadcasting S17 SocialDevelopment S2 34 ElectricalEng. S2 61 Journalism S18 SocialDevelopment S3 35 ElectricalEng. S3 9 PoliticalSciences S1 36 IndustrialEng. S1 ARTSANDDESIGN10 PoliticalSciences S2 37 IndustrialEng. S2 62 Architectures S111 PoliticalSciences S3 38 IndustrialEng. S3 63 Architectures S2 39 ChemicalEng. S1 64 Architectures S3

NATURALSCIENCES 40 ChemicalEng. S2 65 ArchitectProfession P12 Chemistry D3 41 ChemicalEng. S3 13 Chemistry S1 42 EnvironmentalEng. S1 EDUCATION14 Chemistry S2 43 EnvironmentalEng. S2 66 TeacherEducation S115 Chemistry S3 44 EnvironmentalEng. S3 67 TeacherEducation S216 Physics S1 45 ManufactureEng. D

368 TeacherEducation S3

17 Physics S2 46 ManufactureEng. S1 69 EnglishLanguageEdu. S118 Physics S3 47 ManufactureEng. S2 70 EnglishLanguageEdu. S219 Biology S1 48 MechatronicsEng. D

371 EnglishLanguageEdu. S3

20 Biology S2 49 NavalEng. S1 21 Biology S3 50 NavalEng. S2 HEALTHSCIENCES 51 NavalEng. S3 72 Midwifery D3

FORMALSCIENCES 52 MiningEng. S1 73 Nursing D322 Mathematics S1 53 MiningEng. S2 74 NurseProfession P23 Mathematics S2 54 MiningEng. S3 75 NurseSpecialist SP124 Mathematics S3 25 Statistics S126 Statistics S227 Statistics S3

Statusattheendof2014

ENGINEERING HEALTH LAW1 CivilEngineering S1 8 Nutrition D3 18 Paralegal D32 CivilEngineering S2 9 Nutrition S1 19 Law S13 CivilEngineering S3 10 Nutritionist P 20 Law S2

11 Nutrition S2 21 Law S3FORMALSCIENCES 12 Nutrition S3 22 Attorney P

4 Informatics/ComputerScience S1 13 VeterinaryScience D3 23 Judge P5 Informatics/ComputerScience S2 14 VeterinaryScience S1 24 Prosecutor P

15 Veterinarians P 25 Notary PARTS&DESIGN 16 VeterinaryScience S2

6 InteriorDesign S1 17 VeterinaryScience S3 7 VisualCommunicationDesign S1

33SourceDLSA2013

Appendices

84

Appendix3:Termsofreferenceforgovernmentintervention

Program-1:GrantforinitialestablishmentofQANetworkRationaleofthegrantIn term of its legal status, public universities are grouped into three categories: autonomous publicuniversities (PTN-BH), public universitieswith adegreeof financialmanagement flexibility (PTN-BLU),and public universities as government implementing unit (PTN). Since the establishment of anautonomouspublicuniversity (PTN-BH) requires government regulations, new legal instrumentshavebeenissuedforconversionof11publicuniversitiestoautonomousinstitutions,asillustratedintable-1.

UniversityofIndonesia AirlanggaUniversityBogorAgricuturalUniversity PadjadjaranUniversityInstituteTechnologyofBandung DiponegoroUniversityGadjahMadaUniversity 10NopemberInstituteofTechnologyUniversityofNorthSumatera HasanuddinUniversityIndonesiaEducationalUniversity

Table-1:Universitieswithautonomouslegalstatus(PTN-BH)

Sincetobecomeautonomousrequiresastringentsetofcriteria,onlythebest institutionsaregrantedthat status. In many cases these institutions are considered as the role model by the remaininginstitutions,particularlysmallerandyounger institutions inouter islands.Therefore it is important fortheseelite institutions tomaintain reputationbyensuring that theacademicand scientificnormsarealwaysitshighestpriority.

Thefieldrealitiesshowthatinsomecases,thereisatendencythatthesenormsarecompromised,oratleastseenso. Inordertomaintain itsreputation,andmore importantlytoprovidethepropermodelsforotherinstitutions,aformalandinternallydriveninitiativetoassurequalityisneeded.

ObjectivesTheobjectivesofthisprogramareto,

• Developcapacitytoenhanceinternalqualityassurance;• Developcapacitytonurtureanddevelopinternalqualitycultureamongtheautonomous

universities;• DevelopcapacitytosharetheQAskillstootherinstitutions.

ScopeofthegrantThis grant will partially cover the initial cost needed for establishing the quality assurance networkamongtheautonomousuniversities.Theeligiblecomponentswillbe,

• Internationaltechnicalassistance(3person-month):maximumofUSD90,00034;34PerhapsfromInternationalNetworkofQualityAssuranceAgenciesinHigherEducation(INQAAHE)orothersimilarorganizations

Appendices

85

• Domestictravelling,boardandlodgingcostfortrainingparticipants:maximumofIDR500

million;• Seedmoneytosettlethenetworksecretariat(officeequipment,communicationfacilities,etc)

anddevelopassessmentoperatingprocedures:maximumofIDR250million;and• Investmenttodeveloptrainingmodules:maximumofIDR500million.

DesignoftheinterventionThe11autonomousuniversitieswillberequestedbytheDirectorateGeneralofLearningandStudentsAffairs(DGLSA)toselectaninstitutiontohosttheSecretariatoftheQualityAssuranceNetwork.Otheroptionsuchastohavethehostrotatedamongthememberuniversities,shouldalsobeconsidered.AjointcommitteeshouldbeestablishedtoprepareaproposalforestablishingtheNetwork.

TheQANetwork shouldbeestablishedbyallmemberuniversities,witha firm legal statuswithin theassociation.Thegrantwillbeprovidedforthefirst2(two)yearsafteritsestablishment,andevaluationwillbeconductedbyanexpertpanelatleastoncebeforetheprojectisexpired.Aftertheexpirationoftheprojectperiod,thenetworkshouldbeabletosustainitsoperationthroughtheannualcontributionofthememberinstitutions.

TheresponsibilitiesofthisQAnetworkshouldincludetheamongothers,

• Assessnewstudyprogramsorqualifications;• periodicallymetaevaluatetheinternalQAineachmemberinstitution;• conducttrainingandapprenticeshipprogramforotherinstitutions;and• provideon-siteassistancetootherinstitutions.

PerformanceindicatorsAttheendoftheproject,thefollowingperformanceindicatorsshouldbeachieved,

• awellfunctioningsecretariatoftheQAnetwork,includingitsinstitutionalframeworkandlegalstatus;

• asetofwelldocumentedofstandardoperatingproceduresforassessment;• trainingmodulesforassessorsthathasbeenpilotedatleastonce;• trainingmodulesforQAofficersthathasbeenpilotedatleasttwice;

Appendices

86

Program-2:DevelopmentofNationalCompetencyStandards

BackgroundThe Government Regulation 31/2006 on the National Skills Training System (Sistem Pelatihan KerjaNasional / SISLATKERNAS) was issued as a platform for the integrated competency based trainingsystem. SISLATKERNAS describes three pillars of competency based training system, namely (i)competencystandard,(ii)competencybasedskillstrainingprogram,and(iii)competencycertification.

Thethreelevelsofcompetencystandards(knowledge,skills,andattitudes)are(i)NationalCompetencyStandard(NCS)orSKKNI(StandarKompetensiKerjaNasionalIndonesia);(ii)InternationalStandard;and(iii) SpecialStandard.TheNCSisdevelopedbasedontheguidelinesstipulatedintheMoMTRegulation12/2007(laterrevisedbytheMoMTasRegulation8/2012).

SKKNI(StandarKompetensiKerjaNasionalIndonesia)orIndonesianNationalCompetencyStandardisadescriptionofcompetenciesrequiredbyapersontobeassignedinaparticularoccupationorposition.SKKNIcoversknowledge,skills,andattitude,andshallbeusedasanationalreference indevelopingacompetency.SKKNIcouldbearrangedinapackageconsistingofclustersofcompetenciesand/orunitsofcompetencies(unitkompetensi),occupancy,orjobtitle(jabatan).

Sector Numberofstandards

Agriculture 56Miningandenergy 52

Manufacturing 54

Construction 108

Tourism&Culture 56

Services&Others 80

TOTAL 406

Table-1.1Packagesofcompetencystandardsdevelopedbysectoruntil2014[BNSP2014]

Bytheendof2014,406packagesofcompetencystandards (SKKNI)havebeendeveloped inthemaineconomicsectors,asillustratedinTable-1.1.ThenumberofSKKNItobedevelopedyetisstillverylarge,considering therapidadvancementof technology. Jobs in informationandcommunicationtechnologyaswellaslogisticsareonlyafewexamplesofnewoccupationsinthemarketthatrequiredefinitionsofcompetency standards. In order to achieve the government target of 10 million certified workers in2019,asignificantnumberofadditionalpackagesareneededinthenearfuture.

ObjectivesTheprimaryobjectiveofthisprojectistoincreasethenumberofavailableSKKNItobereferredbyskillstrainingproviders,aswellasemployers.Sincethesectorsshouldbecoveredissignificantly large,thisprojectwillfocusonprioritysectorsasagreedundertheASEANmutualrecognitionarrangements.

ScopeofthegrantThis grantwill provide support for developing 10 SKKNI per year in the priority sectors in the next 2years.Theeligiblecomponentsare

Appendices

87

• Workshops(eachworkshopupto30participantsfor2days),shouldnotexceedIDR350million

perSKKNI;• Internationaltechnicalassistance,maximumof2person-monthperyearandshouldnotexceed

USD60,000(allinclusive)peryear;and• Nationaltechnicalassistance,maximumof5person-monthperyearandshouldnotexceedIDR

250million(allinclusive)peryear.

DesignoftheinterventionTheBNSPwillsolicitproposalsfromtherelevantgroups.TheannouncementforsolicitingproposalswillincludethemandatorystandardformatofSKKNItobereferredbytheproponents.

Thegroupseligibletodevelopproposalarerepresentingemployersassociation(APINDO),chamberofcommerceand industry (KADIN),associationofproviders,orcombinationof those. It ismandatory toincluderepresentativesfromtheseorganizationsinthedevelopmentteam.

Inordertoassignthegrantees,anindependentexpertpanelwillreviewandevaluatetheproposals.Thesupportwilleffectivefor12(twelve)months.Neartheendoftheexpirationoftheproject,anationalconsultation workshop should be conducted to solicit critics and comments from the relevantstakeholders.

OutputsAttheendoftheprojectperiod,themainperformanceindicatorswillbe,

• AsetofSKKNIinitsfinalstandardformat;• AnarrativedocumentexplainingtheSKKNI,e.g.rationale,objectives,principles,and

backgroundofeachlearningoutcome.

Appendices

88

Program-3:CapacitydevelopmentgrantforimplementingIQF

BackgroundThe implementation of IQF requires a considerable resources that many weaker institutions cannotafford to acquire. Currently the majority of skills providers are not adequately strong in term ofresources,particularlyfinancialcapacity.

In order to implement the IQF, these institutions will have to redefine learning outcomes of theirprogramsbyreferringtotheIQF.Inmanycasessuchobligationisnoteasytomeet.Mostdonothaveadequatecompetenceexpertstocarryoutthetask,andtheydonothavesufficientfinancialresourcesto hire one. In addition to the learning outcomes, they will have to upgrade and update theirlaboratoriestomeettherequiredstandards.

Withoutgovernmentassistance,suchinstitutionsmighthavetoterminatetheirservices.Althoughsomeprovidersmightnotbeviable tocontinuetheir services,asignificantnumberofprovidersmighthavelong and valuable experiences of running the training programs. In order to consolidate and improveefficiency, some institutions might be encouraged to merge. These institutions should be eligible toreceivegovernmentsupporttoimprovetheircapacityinimplementingIQF.

ObjectivesTheobjectivesofthisfundingprogramareto,

• PreparegranteestoimplementIQFbyadjustingitslearningoutcomes;• improvetheefficiencyofthenationalsystemofskillstrainingproviders;• improveparticipationintheimplementationofIQF.

EligibleproponentsA call for proposal will be announced jointly by MoM, MoEC, and MoRTHE. Institutions eligible todevelopproposalare,.

• QAagencies(LA-LPKorLAM),whohasassessedandevaluatedmorethan25providers;• Skills training providers, including BLK, LPK, LKP, and HEI’s skills training providers, who has

conductedmorethan50certifiedtrainingprograms;orparticipatedbymorethan200trainees,inthe7prioritysectors;

• Skilltrainingprovidersunderhighereducationinstitutions,whichprovidetraininginthe7prioritysectors,andhavegraduatedmorethan200persons.

ScopeoftheprogramInordertoselectthegrantees,anindependentexpertpanelwillreviewandevaluatetheproposals.Thenumber of reviewers in the panel will decided based on the number of proposals submitted. Thestakeholdersshouldbewellrepresentedinthepanelmembership.

Appendices

89

The support will effective for 12 (twelve) months. In the 11th month of the project, a nationalconsultation workshop should be conducted to solicit critics and comments from the relevantstakeholders.

Theeligiblecomponentsforeachgrantare,

• Workshops(eachworkshopupto20participantsfor2days),shouldnotexceedIDR150million;• Nationaltechnicalassistance,maximumof1person-monthperyearandshouldnotexceedIDR

35million(allinclusive)peryear;• Smallinvestmenttorefurbishclassroomsandmodernizelaboratory,shouldnotexceedIDR500

million.

AnnexA:ReportonFocusGroupDiscussion

90

AnnexA:ReportonFocusGroupDiscussions

INTRODUCTIONIn order to resolve qualifications problems for contributing toworkersmobility in the AEC in theselected study programs, a mismatch between graduate’s competency and skills needed by themarkethasbeen identified.The rootofmismatch resides in (a) the lackofmarket signalanalysesthat should be provided by all technical ministries as well as industries; (b) less graduatecompetencies due to education trend that goes more into academic programs rather thanvocational, professional, as well as specialization; and (c) production of graduates by technicalministrieswithoutpropercoordinationwithMoEC.

In thisstudy, threepilotsectorshavebeenselected in implementingqualifications infrastructures.TheyareselectedbasedonNationalpriority,Feasibility,Impact,andRepresentativeness.

a) Tourism:isconsidredasmoreadvancedintermsofcompetencystandards,competencybased-studyprograms,qualifications,andProfessionalCompetencyBoard (PCB)availability. ItwillbeusedasareadymodelfordevelopmentofasectoralIQF,RPL,andIQB.Asafielddevelopedbyindustriesorindustrybasedfieldofstudy,incontrastwithafielddevelopedbytheassociationofprofessionals,tourismenjoysaverystrongsupportfromtherelevantindustries..

b) Accounting:isarelativelyoldprofessionthatithasalreadydevelopeditscompetencystandards,competency based-study programs, qualifications, and PCB availability. But synchronizationacrosscompetencylevelsisstillproblematic.

c) Nursing:aspartofhealthcare,thisfieldisconsideredastopprioritybymoststakeholders.Ithasalreadydevelopeditscompetencystandards,competencybased-studyprograms,andPCB,butstillrequiresharmonizationwiththeMRA.

OUTPUTA recommendation for a complete set of qualification frameworks for the selected fields issubmitted,whichinclude:

(a) mappingthedemandandsupplyoftourismandaccountancysectors;(b) learningoutcomesoftourismandaccountancydegreeprograms35;(c) recognitionofpriorlearninginnursingandtourismsectors,whichisanimportantaspectin

assigningtheappropriateequivalentcompetencylevel;and(d) qualityassurancebasedonqualificationsfornursingsectors.

These points will be synchronized and extracted for developing IQF road map and itsimplementationatthenationallevel.

MECHANISMStudy of these three sectors is carried through series of FGDs and workshops. The Tourism andAccounting FGDs produce learning outcomes that can contribute to a robust IQF qualificationssystemcoveringalllevelofskills/qualifications,andwellbenchmarkedtoqualificationframeworksinothercountries.ThenursingFGDsanalyzethebestQAmechanism.

Key stakeholders are invited to solicit inputs onthe level of understanding of functions andoperabilityoflearningoutcomesatvariouscountriesbydiscussingthefollowingissues:

• objectiveoflearningoutcomesineducationsystem;• domainsandmechanismofestablishinglearningoutcomes;

35Acompletesetoflearningoutcomesissubmittedseparately.


91

• benchmarkoflearningoutcomesfromothercountries;and• assessmentoflearningoutcomestowardsqualificationlevelsasbasisforaccreditationor

qualityassuranceingeneral.

Theinviteesincluderepresentativesfromthefollowingorganizations,

a) Nursing: Indonesian Nursing Association (PPNI), Indonesian Nursing Education InstitutionAssociation (AIPNI), IndonesianNursingDiplomaEducation Institution (AIPDiKI), AssociationofNursingStudyPrograms,DLSADGHE,MinistryofHealth(BPSDM),selectedDeansandHeadofStudyPrograms,aswellaslecturersintherelevantfields.

b) Tourism:Hotel&RestaurantAssociation (PHRI), Jakarta InternationalHotelAssociation (JIHA),Food&BeverageExecutiveClub(IFBEC),HotelHumanResourceManagerAssociation(HHRMA),Housekeeper Association (IHKA), Tourism study programs (HILDIKTIPARI), Ministry of Tourism(BPSD),selectedDeansandHeadofStudyPrograms,aswellaslecturersintherelevantfields.

c) Accounting: Accountant Association (IAI), Institute of Certified Public Accountants (IAPI),Technician Accountant Association (APPTASI), Faculty of Economics, Ministry of Finance,selectedDeansandHeadofStudyPrograms,aswellaslecturersintherelevantfields.

SCHEDULEInitially,only3FGDsweredesignedtobeconducted.However,duetoadditionalmattersneededtobediscussed,anadditionalFGDwascarriedout.Theschedulesareasfollows:

FGDIa) Nursing:Jakarta,16October2014,09.00-15.30b) Tourism:Bandung,22October2014,09.00-15.00c) Accountancy:Surabaya,6Nov2014,15.00–21.00FGDII–allthreesectors:JakartaMarch25–2015,08.00-

17.30

FGDIIIa) Tourism:Denpasar,June10-2015,10.00-21.00b) Nursing:Manado,June21and222015c) Accountancy:Jakarta,June262015,10.00–17.00FGDIVa) Accounting:Jakarta,August13-2015,09.00–17.00b) Nursing:Jakarta,August14-2015,09.00–17.00c) Tourism:Jakarta,August18-2015,09.00–17.00

OBJECTIVESandAGENDAFGDITheobjectivesofthediscussionaretosolicitinputsfromstakeholdersonthelevelofunderstandingof:

• functionsandoperabilityoflearningoutcomesatvariouscountries;and• thelearningoutcomesdomainsandmechanismofestablishinglearningoutcomesof

selectedstudyprogramsinAccountancy,Nursing,andTourism.

Issuesdiscussed

• objectiveoflearningoutcomesineducationsystem;• domainsandmechanismofestablishinglearningoutcomes;• assessmentoflearningoutcomestowardsqualificationlevels;• learningoutcomesofspecificsectorinIndonesia;and• benchmarkoflearningoutcomesfromothercountries.

TheonedayFGDswereheldwiththefollowingagenda.


92

09.00-15.00 NURSINGandTOURISMPROGRAM 15.00-21.30 ACCOUNTINGPROGRAM08.00–09.00 Registration 14.00–15.00 Registration09.00–09.30 Openingremarks 15.00–15.30 Openingremarks

09.30–10.30 PresentationbySectorRepresentatives 15.30–16.30 PresentationbySector

Representatives

10.30–12.00 PresentationbyInternationalQFexpert 16.30–18.00 PresentationbyNationalQF

expert12.00–13.00 Lunchandprayerbreak 18.00–19.00 Lunchandprayerbreak13.00–15.15 Discussion 19.00–21.15 Discussion15.15–15.30 Closingremarks 21.15–21.30 Closingremarks

FGDIITheobjectivesof thediscussionwerediscussingLearningOutcomeofspecificstudyprogramsandRPLprocesses inAccountingandTourismsectors.FortheNursingsector,thediscussion is focusedonqualityassuranceandRPL.

Issuesdiscussed

• assessmentoflearningoutcomestowardsqualificationlevels;• learningoutcomesofspecificsectorinIndonesia;• RPLsystem,opportunityandchallengesinimplementingRPLineachsectors;and• qualityassurancefornursingprofessionaleducationatlevels5and7IQF.

TheFGDwasheldinonedaywiththefollowingagenda.

TIME08.00-15.00 PROGRAM08.00–09.00 Registration09.00–09.30 Openingremarks09.30–10.30 Parallelsessionsfor3sectors10.30–12.00 Parallelsessionsfor3sectors12.00–13.00 Lunchandprayerbreak13.00–15.00 Discussion

15.30–16.30 PresentationbytheInternationalConsultantandDiscussiononRPLineachsectors

16.30–17.00 ClosingRemarks

FGDIIITheobjectivesofthediscussionaretosolicitinputsfromstakeholdersonthelevelofunderstandingof:

• analysesonvariousstudyprogramsincorrelationwiththeirspecificmarketdemandinTourismandAccountingsectors;

• learningoutcomescoveringalllevelofhighereducationinTourismandAccountingsectors;• RPLstrategyandmechanismforNursingsectors,recognizingD1orD2graduateswith

workingexperiencetoaD3qualifications(level5);and• RPLstrategyandmechanismforTourismsectors,recognizinglecturerqualificationsoflevels

8and9

Issuesdiscussedwere,:

• stakeholdersneedsonTourismandAccountingqualifications;• differenceinlearningoutcomesamongvariousAccountingstudyprograms;• differenceinlearningoutcomesamongvariousTourismstudyprograms;• recognitionofindividualworkingexperienceinnursingsectors;and• recognitionofexpertsandlecturerswithdifferentstudybackgroundaslecturerintourism

sectors.TheFGDswereheldinthefollowingagenda:


93

TOURISM:Wednesday,June10-201509.00–10.00 Registration

10.00–10.30 Welcomingremarks(IQFStudyTeamLeader)Openingremarks(DLSA)

10.30–11.30 • AndreaBateman(QBinternationalexperiences)• MariaSlowey(RPLforlectures)

11.30–12.30 • PresentationofTourismS1,D3,D4learningoutcomes• PresentationofInternationalConferencescheme

12.30–13.30 Lunchandprayerbreak

13.00–15.00

Parallelsession• Analysesonvariousstudyprogramsincorrelationwiththeirspecific

marketdemandintourismsectors(FGDParticipants)• AnalysesonaccountingS1,D3,D4learningoutcomes(IQFDLSATeam)• DiscussiononInternationalConference(FGDParticipants)

15.00–15.30 Break

15.30–17.00

Continuingdiscussions• onsupplyanddemandanalysesontourismskilledlabor(FGDParticipants)• onTourismS1,D3,D4learningoutcomes(IQFDLSATeam)• onRPLforlecturers(FGDParticipants)

17.00-18.30 Break19.00–21.00 Conclusionandthenextsteps21.00–21.30 Closingremarks

NURSING:Manado,SundayJune21andMondayJune222015Day1 June212015–FGDACDPParticipantsandspecificstakeholders

15.00–15.30 Registration


16.00–17.00

PanelPresentations• MariaSlowey(RPLforNursingSectors)• AnnDoolette(QAbasedQualifications)• AndreaBateman(QB–internationalexperiences)

17.00–18.00 Discussiononrecognitionofindividualworkingexperienceinnursingsectors18.00–19.30 Dinner19.30–21.30 Discussiononstrategyandmechanisminnursingsectors

Day2 June222015–FGDParticipantsandNursingStudyProgramsHeldinPoliteknikKesehatanManado


08.30–09.00Welcomingremarks(IQFStudyTeamLeader)OpeningremarksManadoHealthPolitechnicDirector,DLSA,andMinistryofHealthRepresentative

09.00–10.00

Parallelsession• PanelPresentationbyMinistryofHealthrepresentativeorAIPNI,

andMariaSloweyonNursingSectorRPL(GeneralParticipants)• Conclusiononstrategyandmechanisminnursingsectors(FGD

Participants)

10.00–12.00Parallelsession

• DiscussiononRPL(GeneralParticipants)• DiscussiononInternationalConference(FGDParticipants)

12.00–12.30 Closingremarks12.30–14.30 Lunch

ACCOUNTING:Friday,June26-201508.00–08.30 Registration


09.00–11.30

ParallelPresentationsby:• AnnDoolette(QAbasedQualifications)• KeyStakeholders(oilcompanies)• ResumeonWorkshoponAseanAccountingEducationEmpowering

AccountingEducationAcrossASEANfromstakeholder’s perspective–Dr.AgungNugroho

Discussion11.30–12.30 PresentationofAccountingS1,D3,D4learningoutcomes


94

12.30–13.30

Lunchandprayerbreak

13.00–15.00

Parallelsession• Analysesonvariousstudyprogramsincorrelationwiththeirspecific

marketdemandinaccountingsectors(FGDParticipants)• AnalysesonAccountingS1,D3,D4learningoutcomes(IQFDLSA

Team)• DiscussiononInternationalConference(FGDParticipants)

15.00–15.30 Break15.30–17.00 ResumeonAccountingS1,D3,D4learningoutcomes(IQFStudyTeam)17.00-17.30 Closingremarks

FGDIVTheFGDaimedtoyieldlearningoutcomesthatcancontributetoarobustIQFqualificationssystemas well as strategy and mechanism for RPL implementation, with three sectors (accountancy,nursing,andtourism)aspilot.

Theobjectivesofthediscussionaretosolicitinputsfromstakeholdersonthelevelofunderstandingof:

• finalizationoflearningoutcomesofTourism(S1,D4,andD3)andAccounting(S1,S2,S3andD4)degreeprograms;

• RPLstrategyandmechanismforNursingsectors,recognizingD1orD2graduateswithworkingexperiencetoaD3qualifications(level5);

• RPLstrategyforlecturerintourismsector;• QAinnursingsector;and• feedbackonRPLquestionnaires

Thefollowingissuesarediscussed:

• differenceinlearningoutcomesamongvariousAccountingstudyprograms;• differenceinlearningoutcomesamongvariousTourismstudyprograms;• QAinnursingsectorsbyLAM;• recognitionofindividualworkingexperienceinnursingsectors;and• recognitionofexpertsandlecturerswithdifferentstudybackgroundaslecturerintourism

sectors.TheFGDswereheldinthefollowingagenda:

ACCOUNTING:JAKARTA,AUGUST13-2015,09.00–17.00


09.00–09.30 Welcomingremarks(IQFStudyTeamLeader)Openingremarks(DGLSA)

09.30–10.30 FeedbackonRPLQuestionnaires10.30–12.30 PresentationonAccountingS1,S2,S3,andD4learningoutcomes12.30–13.30 Lunchandprayerbreak13.00–15.00 AnalysesonaccountingS1,S2,S3,andD4learningoutcomes15.00–15.30 Break

15.31–16.30 • AnalysesonaccountingS1,D3,D4learningoutcomes• DiscussiononInternationalConference

16.30-17.00 Conclusion,Thenextsteps,andClosingremarksNote:AccountingsectorparticipantsareexpectedtoarriveonAugust13–2015,earlymorning.

NURSING:JAKARTA,AUGUST14-2015,09.00–17.0008.00–09.00 Registration


09.30–10.30 FeedbackonRPLQuestionnaires

10.30–12.30 • PresentationonQAatNursingSectors• PresentationofRPLschemeatNursingSectors


95

12.30–13.30

Lunchandprayerbreak

13.00–15.00 • DiscussiononQAatNursingSectors• DiscussiononRPLschemeatNursingSectors

15.00–15.30 Break

15.30–16.30Continuingdiscussions

• DiscussiononRPLschemeatNursingSectors• DiscussiononInternationalConference

16.30-17.00 Conclusion,Thenextsteps,andClosingremarks

TOURISM:JAKARTA,AUGUST18-2015,09.00–17.0008.00–09.00 Registration


09.30–10.30 FeedbackonRPLQuestionnaires

10.30–12.30 • PresentationonTourismS1,D3,D4learningoutcomes• AnalysesontourismS1,D3,D4learningoutcomes

12.30–13.30 Lunchandpraybreak

13.00–15.00 • AnalysesontourismS1,D3,D4learningoutcomes• PresentationonRPLforlecturers

15.00–15.30 Break

15.30–16.30 • DiscussiononRPLforlecturers• DiscussiononInternationalConference

16.30-17.00 Conclusion,Thenextsteps,andClosingremarks

TheseFGDsinitiatedbyACDP024projectwerefollowedupbythefollowingseriesofFGDsinitiatedandfundedbytherelevantsectors.

• Accounting:o solicited input from alumnae employers, conducted on January 17, 2015 at

AccountingKnowledge&ResearchCenterUniversitasPadjadjaran,underinitiativesof Program D3 FEB Universitas Padjajaran (UNPAD) in collaboration with IkatanAkuntanIndonesiaKompartemenAkuntanPendidik(IAI–KAPd).

o ThefollowupworkshopwasconductedonJanuary22and23,2015atUniversityofIndonesia,involvingvocationalstudyprogramsinaccountancyfrom30universities,15polytechnics,and12others(Colleges,Academies,andInstitutes).

o OthersubsequentFGDswerealsoconductedtodiscuss learningoutcomesandthefinal harmonization among learning outcomes will be carried out at October 10-2015.

o After the learning outcomes are agreed by all parties, they will disseminate theresulttoallrelevantstakeholderssuchasMinistryofFinance,BSNP,BNSP,MinistryofStateApparatusandReformofBureaucracy,aswellasotherrelevantparties.

• Tourism:o several successive FGDs were conducted to agree on name, types, and level

qualifications delivered by study programs, learning outcomes, mapping learningoutcomesandcompetencystandardsof32 jobtitlesstated inMRA,aswellasRPLfortourismlecturers.

• NursingprofessionalassociationsplantoconductworkshoponRPLonOctober13-2015.

PROBLEMSTATEMENT,STRATEGYTOOVERCOMEandOUTPUT

A. TOURISMSECTORThe topic of establishing tourism as a science affirms itself by creating university programs,specialized journals and newspapers, and specialized international associations. However, it isimportant to understand that tourism training and research are adapted to the needs of theprofessionalbusinessenvironment(Kadri,2007-inJ.R.BrentRitchie,LornR.SheehanandSeldjan


96

Timur, Tourism Sciences or Tourism Studies?Implications for the Design and Content of TourismProgramming, http://teoros.revues.org/162). Therefore, the tourism science or studies are verycloselyrelatedtoitsindustries.

Tourism industries in Indonesia and around the world are growing whilst maintain the sameobjectives: to effectivelymanage the destination and, in doing so, enhance thewell-being of theresidents of a tourism destination. With such similar responsibilities, international standards oftourismareeasilydefined,includingtherequirementofprofessionalstohandlethejob.

InASEAN,theWorkingGrouponASEANCommonCompetencyStandardsforTourismProfessionalshas resulted in the competency list for hotel services – travel & tour services across ASEAN,containing:

∗ Cluster1-CommonCoreCompetencies∗ Cluster2-TravelAgency–Ticketing∗ Cluster3–TourGuideServices∗ Cluster4–TourOperations∗ Cluster5–CustomerService,Sales&Marketing∗ Cluster6–GeneralAdministration∗ Cluster7–FinancialAdministration∗ Cluster8–HumanResourcesDevelopment∗ Cluster9–ResourceManagement∗ Cluster10–EnglishLanguageProficiency

MinimumASEANCommonCompetencyStandardsforTourismProfessionalandCompetencyListfor6 Labor Divisions with 32 job titles had been established (Table A.1). These common competencystandardsforthe32jobtitlesareclassifiedinto5levelsqualifications(TableA.2).

TableA.1Listfor6LabourDivisionshavingASEANCommonCompetencyStandards(source:HandbookofASEANMRAonTourismProfessional(ACCSTP),www.asean.org)

A. FrontOffice1. FrontOfficeManager2. FrontOfficeSupervisor3. Receptionist4. TelephoneOperator5. BellBoy

B. HouseKeeping6. ExecutiveHousekeeper7. LaundryManager8. FloorSupervisor9. LaundryAttendant10. RoomAttendant11. PublicAreaCleaner

C. FoodProduction12. ExecutiveChef13. DemiChef14. CommisChef15. ChefdePartie16. CommisPastry17. Baker18. Butcher

D. FoodandBeverageService19. F&BDirector20. F&BOutletManager21. HeadWaiter22. Bartender23. Waiter

E. TravelAgencies24. GeneralManger25. AssistantGeneralManager26. SeniorTravelConsultant27. TravelConsultant

F. TourOperation28. ProductManager29. SalesandMarketingManager30. CreditManager31. TicketingManager32. TourManager33. TourGuide


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TableA.2Qualification’slevelanditsgenericdescriptor(www.asean.org)

Level5-AdvancedDiploma Sophisticated,broadandspecialisedcompetencewith seniormanagementskills

Level3-CertificateIV GreatertechnicalcompetencewithsupervisoryskillsLevel2-CertificateIII Broadrangeofskillsinmorevariedcontextandteam leader

responsibilitiesLevel1-CertificateII Basic,routineskillsinadefinedcontext

Successively,ASEANTourismCurriculumandQualificationsFrameworkarebeingdevelopedfor52qualificationsacross6labordivisions.

TableA.3CurriculumDevelopmentonTourism(source:www.asean.org)

LaborDivisions CertificateII CertificateIII CertificateIV Diploma AdvancedDiploma

Sub-Total

Food&Beverage 2 2 3 1 1 9FoodProduction 2 3 3 1 1 10FrontOffice 1 1 1 1 1 5Housekeeping 1 1 1 1 1 5TourOperation 2 3 4 2 1 12TravelAgencies 3 3 3 1 1 11

TOTAL 52

Withthosestructuredqualifications,formaleducationandtrainingproviders inallASEANmemberstatesareexpectedtoimprovetheirrelevance.IntheIndonesianhighereducation,uptoJune2015,194degreeprogramsintourismarecurrentlyoffered,asshowninthefollowingTableA.4.

ThehighestnumberofdegreeprogramofferedintourismisD3Hospitality(FigureA.1).

Level4-Diploma Specialisedcompetencewithmanagerialskills


98

IN

INDUSTRY

TourismSectors KKNI

Certificate IV C & G Competencies (13 + 6 + 2 units)

+ F Competencies (10 + 4 + 4 units)

Certificate III C & G Competencies (13 + 6 units)

+ F Competencies (10 + 4 units)

Advanced Diploma C & G Competencies (13 + 6 + 2 + 1 units)

+ F Competencies (10 + 4 + 4 +6 +5 units)

Diploma C & G Competencies (13 + 6 + 2 +1 units)

+ F Competencies (10 + 4 + 4 +6 units)

Certificate II C & G Competencies (13 units)

+ F Competencies (10 units)

TRAININGSECTORS&OTHERFORMSOF

NONFORMALEDUCATTION

S3(2)

S1 S2(4)(17)

D4(24)

D3(147)

FigureA.1:Numberofstudyprogramsbasedonqualification’slevels

Inadditionto194formaldegrees,therearemanyshortcycletrainingprogramsunderMoMandMoEC.

As stated in theaforementioned table, therearemanysimilar programs leading to a specific qualificationdelivered under various names. On the other hand,there are 90 higher education institutions deliver D3Perhotelan (Bachelor of Hospitality) with variouscurriculum. Some focuses in hotel operations, some inculinaryart,andsomeintourandtravelmanagement.

There are no learning outcomes being described for each study program in tourism sector, thatmappingwiththesixlabordivisionsagreedinASEANTourismMRAisnotpossible.Intermsofstudyprogram relevancy with the user needs, there is no map that can correlate between highereducationproviderswiththetourismindustries,asillustratedinthefollowingdiagramA.22.Varioustrainingprogramsfacethesameproblemaswell.

HIGHEREDUCATION

Doktor (S3)

Magister (S2)

Sarjana

Diploma4(S1) (D4)

Varietyof

Diploma3

(D3)

FigureA.2.Illustrationofrelevancyproblemintourismhighereducationandtrainingsectors

In these FGDs, participantswere requested to develop strategy to overcome the problemby firstmapping name of study programs towards their targeted learning outcomes and benchmark thetypes, levels, and name of qualifications (degree programs) with international best practices.Describingthe learningoutcomesofeachstudyprogramanddrawingthecorrelationbetweenthelearning outcomes with the required competencies by tourism industries are carried outsubsequently.

The first significant result from the FGDs in Tourism is agreement to reduce 41 types, levels, andnamesofqualificationsinto15,aslistedintableA.5.TheoutputhasbeensubmittedtoDirectorateofLearningandStudentsAffairsassametimeofinterimreportsubmission.


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TableA.5Types,levels,andnamesofqualificationsforstudyprogramsinTourism

No KODE Levels Programs(IndonesianandInternationalTerms)1 6 1 61601 S1 Pariwisata Tourism2 8 1 61601 S2 Pariwisata Tourism3 9 1 61601 S3 Pariwisata Tourism4 6 2 6160101 D4 PengelolaanUsahaRekreasi Sport,Recreation&LeisureManagement5 6 2 6160102 D4 DestinasiPariwisata TourismDestination6 5 2 6160103 D3 Ekowisata Ecotourism7 6 2 61602 D4 PengelolaanPerhotelan HotelManagement/Administration8 5 2 6160201 D3 Perhotelan HotelOperations9 5 2 6160202 D3 DivisiKamar RoomsDivisionOperations10 5 2 6160203 D3 SeniKuliner CulinaryArts11 5 2 6160204 D3 SeniPengolahanPatiseri BakingandPastryArts12 5 2 6160205 D3 TataHidang —FoodandBeverageService13 6 2 61603 D4 UsahaPerjalananWisata TourandTravelBusiness14 5 2 6160301 D3 PerjalananWisata TourandTravelOperations15 6 2 61604 D4 PengelolaanKonvensidanAcara ConventionandEventManagement

Thesecondoutputiscompletionoflearningoutcomesofsixstudyprograms(number8,9,10,11,12,and13listedinTableA.5).

ThethirdresultismappingbetweenlearningoutcomesandMRAlistofcompetencies.Sixstudyprogramsconcludedthemappingassignment,asexplainedinthefollowingtablesA.6.

TableA.6MappingofASEANTourismCompetenciesversusD3TourandTravelOperationsandD4TourandTravelBusiness

CLUSTER1 COMMONCORECOMPETENCIES D3 D4D2.TCC.CL1.01 Workeffectivelywithcustomersandcolleagues v vD2.TCC.CL1.02 Workinasociallydiverseenvironment v vD2.TCC.CL1.03 Implementoccupationalhealthandsafetyprocedures v vD2.TCC.CL1.04 Followsafetyandsecurityprocedures v vD2.TCC.CL1.05 Communicateeffectivelyonthetelephone v D2.TCC.CL1.06 Manageandresolveconflictsituations vD2.TCC.CL1.07 Developandupdatetourismindustryknowledge vD2.TCC.CL1.08 Promoteproductsandservicestocustomers vD2.TCC.CL1.09 Performclericalprocedures v D2.TCC.CL1.10 Accessandretrievecomputer-baseddata v D2.TCC.CL1.11 SpeakEnglishatabasicoperationallevel v vD2.TCC.CL1.12 Processfinancialtransactions v D2.TCC.CL1.13 Usecommonbusinesstoolsandtechnology v vD2.TCC.CL1.14 Performchildprotectiondutiesrelevanttothetourismindustry D2.TCC.CL1.15 PerformbasicFirstAidprocedures v vD2.TCC.CL1.16 Developprotectiveenvironmentsforchildrenintourismdestinations

CLUSTER2 TRAVELAGENCY-TICKETING D3 D4D2.TTA.CL2.01 Accessandinterpretinformation vD2.TTA.CL2.02 Administerabillingandsettlementplan v D2.TTA.CL2.03 Applyadvanceairfarerulesandprocedures v vD2.TTA.CL2.04 Bookandco-ordinatesupplierservices v D2.TTA.CL2.05 Constructandticketanon-airtravelplan v D2.TTA.CL2.06 Constructandticketdomesticairfares v D2.TTA.CL2.07 Constructandticketpromotionalinternationalairfares v D2.TTA.CL2.08 Constructandticketregularinternationalairfares v D2.TTA.CL2.09 Co-ordinatemarketingandpromotionalactivities vD2.TTA.CL2.10 Createpromotionaldisplaystand vD2.TTA.CL2.11 Developandupdatelocalknowledge v v


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D2.TTA.CL2.12 Maintainproductinformationinventory v vD2.TTA.CL2.13 Operateacomputerisedreservationsystem v D2.TTA.CL2.14 Operateanautomatedinformationsystem v vD2.TTA.CL2.15 Producetraveldocumentationonacomputer v vD2.TTA.CL2.16 Preparequotations v D2.TTA.CL2.17 Receiveandprocessareservation v D2.TTA.CL2.18 Sourceandpackagetourismproductsandservices vD2.TTA.CL2.19 Sourceandprovidedestinationinformationandadvice v

CLUSTER3 TOURGUIDESERVICES D3 D4D2.TTG.CL3.01 Workasatourguide v D2.TTG.CL3.02 Allocatetourresources vD2.TTG.CL3.03 Conductinterpretiveactivitiesinthefield v D2.TTG.CL3.04 Conductpre-departurechecks v D2.TTG.CL3.05 Co-ordinateandoperateaday-tour(orshortexcursions) v D2.TTG.CL3.06 Demonstrate/observerespectforindigenouscultures v D2.TTG.CL3.07 Developandco-ordinateappropriateculturaltourismactivity v D2.TTG.CL3.08 Developandmaintainlocalgeneralknowledge v vD2.TTG.CL3.09 Drivevarioustypesofservicevehicles D2.TTG.CL3.10 Establishandmaintainasafeandsecureworkplace vD2.TTG.CL3.11 Establishandmaintainsafetouringconditions v D2.TTG.CL3.12 Leadtourgroupsinaresponsiblemanner v D2.TTG.CL3.13 Maintaincontactswithhandlingagents v D2.TTG.CL3.14 Manageandfacilitateanextendedtourexperience v D2.TTG.CL3.15 Plan,developandevaluateinterpretiveactivities v D2.TTG.CL3.16 Plan,trialandimplementminimalimpactoperations vD2.TTG.CL3.17 Prepareandpresenttourcommentaries v D2.TTG.CL3.18 Providearrivalanddepartureassistance v D2.TTG.CL3.19 Researchandshareinformationonindigenouscultures v

CLUSTER4 TOUROPERATIONS D3 D4D2.TTO.CL4.01 Allocatetourresources v D2.TTO.CL4.02 Carryoutvehiclemaintenanceorminorrepairs D2.TTO.CL4.03 Cleanpremisesandequipment v D2.TTO.CL4.04 Conductpre-departurechecks v D2.TTO.CL4.05 Demonstrateclimbingskillsatabasiclevel D2.TTO.CL4.06 Developandimplementoperationalplans v D2.TTO.CL4.07 Developinterpretivecontentforeco-tourismactivities v D2.TTO.CL4.08 Drivelargetourbusesorcoaches D2.TTO.CL4.09 Manageandexecuteadetailedtouritinerary v D2.TTO.CL4.10 Complywithworkplacehygieneprocedures v D2.TTO.CL4.11 Manageoperationalrisk v D2.TTO.CL4.12 Monitortourismoperations D2.TTO.CL4.13 Maintaintourismvehiclesinsafeandcleanoperational D2.TTO.CL4.14 Operateandmaintaina4WDvehicleinsafeworking D2.TTO.CL4.15 Operatetoursinremoteareas D2.TTO.CL4.16 Setupandoperateacampsite D2.TTO.CL4.17 Planandimplementpackagesales vD2.TTO.CL4.18 Providecampsitecatering

CLUSTER5 CUSTOMERSERVICE,SALESANDMARKETING D4D2.TCS.CL5.01 Applypointofsalehandlingtechniques vD2.TCS.CL5.02 Assessandplantourismopportunitiesforlocalcommunities D2.TCS.CL5.03 Buildandmaintainateamapproachtoservicedelivery vD2.TCS.CL5.04 Developandupdatetourismindustryknowledge vD2.TCS.CL5.05 Constructandapplytourismproductresearch v


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D2.TCS.CL5.06 Co-ordinatemarketingactivities vD2.TCS.CL5.07 Co-ordinateproductionofbrochuresandmarketingmaterials v D2.TCS.CL5.08 Create,implementandevaluatestrategicproductinitiatives vD2.TCS.CL5.09 Developandmonitorculturallyappropriatetourismactivity v D2.TCS.CL5.10 Developconferenceprograms v D2.TCS.CL5.11 Develophostcommunityawarenessprograms D2.TCS.CL5.12 Develop,implementandevaluateregionaltourismplans D2.TCS.CL5.13 Develop,implementandevaluatesponsorshipplans vD2.TCS.CL5.14 Develop,manageandevaluatelocalmarketingstrategies vD2.TCS.CL5.15 Develop/monitorecologicallysustainabletourismoperations vD2.TCS.CL5.16 Establishandmaintainabusinessrelationship vD2.TCS.CL5.17 Implement/monitoreventmanagementsystemsandprocedures vD2.TCS.CL5.18 Managequalitycustomerservice vD2.TCS.CL5.19 Planandimplementsalesactivities vD2.TCS.CL5.20 Prepareanddeliverpresentations v D2.TCS.CL5.21 Prepareandsubmitquotations v vD2.TCS.CL5.22 Promotetourismproductsandservices vD2.TCS.CL5.23 Sourceandpackagetourismproductsandservice v

CLUSTER6 GENERALADMINISTRATION D3 D4D2.TGA.CL6.01 Createandupdateatourismwebsite D2.TGA.CL6.02 Designcomputerdocuments,reportsandworksheets D2.TGA.CL6.03 Manageandmonitortourismprogramsandprojects D2.TGA.CL6.04 Manage,controlandorderstock D2.TGA.CL6.05 Minimizetheft D2.TGA.CL6.06 Operateanautomatedinformationsystem vD2.TGA.CL6.07 Organiseandcoordinatemeetings v D2.TGA.CL6.08 Planandestablishsystemsandprocedures vD2.TGA.CL6.09 Preparebusinessdocuments v D2.TGA.CL6.10 Producedocumentsonacomputer v D2.TGA.CL6.11 Receiveandstorestock D2.TGA.CL6.12 Sourceandpresentinformation vD2.TGA.CL6.13 Developandimplementoperationalpolicies v

CLUSTER7 FINANCIALADMINISTRATION D3 D4D2.TFA.CL7.01 Auditfinancialprocedures D2.TFA.CL7.02 Interpretfinancialstatementsandreports D2.TFA.CL7.03 Maintainasecurefinancialaccountingsystem D2.TFA.CL7.04 Managecontractualagreements/commitments vD2.TFA.CL7.05 Manageandcontroloperationalcosts v vD2.TFA.CL7.06 Preparefinancialstatements

v 2CLUSTER8 HUMANRESOURCEDEVELOPMENT D3 D4

D2.TRD.CL8.01 Analysecompetencyrequirements vD2.TRD.CL8.02 Coachothersinjobskills v D2.TRD.CL8.03 Conductanindividualperformanceassessment vD2.TRD.CL8.04 Delivertrainingsessions vD2.TRD.CL8.05 Designandestablishatrainingsystem D2.TRD.CL8.06 Designtrainingcourses D2.TRD.CL8.07 Developassessmenttoolsandprocedures D2.TRD.CL8.08 Establishaperformanceassessmentsystem D2.TRD.CL8.09 Implementastaffperformanceassessmentplan D2.TRD.CL8.10 Implementatraininganddevelopmentprogram vD2.TRD.CL8.11 Monitorandevaluateatraininganddevelopmentprogram vD2.TRD.CL8.12 Planandpromoteatrainingprogram


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D2.TRD.CL8.13 Reviewperformanceassessmentoutcomes vD2.TRD.CL8.14 Reviewtrainingoutcomes vD2.TRD.CL8.15 Trainselectedsmallgroups v v 8

CLUSTER9 RESOURCEMANAGEMENT D3 D4D2.TRM.CL9.01 Applyindustrystandardstoteamsupervision D2.TRM.CL9.02 Developandimplementabusinessplan vD2.TRM.CL9.03 Developandmanagebusinessstrategies vD2.TRM.CL9.04 Leadandmanageadevelopmentteam D2.TRM.CL9.05 Leadandmanagepeople vD2.TRM.CL9.06 Maintainlegalknowledgerequiredforbusinesscompliance vD2.TRM.CL9.07 Manageandpurchasestocks D2.TRM.CL9.08 Managefinancialoperationswithinabudget v vD2.TRM.CL9.09 Manageinnovativetourismprojectsandprograms D2.TRM.CL9.10 Managephysicalassetsandinfrastructure D2.TRM.CL9.11 Managequalitycustomerservice vD2.TRM.CL9.12 Manageworkplacediversity D2.TRM.CL9.13 Manageandmaintaineffectiveworkplacerelations vD2.TRM.CL9.14 Manageandmaintainanoperationalcomputersystem v vD2.TRM.CL9.15 Monitorstaffperformance vD2.TRM.CL9.16 Monitorworkoperations vD2.TRM.CL9.17 Prepareandmonitorbudgets v vD2.TRM.CL9.18 Providementoringsupporttobusinesscolleagues D2.TRM.CL9.19 Recruitandselectstaff D2.TRM.CL9.20 Rosterstaff v

CLUSTER10 ENGLISHLANGUAGEPROFICIENCY D3 D4D2.LAN.CL10.01 ReadandwriteEnglishatabasicoperational v D2.LAN.CL10.02 UseEnglishatasupervisorylevel vD2.LAN.CL10.03 ReadandwriteEnglishatasupervisorylevel vD2.LAN.CL10.04 ReadandwriteEnglishatanadvancedlevel v

As listed in the Table A.6 there are 155 competencies for job titles in Travel Agencies and TourOperation.SeventyfiveofcompetencyunitsarecoveredbyD3TourandTravelOperationsandsixtytwoof competencyunits areproduced inD4 Tour and Travel Business. There are 23 competencyunitswhicharenotcoveredbythesetwostudyprograms.Mostofthemareinthemanagerialareaswhichcanbeacquiredaftergraduatesgettingmoreexperienceinundertakingthejob.

TableA.7listedcorrelationoflearningoutcomesofD4TourandTravelBusinesswith62competencyunits.

TableA.7CorrelationofASEANTourismCompetenciesversuslearningoutcomesofD3TourandTravelOperationsandD4TourandTravelBusiness

No. LearningOutcomes Code

1 Mampumerancang,menyusun,mengimplementasikandanmengevaluasiberbagai D2.TCC.CL1.04

produkdanlayananusahaperjalananwisatadenganmetodedanteknikpengembanganprodukdanlayanansehinggamenghasilkanprodukwisatayang

D2.TCC.CL1.07

bernilaijual. D2.TCC.CL1.15 D2.TTA.CL2.03

D2.TTA.CL2.09

D2.TTA.CL2.10D2.TTA.CL2.14

D2.TTA.CL2.18


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D2.TTA.CL2.19

D2.TTG.CL3.02D2.TTG.CL3.10

D2.TTG.CL3.1912

2 Mampumengelolabisnisperjalananwisatadenganmenerapkansistemtatakelola D2.TCC.CL1.01

manajemen. D2.TCC.CL1.02

D2.TCC.CL1.03

D2.TCC.CL1.06

D2.TRM.CL9.02

D2.TRM.CL9.03

D2.TRM.CL9.05

D2.TRM.CL9.06

D2.TRM.CL9.08

D2.TRM.CL9.13

D2.TRM.CL9.14

D2.TRM.CL9.15

D2.TRM.CL9.16

D2.TRM.CL9.17

143 Mampumengaksesdanmenjelaskaninformasimengenaiprodukdanlayananusaha

perjalananwisatauntukmendukungkegiatanpenjualanprodukwisataD2.TTO.CL4.17D2.TCS.CL5.22D2.TCS.CL5.23D2.TRM.CL9.11

44 Mampusecaramandirimenghasilkanrencanausahaperjalananwisatayangkreatif, D2.TTA.CL2.01

inovatif,terpercaya,sertamemberikanrasaamandannyaman D2.TTA.CL2.11

D2.TTA.CL2.12

D2.TTG.CL3.08

45 Mampumenganalisadanmengembangkanstrategipemasarandalampenjualan

produkdanlayananusahaperjalananwisata.D2.TCC.CL1.08D2.TCS.CL5.05D2.TCS.CL5.06D2.TCS.CL5.08D2.TCS.CL5.14D2.TCS.CL5.15

6

6 Memilikikemampuanmembangunjejaringkerjasamadenganpihakyangberkaitan D2.TCS.CL5.16

denganusahaperjalananwisata D2.TFA.CL7.04

27 Memilikikemampuanmenghitunghargapaketperjalananwisatasesuaidengan

kebutuhan.D2.TTA.CL2.18D2.TCS.CL5.21

28 Mampumelaksanakanteknikpenjualansecaralangsungsertamemberikanberbagai D2.TCS.CL5.01

alternatifprodukdanlayananusahaperjalananwisatasesuaidengankebutuhanpelanggan.

D2.TCS.CL5.19

3D2.TCS.CL5.18


104

9 Mampumemahamiaturan-aturanpengurusandokumenperjalananyangberlakudanmenuangkannyadalamperencanaansertamembangunkesadaranpelanggandalamprosespengurusandokumenperjalanan

10 Memilikikemampuanmengevaluasipaketperjalananwisatasesuaidengankenyamananpelanggan

11 Memilikikemampuanmenghitungbiayaproduksidankelabaan,menghitungRAB,mendapatkanmodalKUK,melakukanpemasaranberbasisteknologiinformasidanevaluasidiridalamusahaperjalananwisata

D2.TTA.CL2.03

D2.TTG.CL3.16

D2.TCC.CL1.13D2.TFA.CL7.05D2.TRM.CL9.08

12 MemilikikemampuanberkomunikasidalambahasaInggrissecaralisandantulisan

padatingkatmenengahatausetaradenganTOEFL350/TOEIC400dansatubahasaasingpilihan(Mandarin/Perancis/Jepang/Jerman).

D2.TCC.CL1.11D2.LAN.CL10.02D2.LAN.CL10.03

4

Asthispoint,otherstudyprograms’learningoutcomesandtheircompetencymapsarederived.Attheendof theyear, it isexpected thatcomprehensivemapofeducationproviders,qualifications,andcompetenciesintourismsectorsiscompleted.

113D2.LAN.CL10.0413 Mampumengaplikasikansisteminformasidanteknologiterkinidanakuratyangterkait

denganusahaperjalananwisata

14 Mampumemahamidanmenginformasikanaturan-aturanmaskapaipenerbangandanmodatransportasilainnyayangterkinidanakuratsecaradetail.

15 Mampuberkomunikasisecaraefektifdalammenyampaikanprodukdanlayananusahaperjalananwisatasehinggadapatmemenuhikebutuhansertakenyamananpelanggan

D2.TGA.CL6.061

D2.TTA.CL2.151

D2.TCS.CL5.03D2.TCS.CL5.04D2.TCS.CL5.18

3


105

B. NURSINGSECTORMostof higher educationprogram innursing are conducted in the areaof vocational, profession,andspecialist.Masteranddoctoral inNursingarevery limitedandarecateredtoyieldeducators.The Nurse Anesthesiology is conducted at Diploma 4 resulting skilled professional at lQF level 6,whilst the Maternity Nursing, Medical and Surgical Nursing, Pediatric Nursing, and PsychiatricNursingaredeliveredasSpecialistprograms,yieldingskilledprofessionalatlQFlevel8.

ThemajorityofnursingdegreeprogramsiscateredasDiploma3andProfession,producingskilledprofessionalatIQFlevel5and7.About20.000graduatesDiploma3areproducedeachyearby489institutionsacrossthecountry,asillustratedinthesidediagram:

Close collaborations between the Association of Nursing Diploma III (AIPDIKI) as association ofhighereducationinstitutionsandAssociationofProfessionalNurseaswellaswiththeMoHasusersproducemutual understandingon level competencies requiredbyhealth sectors. Three levels i.e.Diploma 3, Profession, and Specialist are recognized as relevant degree program to yield nurseassistant,nurse,aswellasnursespecialist,respectively.Thisdemandandsupplymatchisdescribedbymapping the learningoutcomesof these threedegreeprogramswith the relevant competencystandards(enclosed).

From the first FGD, the significantproblem innursing sectors isdisparityof educationquality, i.e.about20%institutionsdeliveredinsufficientqualityprograms.Lackofqualifiedlecturers,facilities,as well as sanctions to unperformed study programs are identified. Table B.1 shows data ofgraduates passing the competency exit exam in June 2015. Passing percentageof graduates fromregionVIIandIXisreallyalarming,consideringthatthoseregionsproducequitelarge.

FigureB.1SpreadofhighereducationinstitutionsdeliveringD3Nursing

Regional I 65

NAD & Sumut GOOD: 58

Regional II Bengkulu, Sumsel, Lampung, Bangka Belitung GOOD: 30

33

Regional III 46

DKI Jakarta GOOD: 35

Regional IV 57

Jawa Barat dan Banten GOOD: 46

Regional V 65

D.I. Yogyakarta & Jawa Tengah GOOD: 58

AIPDiKI 489

Institutions Regional VI

50 Jawa Timur GOOD: 50

Regional VII 16

Bali, NTB, NTT GOOD: 16

Regional VIII Sulut, Gorontalo, Sulteng, Sul Tenggara, Sulbar, Sulsel GOOD: 32

64

Regional IX 36 Sumbar, Riau, Kepulauan Riau, Jambi GOOD: 35

Regional X 29

Kalbar, Kalteng, Kalsel, Kaltim GOOD: 24

Regional XI 17

Maluku, Maluku Utara, Papua, Papua Barat GOOD: 17


106

9

8

7

6

NurseAssistant

5

Diploma3(D3)

4

3

INDUSTRYHIGHER

EDUCATION

QAsystem

QAsystem

NursingSectors

TableB.1PercentageofNersgraduatespassedcompetencyexitexamatJune2015

(source:AIPNI)

XIII

X 53

IX 27

VIII 46

VII 39

VI 52

V 74

IV 52

III 70

II 35

I 34

0 20 40 60 80

Based on such condition, quality of education is identified as the most significant problem asillustrated in the FigureB.2.Despite the closed relevancybetween industry andhighereducation,thequalityassurancethatcanassessachievementofqualificationshasnotbeeendevelopedyet.

Figure B.2 Closed relevancy between user’sneeds andproviders, but lackingQA systemtoassuredsuchrelevancy

The first step towards improving the quality of education is to synchronize education providersundermanagementofMoHandmanagementofMoRTHE.Previouslythereweretwodifferentsetsof curriculum implemented. Then,DLSA through HPEQ project fromMoEC (currently is MoRTHE),TrainingCenter forHealthWorkforce,DirectorateofNursing–MoH,DirectorateofMotherhood–MoH,DirectorateofChildhood–MoH,PPNI,AIPNI,andAIPDKIachievedagreementtoonestandardoflearningoutcomesandimplementingonegenericsetofcurriculum.

Both parties (providers and users) agree on the qualification levels; though the quality assurancethat canassess achievementofqualificationshasnotbeendeveloped yet. Then second step is toregisterthe nursing sector to the Independent Accreditation Agency (LAM) for Health Sector.However, thecurrent model of quality assurance is still focus on assessing institutions’infrastructureswithlittleemphasisonwhetherornottheuniversitiesadheredtothenational

Region #HEI Participants %PassI 8 485 33.61II 11 413 34.62III 10 546 70.15IV 24 780 52.44V 9 235 74.47VI 18 825 52.36VII 27 1856 39.49VIII 7 549 46.45IX 25 2097 27.32X 9 561 53.48XI 6 463 42.98XIII 4 188 30.85StateHEIs 18 963 76.74

StateHEI 77

31

XI 43


107

quality assurance standards, particularly the targeted learning outcomes. The diagram belowillustratesthebasisforshiftingtheQAsystemtowardsqualifications.

FigureB.3ImprovementofQAsystemfromprocessandoutputbasedtooutcomebasedqualityassurance.

DuringthethirdFGD,therewasanotherproblemraisedbyMoRTHEandMoHregardingtheneedtoupgradeat least 41,085public servantnurses (sourcedata:BKN, 04052015)with SPK, SMK, SMA,MA,D1,andD2diplomatohaveaD3diplomabytheendof2016.Thisneedarisesfromthenewregulation stipulatedbyMinistryofHealth stating that all healthworkers should at least haveD3degree.The41,085personwillbequadrupledwhencountingnursingstaffsatprivatehospitals.

FigureB.3WorkingplaceandexpectedrelevantexperiencesownedbyRPLperticipant

ThereforetheagendainthelastnursingFGDwasaddedwithdiscussiononRPLstrategy.Currentlythosenurseshavealreadybeenworking ina specificcareunits foryearsas shown indiagramB.4suchthattheyhavespecificcompetencesontopofgenericcompetencesownbyfreshgraduatesofD3 Nursing. Due to the scale of volume, the strategy should be directed to handle massive RPLparticipants. Discussionwith DGLSA pointed to the need to conduct a competency exit exam (UjiKompetensi)atD3levelforallparticipantsaspreandpostRPL.MinistrieswouldliketohaveagapcompetenciesdiagnosefromthepreRPLandrealachievementafterRPLfromthepostRPL(FigureB.5).

InternalQualityAssurance

NationalQualityAssurance

System

ExternalQualityAssurance

Curricula

implementations

Achievementofstudyprogramoutcomes

STUDYPROGRAMOUTCOMESBASEDONNATIONAL

REQUIREMENT

Diploma-III

RPL

or Diploma II

or Diploma I

SMK/SMA/MA/SPK

Experiences&Competencies

1 Outpatientcare2 Inpatientcare3 Emergencycare

4 OperatingRoom

5 Surgicalcare6 Maternitycare

7 Pediatriccare

8 InfectiousDiseasescare

9 Hemodialysiscare

10 Communitycare

11 Elderlycare

12 Cardiaccare

13 Pulmonarycare

14 Musculoskeletalcare

15 Palliativecare


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D3 Competencies

Exit Exams D3 Competencies

Exit Exams

Generic competences

Specific competencies as based for assessment

RPL process

Registered Nurse assistants having D3 Diploma with specific competencies

FigureB.5RPLstrategyforNurseAssistantforgainingD3Diploma

Theassessmentandcreditexemptionwillbebasedonworkingexperiences(specificcompetencies)atcurrentoccupation.Therewillbe threecourseswillbegiven forallparticipantsandwillnotbeexempted, i.e.Regulation in thenursingsector,Codeof Ethics,and latestdevelopmentofnursingsciences, technology, and care. The awarded Diploma 3 will be accompanied by a diplomasupplement stated that the participant having specific competencies for working only on specifictypesofcarerelevanttotheirexperiences.


109

C. ACCOUNTINGSECTORAccountingandManagementarethetwomostfavoritedegreeprogramsinbusinesscluster,bothinacademicandvocationalstreams.Attheendof2013,therewere786and578studyprogramsinS1Management and S1 Accounting respectively. The numbers is also held for vocational. D3Accounting reaches 474 study programs whilst D3 Management is up to540 study programs,consistingofvariousspecificmanagementsectors,asillustratedinthefollowingdiagrams:

900

800 786

700

600 578

500

400

300 273

227

200

108 100

45 12 5 11 5

0 Management Accounting Information systems Business administratio

FigureC.1Numberofbusinessstudyprograminacademicstreams

n

500 474 450 400 350 300 250 200 150 129 112 100 100 73 60 55 50 11

0 FigureC.2NumberofD3studyprograminBusiness

After2013,inadditiontocommonD3,S1,S2,andS3degreeprograms,thereareothersaccountingeducation providers at D1, D2, and D4 levels. In non-formal educations, there were at least twolevels trainings in this area, catered byMoEC.Withmany levels of educations, providers both atMoRTHE,MoECaswellasMoMTtriedtostrengthentheirexistencebyderivingjobtitleaccordingly.Thefollowingtableshowsnamesofjobtitleswhicharesuitedtotheproviders’needs.

TableC.1.NationalStandardonWorkCompetences(SKKNI)forvocationalgraduatesinAccountingsector.

Academic Vocational2 SMK JuniorAccountingTechnician3 D1 PratamaAccountingTechnician4 D2 YoungAccountingTechnician5 D3 MiddleAccountingTechnician6 S1 D4 ExpertAccountingTechnician

TheSKKNIaswellas jobtitlesaremadeuptojustifytheexistenceofvariousvocationaleducationlevelsinaccountingsector.Howevertheestablishmentseemslackingofdemandanalysesfromuserside.Discussionwithcorporateexecutivesandgovernmentrepresentativesdisclosedthattheyarenot aware of the existence of various vocational education levels and various job titles based onSKKNI.MostofusershadD3andS1orS1diplomas,suchthattheyonlyplacebothdegrees intherecruitmentsystem.BothofsuccessfulD3andS1candidatesareplacedinthesameentrylevelandundertakingthesameassignment.SuchconditionrevealsthatD3degreemightbeactuallysufficientfor entry level. The existence of abundant S1 graduates ready entering job placeswith the samesalary and responsibility with D3 provides recruiters with wider selections. The condition clearlyshowsthatdemandanalyseswerenotproperlycarriedoutbytheproviders.

Thepresenceofvariousaccountingeducationswasexacerbatedbyunclearlearningoutcomesthatdifferentiateamongthem(seeenclosureC1).Thereisnoclearcutonworkingcompetencesaswellas knowledge comprehension among graduates from different levels. In enclosure C1, knowledgecomprehension and working competence as part of SMK’s and Training’s learning outcomes aremorecomprehensivethanthehigherlevelprogram.GraduatesfromSMK(level2IQF)havesimilarcompetencieswithD3graduates(level5IQF).TheTableC1(enclosure)also showsdifficultiesofS2


110

ACCOUNTINGsector

and S3 providers to outline their graduate learning outcomes. Demonstration of knowledge andskillsthatisatthemostadvanced,specializedlevel,andatthefrontierofafieldthatcouldresultinthecreationofnewknowledgeorpracticeisverydifficult.Theresearchesatmasterordoctorallevelareverynarrowlytoyieldthedevelopmentandtestingofnewtheoriesandnewsolutionstoresolvecomplexorabstractissuessincemostofresearchfocusesonvariouscasestudies.

PROVIDER EMPLOYER

FigureC.3RelevancyprobleminAccountingEducationSectorsAttheworkshop,highervocationaleducationprovidersacrossthecountrystrugglingtomakesuchdistinction even though they tried to benchmark with international standard of accountingeducationprovidedbytheInternationalFederationofAccountants(IFAC).Finally,thepresenceofD4programaddingupanotherburdentothesystemsinceitisatthesameIQFlevelandclearlyshowsthatprovidersdidnottakethedemandanalysesincateringsuchprogram.

FromtwoFGDsandaworkshop,theidentifiedproblemscanbeillustratedinthefigureC.3.

To solve this problem, intensive discussion among education providers with their relevantstakeholders were conducted. The main target of those discussions is to solicit inputs fromstakeholdersinregardtorolesofgraduateswithdifferenteducationbackgroundandtoanalyzetheimportanceofconductingD4accounting.Theaforementionedstrategywasconductedparallelwithmappingcompetenciesamongvariouseducationtypesandlevels.

TherearethreeresultsresultedinFGDs.

Thefirstisbetterpictureofskilledlabordemandbyindustriesasfollows:

a) For industries,themostsignificant levelsofqualificationsareprofessionalaccountantwithcertainprofessionalcertification(CertifiedAccountant)andAccountingTechnician.

b) Fromeducationsector,professionalaccountantsareyielded fromaccountingeducationatlevel7IQF.TheaccountingtechniciancanberesultedfromD3(level5IQF)andS1(level6IQF).Herein,differencesofD3andS1aresituatedinthesizeofassignmentaswellaslevelofresponsibilityandautonomy.

c) SMK(level2IQF)isstillneededforoperatorresponsibleinadministeringdata,especiallyinsmalltomediumbusinessentity.

FGDs with large company such as Ernst Young pointed that in the beginning of recruitmentprocesses, employers expect to see strong communication skills, numeracy, and team player.However, after two years of working, much higher technical competence, are highly valued byemployers.(Source:JobOutlook2015-TheNationalAssociationofCollegesandEmployers(NACE)).

DoctorS3 9

MasterS2 8 Lecturer

Profession 7

SarjanaS1 Diploma4 6 Professionalaccountant

Diploma3 5

Diploma2 4

Diploma1 3

AccountingTechnician

2SMK

TRAINING

SECT

OR

ANDOT

HERFO

RMSO

FNO

NFO

RMALED

UCAT

ION


111

ThisresultisinaccordwithcompetencystudiescarriedoutbyKaplan(GraduateRecruitmentReport:EmployerPerspectives,2013)

Skillscompetenciesrequiredatrecruitmentstage Top3skillsrequiredafter2yearsworking

FigureC.4Requiredskillsbyemployer(source:PresentedbyMr.RuddyKoesnadiattheSeminar:AccountantinAEC2015,EmpoweringAccountingEducationAcrossAsean22April2015

Fromthepointofviewof thestakeholders,candidatesmostly failedat recruitmentprocess in theareaof:

• Technicalquestions(eg:AccountingStandards,Auditing,etc.)• Failtorespondtobehavioralquestions• Couldnotexpresshimselfclearly• Inabilitytocreatesummaryreport• Englishproficiency

Then, the secondoutput of these FGDs is improvement of learning outcomes descriptions by allrelevantstudyprograms.Theimprovementprocessesarestillundergoing.TwodraftsdepictabetterdescriptionoflearningoutcomesinaccountingeducationsectorarelearningoutcomesofD3andS1(seeEnclosureC2andC4).ThelearningoutcomesofD3referredtoCertifiedAccountingTechnicians(CAT) standards, International Education Standard, proficiency – Foundationwhilst S1 referred totheInternationalFederationofAccountants(IFAC).

The emerging ofD4 yielding a professional bachelor in accountingwas intensively debated in theFGDs. A range of pro and contra arguments were discussed. Finally, forum agreed on three D4programasfollows:PublicSector,SyariahFinance,andTaxAccounting.ThisagreementcontributestothethirdoutputofFGDs.

FigureC.5.Publicsectoraccountingcontribution2000-2015(Source:Dr.AriefTriHardiyanto,Ak.,MBA,CMA,CCSA,CA.,PublicSectorAccountantCompartment,IndonesianInstituteofAccountant)

20002000-2003 2003-20062006-20092009-2011 2011-2014 2014-2016

Established

-DraftGovernmentAccountingStandard- JournalofPublicSectorAccounting

GuidanceforCampaignFundReporting(GeneralElection2004)

- DialogueonFinancialStateManagement- RegionalPublicSectorConference

CertificationonGovernmentAccountingExpert

GuidanceforVillageAccounting


112

Theneedsofpublicaccountingtechnicianisillustratedthroughthegrowingcontributionfrompublicsectoraccountantattheperiod2000-2015(FigureC.5)

Listofspecificcompetenciesfortheprofessionalbachelorinpublicsectorisasfollows:

• be able to manage state/regional/public fund/budget Public Financial Management (forCentralandLG)

• beabletopreparefinancialstatement• be able to audit in public sector (including: Government, Public Hospital, and Public

UniversityAccounting)• beabletoimplementgoodgovernanceandcleangovernment(GovernmentInternalControl

System,PublicAdministration,GovernmentSystem,PublicSectorManagement,andGoodGovernmentGovernance)

Demand on specific accounting for handling Syariah Financial management is obvious, sinceIndonesiahasthelargestMoslempopulationintheworld.MoslemsocietyshowsgrowingneedstoimplementSyariaheconomy.

DiagramC.5showsdemandsofamorespecificaccountingtechnicianduetoexpansionofcorporatelinesofbusiness.Themostsignificantdemandisaccountingfortaxpurposes.Thelearningoutcomesoftaxaccountingisalsoresulted(seeenclosureC.3).


AdvisoryPerformanceImprovementRiskIT

Tax AboutOurGlobalTaxServicesCountryTaxAdvisoryCorporateServicesCrossBorderTaxAdvisoryGlobalTradeGlobalComplianceandReportingHumanCapitalLawPrivateClientServicesTaxAccountingTaxPerformanceAdvisoryTaxPolicyandControversyTransactionTaxTransferPricingandOperatingModelEffectivenessVAT,GSTandOtherSalesTaxes

Transactions Assurance SpecialtyServicesLeadAdvisory AboutAssuranceServices ChinaOverseasInvestmentNetworkRestructuring AccountingComplianceandReporting ClimateChangeandSustainabilityServicesDivestitureAdvisoryServices ClimateChangeandSustainabilityServices FrenchBusinessNetworkOperationalTransactionServices FinancialAccountingAdvisoryServices GlobalBusinessNetworkStrategyServices FinancialStatementAudit JapanBusinessServicesTransactionSupport FraudInvestigation&DisputeServicesTransactionTaxValuation&BusinessModelling

DiagramC.5.Enrst&YoungLi

KoreaBusinessServicesneofBusiness(www.ey.com)

113

AnnexB:ReportonRPLconsultationquestionnaires

AnnexB:ReportonRPLconsultationquestionnaire

GeneralInformationInthecourseofFocusDevelopmentGroupdiscussions(seeAnnexAforfulldetails)itbecameevident

thatthelevelofawarenessofRPLwasratherlimitedinmanyareas.Toexplorethisissueasmallscale

questionnaire survey was undertaken. The main objectives were to find out more about general

perceptionsconcerningtheimplementationofboththeIQF(IndonesianQualificationFramework)and

RPL(RecognitionofPriorLearning).

Astimewaslimited,andaslecturersinhighereducationwillbekeypeopletobeinvolvedwithRPL,

theyformedtheprimarytargetgroupforthesurvey.ThequestionnairesweredistributedinJuly2015

withtheassistanceofFDGcontacts. In thefuture, itwouldmaybeuseful toconducta largerscale,

similarexercisetargetedatemployersandpotentialRPLcandidates.

Thequestionnairewasdesignedtoexplorerespondents’perceptionsregardingtheimplementationof

RPL, the potential benefits of RPL for stakeholders and the main challenges they foresaw in its

implementation.A total of 51 respondents participated in thequestionnaire surveyofwhich about

70%ofwhichwerelecturersinhighereducationinstitutions(FigureB1).

FigureB1.Respondent’sdistributionfrom51collectedquestionnaires

Onlyfewrespondentscomefromuniversity(18%)andcompany(4%)representatives,butcollecting1

respondent(2%)fromRPLcandidateis interesting.Althoughthesurveyconsistsofalimitednumber

of respondents andmainly from the higher education sector, the analysis provides an indicator of

respondentsawareness,concernsandneedsinrelationtotheIQFandthepotentialofRPL.

KnowledgeoftheIQFandRPLSinceitwasofficiallypublishedin2012and2013throughthePresidentialDecreeNo.8/2012andthe

MinisterialDecreeNo.73/2013respectively,theIQFprogramhasbeenwidelydisseminatedinvarious

seminarsand focusgroupdiscussionswithin theMoRRHEremit.However,during thedissemination

programs, the RPL aspect, as something new and developmental- especially for higher education-

mighthavenotbeenasthoroughlydiscussed.Thequestionnairethereforesoughttoascertainlevels

ofawarenessofboth.

114


115

It isevidentfromFigureB2that levelsofawarenessofthe IQF inthegroupsurveyedarehigh,with88%definingthemselvesas‘alreadyknowledgeable’.Incontrast,justunderhalf(47%)indicatedthat

theywereknowledgeableaboutRPL.

FigureB2.ComparisonbetweenrespondentswhohavebeenknowledgeableaboutIQFandRPLprograms

In relation with the IQF program, FigureB3 shows that the seminar/workshop activity is themost

preferredmedia (72%) in comparisonwith the TV/Newspaper (11%) andOfficialWebsites (17%). It

implies that seminars/workshops may create effective communication, though it might be more

costly, less area coverage, andmore time consuming.On the other hand, itmay also indicate that

publications through TV/Newspaper and development of IQF/RPL website are inadequate and

urgentlyrequiredforwideningtheaudience.

FigureB3.PreferredmediacommunicationtodisseminatetheIQFprogram

Similarly,forrespondentswhoadmittohavebeenknowledgeabletoIQFandRPL,theacquiredsource

of information were mainly obtained from seminar/workshops (see Figure B4). It is interestinghoweverthatquitehighpercentage(30%)of informationonRPLwastakenfromofficialwebsitesof

theMoRTHE.


116

FigureB4.AcquiredsourceofinformationforIQFandRPLprograms

Inaddition,almostallrespondents(87%)reportedthatnorecognitionofpriorlearningopportunities

are being offered in their institutions (Figure B5). Only 4 respondents mentioned they have such

opportunitiesintheirinstitutions.Thisindicatesthatrecognitionprogramsor‘RPLlikeprograms’are

not embedded in institutions. Although the RPL program has been mentioned in Law on National

EducationSystemin2003(UUNo30/2003), ithasnotyetbeenelaboratedanyfurtherinthehigher

educationcontext.ThesurveyresultsthereforereinforcefindingsfromtheFGDabouttheneedfora

comprehensive,thoroughapproachtosupportthedevelopmentandimplementationofRPL.

FigureB5.ReportedavailabilityofRPLopportunitiesinrespondents’institutions

RequiredcriteriainRPLimplementationprogramThequestionnaire also requested the respondents to rank from thehighest (mostdesirable) to the

lowest (least desirable) 10 statements or criteria concerning steps which they thought might best

supportthefutureimplementationprogramandproceduresforRPL.

ThesestatementsarelistedbelowinTableB1


117

Table-B1StatementsrelatingtoimportanceofdifferentmeasuresinrelationtoimplementationofRPL

Rank Descriptions

#1 ThegovernmentshouldsynchronizeregulationsrelatedRPLfordevelopingand

implementingtheRPLprogram.(Q7-h)

#2

Synchronization between MoRTHE and MOE during the development and

implementation of RPL is required in relating the formal to the informal and non-

formaleducationsystems.(Q7-i)

#3

The body or the education institution that organizes RPL program should hold an

implementing mandate from the regulator (government) to ensure suitable quality

criteriaforRPLimplementation.(Q7-a)

#4

The body or the education institution that organizes RPL program should develop

assessor team at the institutional level to conduct assessment and scoring process

towardsthepriorlearningofapplicants.(Q7-c)

#5 GovernmentshouldstipulatefundsforRPLorganizers.(Q7-f)

#6 TheRPLorganizingbodyshouldownawebsitethateasilyaccessedbyusersor

communityatlarge.(Q7-e)

#7

ThebodyortheeducationinstitutionthatorganizesRPLprogramshouldownandhave

conducted internal quality assurance system recognized by regulator (government),

graduateusersandprofessionalassociations.(Q7-b)

#8 Itisrequiredtodevelopabodyatnationallevelthatprovidesconsultationandcarry

outcoordinationamongRPLorganizersattheinstitutionallevel.(Q7-g)

#9

ThebodyortheeducationinstitutionthatorganizesRPLprogramshouldownhuman

resourcesandmeanstocarryoutthenecessaryassessmentortesttoapplicants.(Q7-

d)

#10 Aqualityassurancesystematnationallevelisrequiredtoconductperiodicassessment

toRPLorganizersasexternalqualityassurance.(Q7-j)

TheQ-7 (QuestionNo.7)was intendedtogaugetherespondent’sperceptionsonRPLdevelopment

criteria in a rank system from 1 to 10 from the most to the least important criteria respectively.

However, due to respondent’smisperception in answering thequestion, the analysis approachwas

adjustedasfollows,

• allvotesineachcriteriawassummed

• thehighestnumberofvotesineachcriteriaisselectedasthefirstrank(#1)followedbythe

nexthighestnumberofvotesasthesecondrank(#2)consecutivelyuntilthetenthrank(#10)

• iftwocriteriahavethesamehighestnumberofvotesthenthecriteriawithhighertotal

numberofvoteswillbeselectedasthehigherrank

Table1revealsanalysisofalltencriteriagiveninQ-7fromwhichrank#1to#10areidentified.Theleft

column designates ten criteria listed in Q-7 with its related ranks in the adjacent column. The

descriptionsofeachcriteriaforrank#1torank#10canbeseeninTableB2.


118

SomeimportantconsiderationsoftherespondentsondevelopmentaspectsofRPLcanbederived

fromTable1asfollows,

• the respondentsmostly concernwith synchronization and associationbetween government

offices (e.g. MOM, MoRTHE) during the RPL development process in order to achieve

appropriateregulationsandproceduresforRPLimplementationprogram(seerank#1and#2)

• therespondentsperceivethatformalmandatetoRPLorganizersisanimportantaspectinRPL

implementationphase(rank#3)

• therespondentsbelievethatRPLimplementingbodiesshouldbewellequippedwithvarious

necessities such as assessor team, government funds, websites, internal quality assurance

system,appropriateassessmentortestequipment(rank#4,#5,#6,#7,#9)

• the respondents agree to establish a coordinating body at national level that orchestrates

differentinstitutions,needsandcommunicationrelatedtoRPLprogram(rank#8and#10)

Table-B2RankanalysisforQ-7(Questionnumber7)

QuestionnaireCriteria

Q-7 Rank 1 2 3 4 5 6 7 8 9 10

a). #3 17 9 11 1 2 1 1 3 3 3

b). #7 14 10 7 6 5 1 1 4 1 2

c). #4 12 11 7 5 2 0 2 8 0 4

d). #9 13 10 10 2 2 2 5 4 0 3

e). #6 18 7 3 1 1 2 1 4 7 7

f). #5 15 9 4 2 1 2 1 4 6 7

g). #8 14 10 5 2 0 6 4 6 4 0

h). #1 27 8 5 3 0 0 0 3 1 4

i). #2 17 16 7 1 1 0 1 2 3 3

j). #10 18 7 6 5 4 2 1 3 0 5

Totalnumberofvotes 165 97 65 28 18 16 17 41 25 38

ForeseenbenefitsofRPLimplementationprogramRespondentswereinvitedtorankaseriesofstatementsinrelationtotheperceivedpossiblebenefits

ofimplementingRPL.ThesearepresentedinTableB3below.

The samemethodological adjustment as to Q-7 is conducted to analyze Q-8. as respondents were

intendedtovalue6(six)benefitsofRPLlistedbythequestionnaireintoaranksystem,fromrank#1

(themostimportant)to#6(theleastimportant).


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TableB3.DescriptionsoffavorablebenefitsofRPLforeseenbytherespondentsinQ-8

Rank Descriptions

#1 Widenaccesstohighereducation

#2 Improvingpublicprivilegeorrecognition

#3 Acceleratingtimeforfurtherstudytolearnersintheformaleducationstream

#4 Acceleratingcareerladderupgradeinworkplaces

#5 Reducingcostofeducation

#6 Other,e.g.Improvelearningmotivationforlearnersinthenon-formaleducation

stream;Acquiringtimeandresourceefficiencyforstudying

TableB3showstheaccumulatednumberofvotesandassociatedrankofquestionnairecriteriagiven

in Q-8, whereas Table B4 describes the most favorable (rank #1) to the least favorable (rank #6)

benefitswhichareforeseenbytherespondents.

TableB4.PotentialbenefitsofimplementingRPL(Q-8)

QuestionnaireCriteriaQ-8 Rank 1 2 3 4 5 6

a). #3 21 13 12 2 2 1

b). #4 12 14 9 6 9 1

c). #2 14 20 4 6 6 1

d). #5 9 16 13 8 5 0

e). #1 24 14 7 4 2 0

f). #6 6 4 1 0 1 2TotalNumber

ofVotes 86 81 46 26 25 5

FigureB6showsthetotalnumbersmentioningeachfactor.Overalltheresponsesindicatethat,

• thepossibilitiestogetwideraccesstohighereducationandpublicrecognitionofprior

learningareperceivedasthemostfavorablebenefitsoftheRPL(rank#1and#2)

• theaccelerationoftimeintheformaleducationandupgradingcareerintheworkplaceaswell

asreductionincostofeducationareforeseenaslessfavorablefactorsoftheRPL

• otherbenefitsofRPLmentionedbysomerespondentssuchasimprovinglearningmotivation,

timeandresourceefficiencyineducationreceivedasmallnumberofvotes


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FigureB6.PerceivedmainbenefitsofRPL:RankorderofthetotalnumberofrespondentsUtilizationofinternationalaccreditationforRPLimplementingbodyAs one important underlying rationale for the implementation of the IQF concerns international

benchmarking andmobility, respondents were asked about the extent to which they also saw the

internationalizationdimensionasbeingofsignificance.

FigureB7showsthatamajorityofrespondents(63%)believeinutilizinginternationalaccreditationto

ensurequalityoftheRPLimplementationprogramandjustunderaquarter(23%)didnotviewthisas

important. From discussions at the Focus development Groups there was some concern about

internationalaccreditationbeingcostly,especiallywhenitisappliedatthelocallevel.

FigureB7.Therespondent’sfeedbackonthenecessitytoutilizeinternationalaccreditationtoRPLimplementingbody

ForeseenchallengesimplementingRPLRespondentswereinvitedtogivetheirviewsonwhattheysawasbeingsomeofthekeychallengesin

implementingRPL.

ThesuggestedchallengeslistedinQ-10wereasfollows,

a) CostforimplementingRPLprogram

b) QualityofhumanresourcesandmeanstocarryoutRPLprogram

c) InadequacyofRPLregulationapparatus


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d) LackofRPLcandidates

e) QualitydisparitybetweenRPLimplementinginstitutions

f) FormandstatusoftheRPLimplementingbody

g) DissimilarityofassessmentsystemandmethodorrecognitionprocedurebetweenRPL

implementinginstitutions

Thefollowingssummarizetherespondents’responses,

• AlmostallrespondentsbelievethatimplementationofRPLprogramwillencounterthe

suggestedchallengesexceptforthepredictedlackofRPLcandidatesinthefuture.

• Morerespondents(55%-Q-10.d)believethatRPLcandidateswillbesubstantialin

comparisonwiththose(45%)whoarepessimisticaboutthenumberofRPLcandidates.

• CarefulconsiderationsshouldbetakenintoaccountduringthedevelopmentofRPLprogram

since themany respondents judge that a number of weaknesses such as quality of human

resources (Q-10.b), quality disparity and dissimilarity assessment systemormethod (Q-10.e

andg)mayoccuramongRPLimplementinginstitutions.

• ConcernsonthecostofRPLandinadequacyofRPLregulationapparatusneedconsiderable

attentioninthedevelopmentofRPLopportunities.


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FigureB8.Respondent’sfeedbackconcerningtheprojectedchallengeslistedinQ-10

ConclusionsOverall, the questionnaire has been successfully conducted and received an acceptable number of

responses for this initial analysis. Nonetheless, a wider audience is strongly recommended- in

particular employers- in order to achieve more rigorous conclusions and recommendations as a

developmentbasisofRPLprogram.

In conclusion, taking account of the limitations outlined above, the findings of the survey, are

suggestiveofthefollowingsteps.

• There is a need for more intensive and extensive dissemination of RPL concepts and targets,

particularlythrougheitherseminarsorworkshops.

• The roles ofGovernment andnational policy are crucial in various aspects of RPL development

and implementation programs. For example, providing synchronized legislation between the

various concerned government institutions and agencies, providing mandates to RPL

implementing bodies, establishing a coordinating body at national level, instigating quality

assuranceatbothnationalandinternationallevels.Inthisrespect,theproposedIQFBoardisan

importantpartofthisprocess.

• AnumberofpotentialbenefitsofRPLareidentified,particularlyinrelationtowideningaccessto

higher education and improving public recognition and status of prior leaning gained from

differentsources.

• InternationalaccreditationisperceivedtobeanimportantfactorinmaintainingqualityoftheRPL

implementation program. For efficiency, this can, and should, be tied into ‘mainstream’ quality

assuranceandqualitycontrolsystemsatnational,regionalandinstitutionallevels.


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• Anumberofconsiderations,inparticular,inadequatelevelsofexperiencepointtotheneedfora

majorhumanresourcedevelopmentprograminordertoaddressimportantissuessuchasquality

disparityandexpertiseinassessment.

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AnnexC:ReportonstudytriptoHongKong

AnnexC:ReportonstudytriptoHongKong24-28 November2014

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IntroductionTheHongKongQualificationFrameworkwaslaunchedtopromotelifelonglearningandenhancethe

workforce competitiveness, by providing a seven-level hierarchy in a unitary system covering

qualificationsintheacademic,vocationalandcontinuingeducationsectors.TheimplementationofQF

iscarriedoutbytheHongKongQualificationFrameworkSecretariat,whichwasestablishedin2008,

undertheEducationBureauoftheGovernmentoftheHongKongSpecialAdministrativeRegion.

InadditiontotheQF,theIndonesiandelegationalsovisitedtheHongKongCouncilforAccreditation

ofAcademicandVocationalQualifications (HKCAAVQ).TheHKCAAVQwasestablished in2008asan

independent statutory body to provide authoritative advice on academic standards of degree

programsinhighereducationinstitutionsinHongKong.Itprovidesqualityassuranceandassessment

servicestoeducationandtraininginstitutions,courseprovidersandthegeneralpublic.Inadditionto

its statutory roles, the HKCAAVQ also provides advisory and consultancy services in education

qualifications and standards to government bureau and other organizations in Hong Kong and the

Asia-Pacificregion.

HongKong isperhapsoneoftheearliestcountries inAsiathathasdevelopedand implementedthe

QualificationsFramework(QF).Duetoitsdependenceoninternationaltrade,HongKongconsidersQF

asverycentralinsupportingitseconomicdevelopment.TheadvancedimplementationstageofHong

KongQFisalsosupportedwithcomprehensiveandcompletedocumentationwrittenandpublishedin

English.

Duetothepoliticaldeadlockthatinvolvesstudentdemonstration,thestudyteaminitiallyplannedto

postponethevisitto2015.ButtheHKQFSecretariatinvitedthestudyteamtoparticipateintheHKQF

conferenceon“Qualificationsacrossboundaries:perspectiveofHongKongqualifications frameworkandEuropeanqualificationsframework”heldon26November2014.Itsuggestedforthestudyteam

to schedule the visit according to the conference schedule. The study team decided to accept the

invitation and conducted the visit on 25-27 November 2014, by combining the visit to the HKQF

SecretariatandHKCAAVQwiththeparticipationintheHKQFconference.

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Despitethecontinuingstudentdemonstrationthatblockedallaccesstothegovernmentbuildingsand

offices (thefollowingpicture), thestudyteamhavesuccessfullyenteredthebuildingandconducted

variousmeetingsandconferencebywalkingthrough.

ThemembersoftheIndonesiandelegationare,

BagyoY.Moeliodihardjo,teamleaderandhighereducationexpert

MegawatiSantoso,qualificationframeworkexpert

SumarnaF.Abdurahman,vocationaleducationexpert

NursyamsiahAsharini,DLSA–DGHE

HudiyoFirmanto,KKNIteam,DLSA–DGHE

MuchtarAziz,MinistryofManpower

ReinaSetiawan,BinaNusantaraUniversity

Yanti,BinaNusantaraUniversity

HKQFConferenceThe HKQF conference chose “Qualifications across boundaries: Perspective of Hong Kong

qualificationsframeworkandEuropeanqualificationsframework”as itstheme.Theconferenceaims

toprovideaforumtosharebestpracticesinQFdevelopment,especiallyinthecontextofglobaltrend

ofdevelopingnationalandregionalQFtosupportlifelonglearningandtoenhancetransferabilityand

mobilityofqualificationsthroughreferencingoralignmentamongcountriesorregions.

PlenarysessionThe conferencewas formallyopenbyMrEddieNG, theSecretaryof theEducation, theHongKong

SpecialAdministrativeRegionGovernment.

The first keynote presentation by Mr Brian Lo, the Deputy Secretary of Education, highlighted

developmentofHKQFanditsmilestones,aswellasitscollaborationwiththeEuropeanQualifications

Framework (EQF). The achievement elaborated among others are the QA framework, competency

standardsfortrainingandHRM,RPLmechanism,theuseofstandardizedawardtitlesandQFcredit,

promulgationofthepolicyandprinciplesforcreditaccumulationandtransfer(CAT).

ThesecondkeynotepresentationbyMrKoenNomden,theHeadofSectorofSkillsandQualification

RecognitionTools–EC,highlightedtheEQFasametaframeworkreferencedbytheNQFs,referencing

procedures, and the criteria stipulated by the EC. It elaborated themechanism in dealingwithQA,

learningoutcomes,credits,andvalidationofnonformalaswellasinformallearning.Italsopresented

thefuturechallengesofEQF.

InternationaldevelopmentofQFA roundtable session was conducted providing opportunity for the representatives from different

countries to present their NQF system, and shared the benefits, risks, and possible challenges of

aligningKHQFandEQF.ThecountriesrepresentedinthissessionareLatvia,Poland,Luxembourg,UK,

Ireland,NewZealand,HongKong,andtheEuropeanUnion.

Oneoftheissuesdiscussedisthedifferentterminologyusedininternationalcollaborations:aligning

and referencing. The term “aligning” is used for bilateral cooperation, whereby the 2 countries

involved have to adjust themselves to be able to cooperate. The term “referencing” is used for

multilateral cooperation, whereby an agreed upon regional reference is used by the cooperating

countriesasareference.

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ParallelsessionsRethinkingeducationandtraining

Dr Mike Coles addressed 3 profound questions in education. The first is why we need to rethink

education and training. The second is whether the infrastructure of education and training always

being reformedand improved.The thirdand the last iswhether theeducationand trainingsystem,

qualification systems and the institutions that support the systems, can still be a barrier to lifelong

learning.BasedontheOECDstudyin2004,thepolicyonlifelonglearningneedstotakeintoaccount

manyemergingaspects,suchasthediverseformsoflearningorganization,newroutesandpathways,

outcomebased learning, and validation and recognitionof the achievement.All these illustrate the

importanceofQFinsupportingthenationalpolicy,coordinatedreforms,internationalbenchmarking,

stakeholderengagement,andmoreflexiblelearningcareers.

Prof. Hau Kit-tai addressed the issue of massification of higher education in Hong Kong, which

currently reaching70%participation and keeps increasing.Howeveronly 23% received government

subsidyand the resthas to relyonstudent tuition to survive.MOOCbecomesoneof theproposed

solutions,hence,requiresmoreflexiblepathwaysandrelaxedrecognitionsystem.Asacademicdegree

lostitsdifferentiationpower,theprofessionalcertificationbecomesmoreimportantforemployerto

differentiate job seekers. Therefore the government attention to the regulation on certification is

necessary.

Although both presentations addressed some issues that relevant to the Indonesian context, the

discussion session failed to find solutions that could universally implementable. The dichotomy

between generic and specific skills, between the quality of traditional and distance learning, and

betweenacademicandvocationalissomeofissuesrelevanttoIndonesia.

IntegratingQAandQFtoimproveeducationandtraining

Allthreepresentersoutlinedthesignificantimportanceofarobustqualityassurancesystemtoensure

thatqualificationscanbeaccepted,trusted,andcrosstheboundaries.Inmorespecific:

Dr.BrianMaguire,-HeadofQualificationsServices,QualityandQualificationsIreland,focusedonQA

system reviews in conjunctionwith EQF implementation across EuropeanUnion. There are twoQA

systems applied, i.e. Bologna Process Based for QA in higher education and Copenhagen Process

BasedforQAinVocationalEducationandTraining.

Professor Lee Keng-Mun,Executive Director HKCAAVQ, mostly focused in elaborating HKQA system

thatcovershighereducationandVETsectors.TheHKCAAVQonlygoverns theVETsectorswhilstall

highereducationinstitutionsundergoselfaccreditationpathwaysduetotheirstatutory.

Professor Mile Dzelalija,University of Split, Croatia, provided more practical example of QA in EU

countries,particularlytheQAcriteriaandagenciesforundertakingtheQF-EHEA–TheQualifications

FrameworkoftheEuropeanHigherEducationArea.

Similar to Indonesia,QA is implemented based on evidence-based, transparent, and objective peer

reviewon the threshold standards.Differed from Indonesian,QAsystems inEUandHongKongare

voluntary based.Nonetheless, funding incentives, quality awareness, and societies’ trust on theQA

resultsare thedriving force for institutions toapply theexternalQAauditsorassessment.Tobuild

the trust, involvement of independent assessors is endorsed. Hong Kong in particular, involves

internationalexpertsasexternalassessors.Inselectingtheinternationalpanel,acomprehensiveand

merit based recruitment andevaluationmethods are endorsed.This condition isnot applicable for

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Indonesiawith22,036degreeprogramsmanagedby4,233highereducationinstitutions(Data-PDPT

2014).

All there presenters emphasized the importance of a QA system that based on qualifications or

learningoutcomesachievements,asillustratedinthefollowingpicture:

Thismechanismmatcheswithourproposal to shift theexistingquality assuranceagencies towards

assessmentmeasure and procedure that taking description of learning outcomes specified in each

relevant qualification level of IQF into account. This approach is expected tomaintain the existing

systemandprocedureofallexternalqualityagenciesbutsynchronizedandequalizedbyimposingIQF

intotheassessmentmeasureandprocedureofeachqualityassuranceagency.(Inceptionreportpage

8).Theproposedmechanismisillustratedinthefollowingdiagrams:

FiveimportantissuesregardingthisQAare:

• QA should reflect the QF that values all learning mechanism, provides transparent and

accountablelearningoutcomes.

• Althoughthequalificationsarerecognizedagainstindividuals,theQAisimposedontheprogram

operatorsbasedontheassumptionthat if theoperatorscanshowevidenceonqualityprogram

delivery,theywillproducequalifiedhumanresourcesaccordingly.Thisassumptionisnotentirely

validbutisstilladoptedduetolimitedresourcesandmethod.

LEARNINGPROCESSANDMETHODS

STUDYPROGRAMOUTCOMESBASEDONNATIONAL

REQUIREMENT

HigherEducationInstitutions

Nationallevel98

7

6

5

43

21

PROGRAMOUTCOMESBASEDONNATIONALEDUCATION

STANDARDS

ExternalQualityAssurance

Achievementofstudyprogramoutcomes

Targetofstudyprogramoutcomes

Curricula

implementations

InternalQualityAssurance

IQFDESCRIPTION

REQUIREDSTUDY

PROGRAMOUTCOMES

STUDYPROGRAMCURRICULA

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• Thereisnoclearcutindeterminingleveloflearningoutcomesaccordingtotheframework

description.Thereforethebestjudgmentorbestfitinmechanismisusuallyapplied.

• Independency is one of fundamental criteria in undertaking theQA. In all cases presented, the

externalexaminerseveninternationalassessorsareinvolved.Thismechanismdrawsanexpensive

resources. For Indonesian QA system, the independency will be outlined using tracer studies

involving users of graduates. Then, the questionnaire should represent an assessment towards

learningoutcomesachievement.Theexternalqualityassurancewilldeterminethesamples’size.

• ThevoluntaryversusmandatorybasedQA.

PromotingmobilitybetweenhighereducationandVET

DrBryanMaguireelaboratedthehistoricalbackgroundofEQF,startingwithvoluntaryparticipationto

the Bologna commitment launched in 1999. QA is closely linked with QF since it assures the

achievement of the stated learning outcomes. The QA should be basically an internal mechanism,

covering the aspects of policy for quality assurance; design and approval of programs; student –

centered learning, teaching and assessment; student admission, progression, recognition and

certification;teachingstaff;learningresourcesandstudentsupport;informationmanagement;public

information; on-going monitoring and periodic review of programs, and cyclical external quality

assurance.Healsoputforwardarisingissues,suchaswhetherthereviewofEQAVETbringitcloserto

the HE model; whether the national systems of VET too diverse to bring about the similarity of

structurefoundinHE;andwhethertrustcanbeincreasedevenifdiversityofQAsystemsremains.

Dr Lawrence Chan (Deputy Executive Director, Vocational Training Council, HKSAR) addressed the

issue of students’ bias interest to study in higher education rather than in vocational education,

despite the possibility to enhance the qualification level from different pathways. Shorter time

requiredtoacquirelevel-6qualificationafterobtainingabachelordegreeisfoundasthemainreason.

Actually level 6 can also be reached through VET education after a certain periods of working

experience and further training. As an alternative solution, he proposed a vocational baccalaureate

program as an attractive alternative for secondary school studentswho aspire to pursue university

education but are not interested in academic education, which is similar toDiploma 4 (D4) in theIndonesianeducationsystem.

ConferenceconclusionTheobjectiveofEQFistocreateacommonreferenceframeworkandtoimprovethetransparencyof

qualification among European countries.The implementation of EQF varies among countries: 18

countriesatanoperationalstage(7countriesarefullyoperational)and9countriesindicateEQFlevels

oncertificates.

In Ireland, the QF is 10 levels and used for quality assurance of education, curriculumdesign, RPL,

employerworkforcedevelopmentandprivate&publicsectorjobrecruitment.

HongKongQualificationsFramework(HKQF)ThesessionwiththeQualificationFrameworksSecretariat(QFS)andtheHongKongAccreditationof

Academic and Vocational Qualification (HJKAAVQ) were conducted on 27 November 2014. The

followingsectionselaboratedthediscussionandtheinformationacquiredduringthosesessions.

QualificationsFrameworkSecretariat(QFS)The HKQF is a policy initiative of HKSAR in May 2008, accompanied by the establishment of the

HKCAAVQ.Ithasdualobjectives,namelytoestablishaplatformtosupportlifelonglearning,andto


enhance quality, capability, and competitiveness of the local workforce. The QF covers both the

academic,vocational,andcontinuingeducationsectorsunderaunitaryframework.

Figure-1:TheHongKongQualificationFramework

TheQFSisaunitundertheEducationBureauoftheHKSAR,andcurrentlyledbyaGeneralManager

supportedby25fulltimestaff.ItwassetupbytheEDBinJune2009,toserveasitsexecutivearmto

implement and promote the HKQF.The formulation of policy, strategy and direction of the

development of the HKQF is under the ambit of the Education Bureau (EDB).The commitment of

HKSARtoimplementQFisdemonstratedamongothersbytheallocationofHK$10millionperyearto

supporttheoperationalcostofQFS,andHK$1billiontoestablishanendowmentfund.

ThemainfeaturesofHKQFare,7levelsofgenericlearningdescriptors,standardizedawardtitles,QF

credit values, quality assurance as a prerequisite, qualifications register, and voluntary basis. The

Generic LearningDescriptor (GLD) covers fourdomains:Knowledgeand intelectual skills; Processes;

Application,autonomyandaccountability;andCommunication,ITandnumeracy.Qualificationregister

(QR) iswebbasedcontaining informationofQF recognized courses (currentlymore than8000), i.e.

levelandcreditrated,standardizedawardtitles,validityperiod,andqualityassured.OneQFcreditis

definedas10notionallearninghours,coveringallmodesoflearning.

In the Hong Kong context, the vocational pathway does not have qualification above level 6, as

illustratedinfigure-1,whilstintheIndonesiancontextthevocationalpathcouldgoashighaslevel9

(thehighest).

IndustryTrainingAdvisoryCommittees(ITACs)aresetup in industrybasistoserveasaplatformfor

stakeholderstoimplementQF.EachITACcomprisesrepresentativesfromemployers,employees,and

professional as well as regulatory bodies. Its main responsibility is to define the competency

requirementsandstandardsforoccupations,anddrawupthespecificationofcompetencystandards

(SCS). Twenty industrial sectors are currently fully participated in implementing the HKQF. The

distributionofthesesectorsisverydiverseandunstructured,asillustratedintable-1.

ConsideringHongKongasthemostimportanttradehubinAsia,itseemsthatnotallmajorindustries

haveagreedtoimplementQF,e.g.accountantsandconstructionengineers.Learningthisfactforthe

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131

Indonesiancontext,decreesandregulationsissuedcouldencourageimplementation,butattheend

themarketwilldecidewhetheraQFisimplementedornotinaparticularsector.

Table-1:SectorsparticipatedintheITAC

1 Automotive 11 Testing,inspection,andcertification

2 Hairdresser 12 Importexport

3 Chinesecatering 13 Banking

4 Printingandpublishing 14 Beauty

5 Securityservices 15 Jewellery

6 Humanresourcemanagement 16 Informationandcommunicationtechnology

7 Elderlycareservice 17 Electricalandmechanicalservices

8 Manufacturingtechnology 18 Propertymanagement

9 Insurance 19 Logistics

10 Retail 20 Watchandclock

Educationandtrainingprovidersplayanimportantroleinbridgingthegapbetweenthecompetency

requirements of employers and skill level of employees. Through specially designed education and

trainingcourses,educationandtrainingprovidershelptransferknowledgeandskills to learnersand

bringtheskillleveloflearnersuptothestandardsrequiredoftheindustries,asspecifiedintheSCSs

developed by relevants ITACs. SCS provides a basis for education and training providers to design

coursesthatbestsuittheneedoftheindustries.Theprovidersarethereforestronglyencouragedto

offerSCS-basedCoursesinaccordancewiththeQualificationGuidelinesissuesbytheEDB.Education

and trainingprovidersalsoplayan important role in facilitating theprogressionof learners through

the provision of articulation courses, bite size learning, admission of verified prior learning and

transferofcredits.

HKCAAVQTheHKCAAVQwasestablishedon5May2004,exactlyonthesamedateastheestablishmentofthe

QFS. It illustrates theHKSAR’s commitment to synergize the twoorganizations.Only programs that

have been accredited by the HKCAAVQ could apply to QFS to be listed in the QR. Although the

Academic Accreditation (HKCAA) had been in place since 1990 to accredit the non self accrediting

institutions, theordinanceestablishing theHKCAAVQ in2004marked thecommitmentofHKSAR to

fully integrate the QA within the QF. The HKCAAVQ comprises maximum of 21 national and

internationalmembers,appointedbytheChiefExecutiveoftheHKSAR.Internationalmembersshould

be between 4 and 7. As a statutory body,HKCAAVQ is an independent institution and self funded,

currentlysupportedbyapproximately100staffmembers.

TheresponsibilityofHKCAAVQ is limitedtoassessprogramsand institutionsoutsidetheHongKong

UGCfundedinstitutions. InstitutionsundertheUGC’sauspice,calleduniversity,arestatutorybodies

andgivenautonomyasselfaccreditinginstitutions.

RecognitionofPriorLearning(RPL)Inadditiontoaccreditationprocess, theHKCAAVQ isalsoresponsible toconduct theRecognitionof

PriorLearning(RPL)mechanism.RPLparticularlybenefitsexperienced industrypractitionerswithout

formal qualifications, practitioners pursuing industry based qualifications for further study or

employment, employers recruiting capable candidates, and industries for sustainable development.

This is intended to grant theworkers an admission ticket for attending further training program to

improvetheirqualification.CurrentlyRPLmechanismisapplicablefor level-1tolevel-4oftheHKQF,

involving11,000RPLholdersfrom9industrialsectorsandover20,000statementsofattainmenthave

beenissued.


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Table-2:IndustriesparticipatedinRPLmechanism

1 Printingandpublishing 6 Jewellery

2 Automotive 7 Propertymanagement

3 Hairdresser 8 Logistics

4 Chinesecatering 9 Beauty

5 Watchandclock

Foreach joining industry, inthefirst5yeartransitionRPLfor level1to3couldbeattainedthrough

verificationofdocumentsonly,whilstRPLforlevel4shouldbeattainedthroughassessment.Afterthe

transition period, all RPL should be attained through assessment process, and verification of

documents isaprerequisiteforassessment. Inordertoencourageworkerstotakethequalification,

thegovernmentprovides subsidy (75%of theassessment cost) for thosewhopass theassessment.

For those who failed in the assessment, they are encouraged to take QF-recognized courses and

retaketheassessmentprocess(25%ofthecostisreimbursableiftheypassed).

FinalconclusionandlessonslearnedfortheIQFdevelopmentThefollowingpointsreflectthefinalconclusionandlessonsdrawnfromthestudyvisit.

a) FullimplementationofNQFrequiresastrongcommitmentfromthestakeholders,particularlythe

government and the relevant industrial sectors. In the case of Hong Kong, even with a strong

supportandcommitmentfromtheHKSAR,after10yearsof implementationtheHKQFhasbeen

fullyimplementedinlessthan50%ofitsworkforce.TakingintoaccounttheHongKongeconomy

that is very open and depend on international trade that is supposed to become a very strong

driverforHKQFimplementation,theachievementcouldbeconsideredasmodest.

b) Thedevelopmentofcompetencystandardshastoinvolvestakeholders,particularlytheusersand

employers. Such strategywill ensure that the implementation is suuportedby the stakeholders.

Thegradualapproachbyfirstbuildinguptrustfromthestakeholdersisalsodemonstratedbythe

implementationofRPLonlyuptolevel-4.

c) Thechoicetoprovidean independent legalstatuswithfullautonomytotheHKCAAVQ,andput

the QFS as a unit under the Education Bureau of HKSAR, is an interesting policy decision. It

reminds the study team to the recentpolicydecision takenby theAustralian government,who

justrevokedtheindependencyoftheAQFbyputtingitbackunderthegovernment’sMinisterial

Council.

d) ThedevelopmentofQFthathasbeencarriedout in Indonesia isalreadyontheright track.The

initialinitiativewasmostlytakenbythehighereducationsector,andnowisconsideredtimelyto

bemoreinclusivebyinvolvingmorerelevantstakeholders.TheHongKongexperienceofinvolving

thestakeholdersthroughouttheentireprocessofdevelopmentisworthytobeadopted.

e) The conference provides a good opportunity for participants from different countries and

institutionstoexchangeinformation,sharingproblemsandsolutions,aswellasdevelopnetworks.

Nevertheless such event is less appropriate for finding solutions that require more in depth

analyticalworks.


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ItineraryoftheHongKongstudyvisitMonday,24November TravelfromJakartatoHongKong

Tuesday,25November EducationBureauoftheHongKongSAR

MsPecvinYong,PrincipalAssistantSecretaryforEducation

MrPatrickPang,GeneralManager–HKQF

MrAnthonyChanTung-shan,Projectcoordinator

MrSteveLai,SeniorManagerHKQF

Wednesday,26November HKQFConference

MrEddieNGHak-kim,SecretaryofEducation

MrBrianLo,DeputySecretaryofEducation

Mr Koen Nomden, Head of Sector skills and qualification recognition tools

Directorate General for Employment, social affairs and inclusion,

EuropeanCommission

DrMikeColes,QualificationSystemexpert,UK

ProfHauKit-tai,ProViceChancellor-TheChineseUniversityofHK

MrJosNoesen,Pedagoue,MinistryofEducation–Luxembourg

DrBryanMaguire,HeadofQualificationServices,Ireland

ProfWilliamLeeKeng-mun,ExecutiveDirector,HKCAAVQ

ProfEwaChmielecka,EducationPolicyUnit–WarsawSchoolofEconomics

ProfMileDzelalija,UniversityofSplit–Croatia

DrLawrenceChan,DeputyExecutiveDirector–Vocationaltrainingcouncil

MsBaibaRamina,Directorofacademicinformationcenter–Latvia

Thursday,27November HKQFSecretariat

MrSteveLai,SeniorManager

MsPeggyWong,Manager

MrRaymondWong,AssistantManager

MsKaWingFung,SeniorManager

RPLOffice

MsPollyLauSuetLin,Projectmanager

HKCAAVQ

ProfWilliamLeeKeng-mun,ExecutiveDirector

MsDortyKristoffersen,DeputyExecutiveDirector(Academic)

MrRobertFearnside,DeputyExecutiveDirector(Vocational)

DrBryanMaguire

MrKoenNomden

MrJosNoesen

ProfEwaChmielecka

ProfMileDzelalija

MsBaibaRamina

Friday,28November TravelbackfromHongKongtoJakarta

AnnexD:ReportonstudyvisittoIrelandandEngland

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May9-16,2015


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IntroductionTheGovernmentofRepublicofIndonesia(representedbytheMinistryofEducationandCulture,the

Ministry of ReligiousAffairs, and theMinistry ofNationalDevelopment Planning / Bappenas), the

AustralianAgencyforInternationalDevelopment(AusAID),theEuropeanUnion(EU),andtheAsian

Development Bank (ADB) have established the Analytical and Capacity Development Partnership

(ACDP)asafacilitytopromotepolicydialogueandinstitutionalaswellasorganizationalreformof

theeducationsectortounderpinpolicyimplementationandhelpreducedisparitiesinprovincialand

districteducationperformance.Withinthiscontext,theACDPcommissionsastudyteamtoconduct

thestudyforsupportingthedevelopmentoftheIndonesianQualificationFramework.

The development objectives of this study are to contribute towards achieving nationalmedium to

long term socio-economic goals by supporting efforts to improve the quality,efficiency, relevance

and competiveness of national education and skills formation through theestablishment of an

IndonesianQualificationFramework(IQF)andassociatedsystemsandcapacity.Specifically,thisstudy

aimstocontributetowards[ACDP2014],

f) improvedqualificationswhichbettermeettheneedsofthelabormarket;

g) consistentstandardsforeducation/trainingprovidersandqualityassurance;

h) improvedaccesstoinformationforprospectivestudents,employers,andotherstakeholders;

i) flexiblepathwaysthroughtheeducationandtrainingsystemforlifelonglearning;and

j) internationalrecognitionofIndonesianqualificationsinthecontextofincreasedmobilityof

laborandcompetitionbetweencountry’seducationandtrainingsystems.

ConsideringthattheIndonesianQualificationsFramework(IQF)isanewmodalityforIndonesia,itis

wouldbenecessarytofacilitateacomparativestudytocountriesasIrelandandEnglandthathave

exhaustively implemented thequalifications framework.Thisdocumentpresents the reportof the

studyvisit.

ObjectivesThestudyteamintendstolearnthefollowingpointsinthestudytrip,

• StrategyoninvolvingthestakeholdersintheprocessanddisseminatinginformationofNQF

implementationtothepublicatlarge.

• Roadmapof nationalqualificationsframework(NQF)implementationand sustainable

development,includingitsLegalstatus,governance,andfundingscheme;

• Quality assurance system based on qualifications including development, establishment,

registration, and assessment of qualifications (particularly the assessment of degree

programoutcomes;

• IdentifymechanismswhichmightberelevantforIndonesia

• forsupportingexamplesofinnovativegoodpractice.

• RPLsystemandindustries(orotherstakeholders)involvement;consistingof

a) developmentoftheRPLsystem(policy,regulation,guidelines,andSOPin

implementingRPL;

b) developmentofRPLimplementationstrategyandplausibleorganizationfor

managingRPLsystematnationallevel;

c) developmentofRPLimplementationstrategyathighereducationlevelincluding

schemedevelopment,guidetotheassessmentprocess,developingassessment

tools,assessorqualification,anddocumentation;and

d) theRPLqualityassurancesystem.


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MembersofthedelegationThecompositionoftheIndonesiandelegationwasdesignedtoprovideasmuchaspossibleexposure

totherelevantstakeholders.Thestudytripwasparticipatedbythefollowingmembers,

a) Mr.SubandiSardjoko,DirectorofEducation–MinistryofNationalDevelopmentPlanning/

NationalPlanningAgency(Bappenas);

b) Ms.RetnoRahayuSunarni,DirectorateGeneralofLearningandStudentAffairs-Ministryof

Research,Technology,andHigherEducation;

c) Mr.Endrotomo,InstituteofTechnologyofSepuluhNopember–Surabaya;

d) Mr.WidijantoS.Nugroho,SecretaryoftheBoardofHigherEducation–Ministryof

Research,Technology,andHigherEducation;

e) Mr.SoedarmonoSoejitno,SecretaryoftheIndependentAccreditationAgencyforHealthin

HigherEducation;and

f) Mr.BagyoY.Moeliodihardjo,expertinHigherEducation,TeamLeaderoftheStudyTeam.

TheprogrampresentedintheappendixreceivedfullassistanceandfacilitationfromProfessorMaria

Slowey,theinternationalexpertonRecognitionofPriorLearningintheteam.Theinitialplanforthe

Scottish Qualification Framework Council to join us in Dublin or London for a discussion session

failedtomaterialize.

IrelandThe Republic of Ireland adopts an open economic system, which very much depends on

international trade and access to other countries’ markets. Such a system requires a strong link

between the education sector, the labor market, and different sectors of industry. For these

reasons,Irelandwasoneofthecountrieswhichdecidedatanearlystagetodevelopandimplement

aqualificationframework.Itsleadingroleinthisregardhasbeenrecognizedataninternationaland

European levels-as isevidenced, forexample,by the fact that theChiefExecutiveofQQI (Quality

andQualificationsIreland)hasforsomeyearsalsoservedastheChairoftheBoardoftheEuropean

QualificationsFramework(EQF)andtheseniorofficialfromtheDepartmentofEducationandSkills

(DES) responsible for this area in Ireland is also Chair of the relevant European Bologna Process

Committee.

TheQualification(EducationandTraining)Actwasenactedasearlyas1999,andfollowedupwith

intensive consultation, research, and development. The National Qualification Framework was

launchedin2003,withsystemsofawardsintroducedforhighereducationandtrainingin2004,and

for vocational (Further Education and Training) educationin 2006. In 2012 the Quality Assurance

(Education and Training) Act was enacted and the Quality and Qualifications Ireland (QQI) was

established.

The NQF Ireland is a 10 levels qualification, demonstrating the coherence of quality assurance,

recognitionofprior learning,nationalskillsstrategy,workforcedevelopment,and jobrecruitment.

(Diagram attached, mapped onto the European Qualifications Framework). There are four

institutions involved inawardingqualifications,namely theQualityandQualification Ireland (QQI),

the State Examination Commission (SEC) under the Department of Education and Skills, Dublin

InstituteofTechnology,andthesevenuniversities.

The strong link between the education sector and the labor market makes the Irish system of

particularinterestforexamination.Thefullyintegratedqualificationssystemwithqualityassurance

systems in Ireland, coveringvocationaleducationandhighereducation, isaparticularly important

andinterestingaspect.Targetedfundinghasalsobeenusedtosupportinnovativeworkandsharing

ofgoodpractice-forexample,inconnectingeducationwithwork-basedlearningandRPL.


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Although a small system, Irish higher education is also interesting to the extent that over a

comparatively short period of time (15 years or so) it has grown from a relatively low base to

combine innovation with a strong research output and recognition in international rankings. For

example:intermsofyoungeruniversities(under50yearsofage)3IrishuniversitiesareintheTimes

HigherEducationGlobalYoungUniversitiesTop100institutions,and1isintheQSGlobaltop50.In

overallglobal rankings, Irelandhas1university in theGlobalQSTop100,and2 in theTHESGlobal

Top150.

QualityandQualificationofIrelandTheQualityandQualificationof Ireland(QQI)wasrepresentedby itsCEO,DrPadraigWalsh.He is

alsothePresidentofEuropeanAssociationofQualityAssurance.Thesecondsessionwaspresented

byMs Niamh Lenehan, theManager of the Qualification Recognition. It was then followed by a

sessionbyDrBryanMaguire,theHeadofQualificationService.Theexcerptofthediscussionsession

ispresentedinthefollowingsection.

a) QQIisastateagencyundertheauspiceoftheDepartmentofEducationandSkills.Itwas

establishedinNovember2012followingtheamalgamationofthefollowing4bodies,

i. FurtherEducationandTrainingAwardsCouncil,

ii. HigherEducationandTrainingAwardsCouncil,

iii. NationalQualificationAuthorityofIreland,and

iv. IrishUniversityQualityBoard.

QQIhasassumedallfunctionsofthosebodiesinadditiontonewfunctionstodevelop.QQIwill

develop an International EducationMark for providers of education and training programs to

international students and will establish a database of programs and qualifications. QQI is

expectedtobeabletobringcoherencebetweenqualificationsandqualityassuranceinfurther


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and higher education and training, build on the successes of the legacy bodies, and promote

publicconfidenceandtrust.

b) The implementation ofNQF is verymuch affected by the economic situation, particularly the

supply and demand of workers. For example, in the period of economic boom, many

constructionworkersdonotpossesstheproperqualificationsasrequiredbytheNQF.Butafter

theeconomiccrisisin2008,theybecamethefirstbatchtobelaidoff.

During the economic boom Ireland experienced a demographic change due to the influx of

workersfromEUcountries.Thenewcitizensrequiredcertificationbasedontheirpriorworking

experiences as well as recognition of their previous learning experiences in their previous

education.TheNQFhasservedwellsuchneedswithitssystematicqualificationsystem.

c) DrWalshalsoexplainedtheschemeof“apprenticeship”,whichisanimportantelement inthe

Irisheducation,evenbeforetheNQFwasintroduced.Apprenticeshipisanalternatingeducation

schemebetweencollegeandworkplace,wherebythedegreeisawardedbytheQQI.Inorderto

participateinsuchprogram,studentsarerequiredtopaytuition.

AnapprenticeshipcouncilwasestablishedundertheQQItooverseetheprogramstoensurethat

allprogramscomplywiththeNQF.Apprenticeshipschemewaspopularamongvocationalfields

suchasaccountingandnursing.Insteadoftakingafulltimecourseworkinthecollegeandearn

degree, students tend to choose concurrent in-service education program, allowing them to

alternatebetweencollegeandworkplace.Thedegree isawardedbytheQQI. Inrecentyears,

however, theprofessionofaccountingandnursingarebecomingmoreacademicand requires

morecollegeworksbeforeeligibletoentertheprofession.

d) AlthoughQQIisastateagency,itcouldchargefeesinconductingcertificationprocess.Around

50%ofitsbudgetcomesfromsuchrevenue,whilsttheremainingcomesfromthegovernment

budget allocation.QQI awards around 150,000 certificates annually, and supported by 70 full

timestaff.

e) MsNiamhLenehandemonstrated theENIC-NARIC system.The systemallows individuals from

around theworld todirectly interactwith theQQI,either for finding information,applying for

recognition,orotherspecificpurposes.

f) Dr Bryan Maguire explained the principles of NQF and RPL, as well as its QA function.

Universities are self accrediting institutions that accreditation is not applicable to them.

Institutesoftechnologyandotherprivateprovidersarerequiredtocomplywiththestandards

andqualificationspublishedbytheQQI.


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Incarryingout its roleasaQAagency,QQIalsoconducts “metaevaluation” foruniversities. It

evaluates and reviews the QA mechanisms and procedures, and produces reports and

recommendations. All reports and recommendations are publicly available to assure

accountabilityandtransparency.

MinistryofEducation’sInspectorThediscussionwasheldwithMs.MargaretCondon,theAssistanChiefInspectorintheDepartment

ofEducationandSkills.TheDepartmentofEducationandSkillsisunderthecontroloftheMinister

forEducationandSkills,andthedepartmentisinchargeofpolicy,fundinganddirection.Thereare

other important organizations involved in the Irish Education System, such as the Quality and

QualificationsIreland(QQI),theHigherEducationAuthority,andtherearemanyotherstatutoryand

non-statutory bodies that have various functions in its education system. The following is the

excerptofthediscussionsession.

a) ItisinterestingtonotethattheaimoftheearlyeducationinIrelandfocusedonbeingcreative,

workingwithothersandtheeducationprogramembeddedkeyskillswithinthesubjecttaught

to the students. As explained byMs. Condon, the Irish education system consists of primary

level,secondlevel,thirdlevel,andfurthereducation.Relevanttotheobservationthatwemade

to learnmorefromthekindofskill trainingbeingconductedbeforea learnerenterthehigher

education,itisexplainedthatthecurriculumfollowedfortheprimaryleveli.e.uptp12yearsof

age,isachild-centeredcurriculumallowingforflexibilityintimetablingandteachingmethods.It

isnoted thateducation in Ireland is compulsory for children from theagesof6 to16oruntil

learners have completed three tears of second level education. The majority of learners will

transfer to second level education when they have completed the full primary level course,

whichisatabouttheageof12.

b) The second level education area covers secondary schools, vocational schools, community

schools, and comprehensive schools. These schools, although vary fromadistinctivehistorical

context, and have a different ownership and management structures, are State funded and

followthesamestateprescribedcurriculum,aswellastakethesameStatepublicexaminations.

ThesecondleveleducationconsistsoftheJuniorCycle(fortheageof12to15),andtheSenior

Cycle (for the ageof 16 to18). The JuniorCycle education concentratesonproviding skills so

learnerscanmanage informationandtheir thinking. Itbuildsontheeducationreceivedat the

primary leveleducationandby theendof the threeyearsstudy, learnerswillwrite the Junior

CertificateExamination.

c) Forthesecondleveleducation,learnerscanalsotaketheTransitionYear(forlearnersages15or

16),which ismandatory is some schools, butmaybeoptional inother schools. Thenatureof

activitiesintheTransitionYearmayrangefromworkplaceexperienceplacements,projectwork,

internationaltrips/exchanges,uptoactivitieslikecreativewriting,entercompetionsinscience,

publicspeaking,andmanyothers.TheideaoftheTransitionYearistoallowlearnerstomature,

engage inselfdirected learning,epxlorecareeroptions,andbeable tochoosesubjects for the

SeniorCycle.However,theTransitionYearisdesignedinsuchawaythatitwillnotacademically

disadvantaged learners in continuing their study in theSeniorCyclewhenever learnersdecide

nottotaketheTransitionYear.

d) TheSeniorCyclefurtherbuildstheskillsandknowledgeoflearnersattainedintheJuniorCycle

andattheendofthiscycle,learnerswillwritetheLeavingCertificateExamination(attheageof

17to19)beforetheycancontinuetothethird leveleducation. It isnotedthatagreatdealof

publicattentionisfocusedontheLeavingCertificateExaminationduetoentrytothethirdlevel

of education also depends on the results achieved by learners at the exam for the Leaving

Certificate. The third level education in Irelandmostly conducted by universities, institutes of

technology,andcollegesofeducation.Mostthirdleveleducationinstitutionsaresupportedvery


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substantiallybytheState.Thestatisticsin2007indicatethatthevast

majorityof students in Irelandcontinue fromthe lower lever to the

senior level, with only around 12.3% leaving the education system

afterwritingtheJuniorCertificateExamination.

IrishUniversitiesAssociationThe visiting delegationwas hosted byMr. Lewis Purser, Director of

Academic Affairs; and Ms Sinead Lucey the Head of International

Office of the Irish University Association (IUA).The following is the

excerptofthediscussion.

a) The IUA is an independent company established by the 7

Ireland universities. It was established during the process of

developmentof theNQF,whereby the7universities couldbemore

effectivelyrepresentedasoneorganizationindealingwiththeissue.

b) Although qualitative assessment has been an integral part of learning process in universities,

standardized and systematic procedure in assessment is relative a new approach for most,

wherebylearningoutcomeshavetobedefinedupfront.

c) RPLisparticularlyconsideredascostlyforuniversities.

HigherEducationAuthorityThe sessionwith theHigher EducationAuthority (HEA)was conducted as aworking dinner in the

ShelbourneHotel-Dublin.HEAwasrepresentedbyMr.TomBoland,theChiefExecutive;Mr.Fergal

Costello,theHeadofSystemGovernance;andMr.MuirisO’Connor,theHeadofPolicyandPlanning.

Thefollowingpointsillustratetheissuesdiscussed.

a) HEAisanintermediarybodybetweenuniversitiesandtheMinistryofEducation.Oneofitsmain

functions is to protect universities from direct political influence of the government. The

nationalpolicyinhighereducationissetbytheMinisterofEducation,andtheHEAimplements

it through budget allocation. Budget allocation for universities is carried out through various

schemes, e.g. formula driven, competitive (for example strategic initiative grant), and

performancebased.

b) Before the passing of the Universities Act 1997, Irish unversities operated with substantial

independenceaccordingtotheirchartersandstatutes,whilethedisbursementofpublicfunding

to the universities is the responsibility of HEA. Since the passing of the Act, the relationship

between universities and the State has the codification outlined in the Act. The codification

includes the objects of universities, the composition of Governing Authorities and Academic

Councilsandmattersconcerningthestaffingandfinances.

c) Irelandhasexperiencedaneconomiccrisissince2008thatthebudgetforhighereducationhas

been significantly reduced. Comparedwith pre crisis budget, the current student staff ratio is

increased,budgetperstudentisdecreased,andstaffsalaryisreducedby20%.

d) AlthoughIrelanddidnothaveanationalstrategyinhighereducationuntil2012,theuniversity

operation was mostly not affected. The recognition was represented among others by its

respected place in the world university rank. It also reflects that the institutional autonomy

providedtouniversitieshadbeeneffectivelyflourishedinnovationandqualityimprovement.In

2012 a consensus was reached to develop a 25-year national higher education strategy. A

nationalstrategyisneededforsynergizingthedevelopmenteffortwiththecountry’seconomic

nationalstrategy,particularlyaftertheeconomiccrisisin2008.Thediverserolesof universities


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andhigher education institutions is indicated in theNational Strategy forHigher Education to

2030.

e) ThemostseriouschallengefortheIrisheducationistheincreasingdemandforeducationdueto

the inbound immigration of younger population. In addition to the increasing demand for

resources, the requirement to accommodate more plural cultural background will also be

significant.

DublinCityUniversityVicePresidentOffice

In the opening session the visiting delegationmetwithMr TrevorHolmes, the Vice President for

externalaffairsandMrPaulSmith,theHeadoftheInternationalOffice.MrHolmesexplainedthat

theDublin CityUniversity (DCU) is a relatively young institution compared to other institutions in

Ireland,asitwasonlyestablishedin1989.Howeveritisratedasthetop50amonghighereducation

institutionsestablishedlessthan50yearsagobytheTHESin2014.

FollowingthesessionwiththeVicePresident,thevisitingdelegationconductedaseriesofsessions

with various DCU’s officers. The following

sections describe the issues discussed in

thosesessions.

Qualitypromotion

Dr Sarah Ingle, the Director of Quality

Promotion Office (QPO), described the

function and responsibilities of the DCU’s

Quality Promotion Office. The following

pointsillustratetheissuesdiscussed.

a) The QPO’s objective is to promote,

support, and facilitate continuous

improvement and enhancement activities

across academic and support areas

throughout the DCU. QPO reports to the

Quality Promotion Committee, which is

chaired by the Deputy President. The

Committeehas22members,includingone

student representative. The student representative is the Vice President for Welfare of the

StudentUnion.He/she is on leave status and paid by the CPO to carry out his/her tasks as a

memberoftheCommitteeforoneyearterm.

b) The quality assurance at the DCU include all internal activities dealingwith quality assurance

within the academic program itself, assessment and evaluation by the QPO, and external

evaluationundertheQQI.

Teachingandlearning

Dr William Kelly, the Dean of Teaching and Learning, explained the process of introducing the

learningoutcomeintheDCU.Thefollowingistheexcerptofthediscussionsession.

a) In most cases academics do not have difficulties in defining the outcome of the course they

teachafterreceivingsometraining.Learningoutcomesofacoursecouldbebestunderstoodby

amatrixofoutcomesandsubjects/topics.Thematrixallowsany,evenalaymaninthesubject,

toassesswhetherthematerialstaughtareinaccordancewiththelearningoutcomeinitiallyset.


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b) Oneof the importantelements in theprocessofdefining the learningoutcome is toalign the

testorassessmentwiththelearningoutcome.Theremanycaseswherebyatestorassessment

instrumentfailedwhenitisalignedtothelearningoutcome.

c) Learning outcome is considered as critical in assuring that quality standards are met in the

learningprocessatDCU.

Businessschool

Prof Marann Byrne, representing the Business School, conducted a discussion session with the

visitingdelegationduringteabreak,andthefollowingistheexcerptofthediscussionsession.

a) Accountingwaspreviouslyconsideredasavocationaltrainingthatmoststudentsdidnotaimto

earn university degree, and choose to enter the profession through apprenticeship scheme.

AlmostallaimedtoeventuallyacquirecertificationofCharteredAccountant.Thereforethereis

nodirectcorrelationbetweenacademicdegreeswiththejobtitlesavailableinthejobmarket.

b) Inthe lastdecadehowever,duetothe increaseofbusinesscomplexityandsophistication,the

situation has changed that most employers require at least bachelor degree to enter the

profession. But the competencies required by the profession are more generic than specific

accounting.Manyemployerslumptogetheruniversitygraduatesfromdifferentdisciplinesinthe

selectiontest.Itmeansthattherequirementismoreforgenericcompetenciessuchasattitude,

leadership,analyticalandcommunicationskills,orgoodworkethics.

InternshipOffice(INTRA)

TheDCUInternshipOffice ismanagingthe internshipprogramforstudentswhiletheyareworking

ontheiracademicprogramintheuniversity.Theofficehasbeenestablishedformorethan25years

ago,and in thedevelopmentprocessof thisoffice,DCUalso learned fromsimilar settingdoneby

CanadianUniversities,suchas, theUniversityofWaterloo,Ontario-Canada, thathassimiliarCo-op

programforitsstudents.Thefollowingsectionillustratestheissuesdiscussed.

a) The program is an Integrated Training, hence the name INTRA, offering employers an ample

opportunitytolinktheirbussinesswithDCUstudentswithspecializedskills,motivation,energy

andnew ideasofyoungpeople.Thestudentswill learn fromtherealworkplacesettingwhile

bringing their skills and energy into the business setting allowing employers to assess and

identifypotentialfuturetalentofworkerstrainedbyDCU.

b) DCU students registering for INTRA internships will have to do an internship for a specified

durationaspartoftheacademiccoursesthattheyaretakingatDCU.ItisnotedthattheINTRA

internshipsarecompulsoryelementofmanydegreeprogramsinDCUanditmustbecompleted

aspartofthegraduationrequirement.

c) Theofficemanagestheprocessoflinkingemployerswithrelevantstudentgroupsacrossarange

of discipline such as Mathematics, Computer Science or Computing, Science, Engineering,

Business, Journalism and many others. The office facilitates the professional development of

students and provides guidance in things like strong CV writing, getting the best of a work

interview, and working effectively during an internship period in the employer organization.

Students are facilitated through presentation, seminars, group work, and even one-to-one

supportaspartofsupportingtheirprofessionaldevelopment.

d) The office actively manages the communication with employers in regular manner in Dublin,

Ireland,andalsopartsofEuropetoensurethatvariousrequirementsintheworksettingandthe

academicsettingcanbemetaccordingly.


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SchoolofNursingandHumanSciences

InthelastsessionofthevisittoDCU,DrAnneMatthews,theHeadofSchoolofNursingandHuman

Sciences explained the RPL for nursing study programs. The following is the excerpts of the

discussion.

a) A few years ago, due to new Bachelor degree requirement for Nurse’s profession, nurses

without such qualification had to be re-educated. Assessment was carried out to evaluate

whethertheindividualexperiencescouldberecognizedascreditsleadingtoBachelordegreein

Nursing. As all nurses had acquired the necessary requirement, the RPL process had stopped

aroundadecadeago.

b) RPL assessment was implemented softly by considering participants’ long period of absence

from formal training. Most participants have extensive clinical field experiences in overseas

countries,suchasAfricaandAsia.

c) AttheundergraduatelevelitofferstheBachelorofNursingTheorywhichisatop-updegreeto

betakenforoneyear.

d) Thepostgraduateprogram fornursing,healthand social careprofessionalsoffers apart-time,

flexible,multidisciplinarylearningexperience.Itprovidesaflexiblerangeofoptionmodules;

career relevant pathways; tripartite model of learning with

partnershipamongDCUacademicsupervision-RoyalCollege

of Surgeons in Ireland - Teaching hospitals; and an

established network of practice supervisors. The program

provides a framework for specific awards at MSc level at

Level 9 on the NQF. Students have the option to exit their

programwithaGraduateDiplomaafter18months.

DublinInstituteofTechnologyAlthough formally established as the Dublin Institute of

Technology(DIT)in1992,thisinstitutionhasbeenexistedas

aneducationalinstitutesince1887.DITisaresemblanceof6

independent collegesbefore theywere amalgamated into a

single institute of technology. It currently serves around

10,000fulltimestudents.Asaninstituteoftechnology,its

relationshipwiththestakeholdersiscriticallyimportant.Aroundhalfofitslecturerswereemployed

bytheindustries,andcloserelationshipwithemployersiswellmaintained.

The visiting delegation was hosted by Dr Robert Flood, Head of the International Office; Dr Ralf

Burbach,HeadofHospitalityManagementDiscipline;andanRPLexpert:DrAnnMurphy.

Hospitalitymanagement

ThefollowingsectionsummarizestheexplanationprovidedbyDrRalfBurbach.

a) StudyprogramsforHospitalityManagementatDITadopta“step-ladder”approachstartingfrom

a2yearspart-timestudyforLevel6HigherCertificate.Graduatescanthenapplytogainentry

into the final year of the BA (Ordinary) in HospitalityManagement Part-time and BA (Ord) in

HospitalityManagementFull-timeatLevel7.Thefinalselectionofcandidatesforplacesonthe

coursewillbemadeonthebasisofLeavingCertificateresults(orequivalent)andexperiencein

thehospitalityindustry.

b) Placesmaybeofferedtomaturestudentswhomeetcertaincriteriainrespectofage,suitability

andexperienceto-date inthehospitality industry.Transferees fromothercourseswillalsobe


144

considered.ExemptionsmaybegiveninspecificmodulesbasedonRecognitionofPrior

Learning,onacasebycasebasis.

c) Studentswhohave reached the appropriate standards at Level 7mayhave access to theone

yearBSc(Honours)inHospitalityManagement(add-on)atLevel8.Studentswillbeselectedon

thebasisoftheiracademicresults.Finalselectionmayinvolveaninterview.

d) StudentswhohavereachedtheappropriatehonoursstandardhaveaccesstoMScinHospitality

ManagementatLevel9.Applicationswillbeassessedbasedoncandidates’academicgradesand

mayalsotakeintoaccountapplicants’work/lifeexperience.Applicantsmayalsoberequiredto

attendforinterviews.Studentsmayalsoapplyforanexitawardaftercompletingathirdortwo-

thirds of the program successfully. If students decide to exit the program theymay receive a

postgraduatecertificateorapostgraduatediplomarespectively.

RecognitionofPriorLearning

DrAnnMurphyisconsideredastheleadingexpertinrecognitionofpriorlearning.Inthissessionthe

visitingdelegationhadtheopportunitylistentoherpresentationandhadafruitfuldiscussionwith

her.Thefollowingpointsillustratetheissueraisedinthesession.

TheDIT’sguidelineforstaffinimplementingRPLtitled“RPLmattersinDIT:PolicyandPracticeguide

for DIT staff” is available online. The guideline describes comprehensively the principles, policy,

mechanism,andprocedureforimplementingRPLinDIT.

TrinitycollegeDublinTheTrinityCollegeDublin,established in1592, is theoldesthighereducation institution in Ireland.

ThevisitingdelegationwashostedbyDrJulietteHussy,theVicePresidentforGlobalRelations;Ms

RoisinSmith, theQualityOfficer;andMrRonanHodson, InternationalOffice.Thesessioncovered

thefollowingpoints.

a) The learning outcome and quality culture have been introduced and developed since the

Bologna agreement was signed by the EU member countries. In order to comply with the

agreement, higher education institutions have to implement learning-outcome based process.

Theprocessofintroducingandimplementingithasbegunintheearly2000andisstill


145

continuing until today. Currently only a very small number of courses have not implementing

learningoutcome

b) Todevelopsustainablequalityculture,theQualityOfficeperiodicallyconductsprogramreview.

Italsohastocomplywiththerequirementtoconductexternalreviewevery7years.

c) RPL is conducted according to the specific needs of a program, that non uniform process is

acceptable. Nevertheless the Quality Office required that the process refer to the quality

standardssetbytheuniversity.

EnglandTakingtheopportunitytobeintheregion,wealsovisitedtheInstituteofEducation–UCL,quality

AssuranceAgency,andtheMiddlesexUniversity.Englandhasalonghistoryofimplementingquality

assurancefor its higher education as well as vocational education, and all UK members states

developedtheirQAsystemwithreferencetotheEnglandsystem.TheInstituteofEducationaswell

astheMiddlesexUniversityhasagoodrecordinimplementingworkbasedlearning.

InstituteofEducation–UCLThe Institute of Education – University College of London (IOE-UCL) is rated as the top (rank-1)

schoolofeducationbytheTHES.ThediscussionsessionwasledbyProf.AndrewBrown,ProDirector

AcademicDevelopment;DrMikeWinter,theDirectorofInternationalOffice;DrChristineHan,Head

ofProgram;andProf.PaulGrainger,Departmentof Lifelong Learningandcomparativeeducation.

Thefollowingillustratethesalientissuesdiscussed.

a) IOEwasestablished in1902and initiallyhadamain responsibility toprepareschools teachers.

However in the last fewdecadesdemographywaschanged,and thedemand fornewteachers

hasbeensignificantlydecreased.IOEhassinceshifteditsfocusmoreonresearch,andoffersits

servicestotheglobalmarket.

CurrentlyIOEprovidesassistancetoseveralcountries,includingSingapore.DrWinterexplainsits

experiences inconductingpolicyresearch inSingapore,wherebytherelevanceofeducationfor

thelabourmarketisconsideredascentral.


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b) Consideringthediversityoffieldsandstageofdevelopment,itisnotcommendabletousearigid

andoverspecifiednationalqualificationframework.TheNQFshouldbedevelopedtobeusedas

a reference instead of inflexible standards. Inmany cases the employers appreciatemore soft

skills rather than specific skills. Theonly exception is perhaps for fieldswith a single employer

market,suchasthehealthsector,i.e.medicaldoctorandnurse.Thereforethelearningoutcome

shouldalsomoveawayfromspecifictomoregenericstatements.

QualityAssuranceAgencyQuality Assurance Agency for Higher Education (QAA) is an independent body entrusted with

monitoring,andadvisingon, standardsandquality inUKhighereducation.Thevisitingdelegation

was hosted by Mr Ian Kimber, Director of Quality Development; Ms Harriet Barnes, Assistant

Director for standards, quality, and enhancement; andMr Fabriozio Trifiro, International adviser.

Thefollowingsectiondescribestheissuesdiscussed.

a) Although supportedby thegovernmentallocated fund throughHEFCE,QAAcould collect fees

from institutions it reviews. It also evaluates andmonitors student loan, covering 2.2million

students. Considering its wide national coverage and responsibilities, currently 174 staff are

workingunderQAA.

b) QAAdoesnothaveanylegislationorformalregulationsforitsactivities.ThereforeQAAhasto

work with providers of UK higher education to check that they meet UK-wide expectations

regarding academic standards, the quality of learning opportunities, and the information they

provideabouttheirhighereducation.

c) In carrying out its functions, QAA evaluates institutions against the Quality Code. The term

“code” is used, instead of “standards” due to the lack of legislation or formal regulation. It

reflectsafundamentalprinciplethatthequalityenhancementreliesontheinternalmechanism

within the institution itself. In conducting the institutional review, the panel includes student

representativeasamember.

The recommendationswithin theQAA review reports are designed to help providers address

potentiallyproblematic issuesbeforetheybecomeserious.However,sometimes itwillhappen

thatstudents,stafforotherpartieshaveconcernsaboutaproviderthattheybelieverequire


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investigation.Wheresuchconcerns indicateserioussystemicorproceduralproblems,QAAwill

investigatethemindetailthroughitsconcernsprocedure.

d) QAA limits its responsibility to institutional review,andallowingprogram reviewbecomes the

responsibility of individual institution. This strategy reflects its position in respecting the

autonomyofuniversityinassuringquality.

MiddlesexUniversityMiddlesexUniversity(MDX)islocatedinHendon,northLondon,itoffersawidevarietyofprograms

with strong emphasize on graduate employment. Using open learning technology and 3 overseas

campuses,itservesaround15,000studentsglobally,inadditiontoits25,000students.Thevisiting

delegationwasreceivedbyProfAnnaKyprianou,DeanofBusinessSchool;ProfCarolCostly,Director

of the institute of Work based Learning; Dr Mike Wing, Registrar; Dr Myra Perry, International

partnership;andDrKateDouglas,DirectorofEmployment.Thefollowingillustrateissuesdiscussed

inthesession.

a) RPLassessmentiscarriedoutoncasebycasebasis.Inconvertingolderandemployedstudents,

various different schemes have to be implemented. In many cases articulating their work

experiencesisperhapsthemostdifficulttaskforstudentswhoareintheirmidcareer.

b) Higher Education Funding Council for England (HEFCE) allocates government fund through a

formula based on student numbers,whilst a significant proportion of students atMDX is part

time.SincecalculatingFTEforparttimestudentsisdifficultandcomplex,inmostcasestheyare

chargedwithfullcostfees.

c) Exceptinspecificsectors,mostemployershavelittleconcernoverusingqualificationframework

asrecruitmentcriteria.

ConclusionandrecommendationsThefollowingpointsreflectourconclusionandrecommendationsbasedonthestudyvisit.

a) Qualityassurance isan inseparablepartof thequalification framework (QF), andanessential

part in implementing it. QF is about implementing standards and accountability that quality

culture should be developed within each institution. Standards cannot be ensured only by

measuringtheachievementagainstthepromisedoutcometheendoftheprocess,butneedsto

bedeveloped,maintained,andmeasuredalongtheentireprocess.QAisverycriticaltodevelop

trustandconfidenceoftheawardinginstitutions.Thereforeitisrecommendedtoimplementa

consistent national policy for developing quality culturewithin each institution by providing a

systematic technical assistance as well as incentive to encourage institutions to consistently

implementit.

A periodic review reporting policy must be developed allowing instutions to report their

progress according to thematurity level of their system, avoiding a cookie cutter approach in

requiringtheinstitutionsreportsbacktheirdevelopmentinimplementingthequalitysystem.It

islearnedthataspartofaqualityprocessreview,inthecontextofhighereducationinstitutions,

studentsmayneedtobeaskedonwhattheyareexperiencingduringtheirstudyreflectingthe

qualityoftheeducationthattheyreceive.

b) Both in Ireland (QQI) and England (QAA), the responsibility of the national agency for

implementing qualifications covers both the higher and vocational education. This policy is

essential since qualifications becomemore overlapping and closely related, and it is strongly

suggestedtoestablishasinglenationalagencytocoverbothsectors.

c) InimplementingQFinhighereducation,itisimportanttorespectuniversityautonomy.Inhigher

education,theimplementationofQArequiresdifferentapproachwithschoolinspection.The


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principleof respectinguniversityautonomy inUK is reflectedamongothersbynot issuingany

legislatureorregulation,andrelymoreonpromotinginternalQAthroughenhancingawareness,

understanding,andimplementationskills.

d) In designing the mechanism for implementing RPL, specific characteristics of individual field

shouldbewelltakenintoaccount.Attemptstodevelopinflexibleanduniformmechanismmight

riskfalseexpectationfromthepublic.Howevertheaccountabilityshouldalwaysbemaintained,

byinvitingexternalpartiestotheassessmentandconductmeta-evaluationwhenevernecessary.

Itisrecommendedtorespecttheinstitutionalautonomyinconductingassessment,andavoida

“straightjacket”approachinconductingtheRPLassessment.

NeverthelessitisessentialtodevelopanagreeduponnationalapproachonRPL,particularlyto

bring coherenceand consistency to theRPL implementation.Anational approach should take

into account the developments already taking place both nationally andinternationally, that it

will ensure coherence and developwidespread acceptance of the outcomes. These principles

willbebuiltontodevelopoperationalguidelineswhichwilllaterbeanexemplarofthenatureof

arrangementsthatfurtherandhighereducationandtrainingbodies

e) Thereareat least4differentschemesapplied inconductingRPLassessment,namelyrequiring

individual to take the required course, reviewing the portfolio, conducting interview, and

observingtheworkcarriedout.Theschemeused isverymuchcasebycasedependingonthe

subjectarea,andlocalcontext.

However,generalguidelinesforconductingassessmenttomaintainthequalitystandard isstill

necessary. In developing RPL guidelines for Indonesia, it is highly recommended to use the

documenttitled“RPLmatters inDIT:Policyandpracticeguide forDITstaff,2010edition”asastarting reference to allow better view in the scope of governance in implementing such an

approach.

f) The establishment of an information centre to support the international academic and

professional mobility is important allowing better understanding, better process, better

information in recognizing national or international qualifications. In the Ireland case, the

establishment of the Irish ENIC-NARIC (European Network of Information Centres-National

AcademicRecognition InformationCentres)providestheessentialsupporttoallowthevarious

mechanismintheimplementationofqualificationframeworkworkaccordingly.

g) In both Ireland and England, the QF national agency is established within the government’s

auspice, though its independency is strongly assured. Although state funded, the organization

hasthelibertytoapplytheprincipleof“feesforservice”,wherebythebeneficiariesarecharged

with fees in acquiring its services (“BLU”-like). Thebeneficiaries include, individual seeking for

certificateofcompetency,andeducationprovidersseekingforaccreditation.


149

ItineraryofthestudytriptoIrelandandEnglandMay9-16,2015

DATE DAY LOCATION AGENDA PROGRAM

9 May Saturday ArriveinDublin(throughLondon-Gatwick)

10 May Sunday Dublin BriefingbyProfMariaSlowey Briefing

11 May Monday Dublin QualityandQualificationofIreland

DrPadraigWalsh,CEOofQQIandPresidentofEAQA Governance,funding,QF,QA

MsNiamhLenehan,ManagerofQualification

recognitionENIC-NARIC.net

DrBryanMaguire,HeadofQualificationServices ImplementationofQFandRPL

Dublin DepartmentofEducationandSkills

MsMargaretCondon,Ass.ChiefInspector QAinschools

Dublin IrishUniversityAssociation

DrLewisPurser,Dir.AcademicAffairs,IUA UniversitiesandQF,RPL

Dublin HigherEducationAuthority:

DrTomBoland,ChiefExecutiveHEA-Ireland

DrFergalCostello,SystemGovernance HEpolicies,funding,andstrategies

DrMuirisO’Connor,theHeadofSystemand

Governance

12 May Tuesday Dublin DublinCityUniversity:

MrTrevorHolmes,VicePresident Introduction

MrPaulSmith,InternationalOffice

DrWiliamKelly,DeanofTeachingandLearning Learningoutcome

DrSarahIngle,DirectoroftheQPO Qualityassurance

ProfMarannByrne,BusinessSchool

QualificationsintheAccounting

profession

MsMaeveLong,DirectorofINTRA Internshipprogram

ProfAnneMatthews,HeadofSchoolofNursingand

HumanSciencesRPL,Nursing

ProfessorEithneGuilfoyle,VicePresident Lunch

Dublin DublinInstituteofTechnology

DrRobertFlood,HeadofInternationalOffice Introduction

DrRalfBurbach,HeadoftheHospitality

ManagementDiscipline

QualificationsintheHospitality

profession

DrAnnMurphy,anRPLexpert RPL

13 May Wednesday Dublin TrinityCollegeDublin Governance,funding,QF,QA

DrJulietteHussy,VicePresident

MsRoisinSmith,QualityOffice Learningoutcome,RPL

MrRonanHodson,InternationalOffice

DeparttoLondon

14 May Thursday London InstituteofEducation-UCL

ProfAndrewBrown,ProDirectorforacademic

developmentLearningoutcome,RPL

DrChristineHan,SeniorlecturerinEducation


150

PaulGrainger,DeptofLifelonglearningand

comparativeeducation

DATE DAY LOCATION AGENDA PROGRAM

London QualityAssuranceAgency: Governance,funding,QF,QA

MrIanKimber,DirofQualityDevelopment

MsHarrietBarnes,AsstDirrforstandards,quality,

andenhancement

MrFabriozioTrifiro,Internationaladviser 15 May Friday London MiddlesexUniversity RPL,QA,QF

ProfAnnaKyprianou,DeanofBusinessSchool;

ProfCarolCostly,Directoroftheinstituteof

WorkbasedLearning;

Learningoutcome,RPL

DrMikeWing,Registrar; DrMyraPerry,Internationalpartnership; DrKateDouglas,DirectorofEmployment 16 May Saturday Gatwick DeparttoJakarta

Annex-E:InternationalWorkshoponHigherEducationReform2015

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Annex E: Paper presented at the International Workshop on HigherEducationReform2015

DevelopingqualityculturethroughImplementationoftheIndonesianQualificationFramework36

BagyoY.Moeliodihardjo37,MegawatiSantoso38,I.B.ArdhanaPutra39,SumarnaF.Abdurrahman40,MariaSlowey41,Ann

Doolette42,AndreaBateman43,AnnaAgustina44

AbstractAsafoundingmemberoftheASEAN,IndonesiahastoimplementtheASEANEconomicCommunity(AEC),which

willcommenceinJanuary2016.In2012IndonesiahasestablishedtheIndonesianQualificationFrameworkswith9

levels of qualifications that becomes amain reference for defining the competence of graduates of academic,

vocational, and professional education, as well as skilled labor and professionals. As the national qualifications

framework(NQF)isarelativelynewforIndonesia,astudyteamhasbeencommissionedin2014bytheEducation

SectorAnalyticalandCapacityDevelopmentPartnership (ACDP)/ADBtodevelop its implementation roadmap.

ACDP is the Government of Indonesia facility for education sector policy research supported by the European

Union and the Australian Government, and administered by the Asian Development Bank. The authors are

membersofthestudyteamandthispaperpresentsitsinterimresults.

Anessentialaspectofaqualificationssystemisqualityassurancewhichprovidesconfidenceinthequalifications

issued.Butqualityassurancebyanexternalpartywithoutstrongproviderinternalqualityassurancemechanismis

not sustainable. The need to assure quality is strengthened by imposing standards linked to the qualifications

framework,wherebyoutcomebasededucationandtrainingisemphasizedandrelevanceofknowledge,skillsand

competences ineveryqualification levelare required.The shift is verymuch in linewith the trendofeconomic

integration,wherebymobilityofworkers,students,andteachersbecomesimperative.

Thestudyteamhasconductedaseriesofsessionswithstakeholderswithinthreepilotfields:tourism,accounting

and nursing. The key challenge identified during the study was the harmonization of a regulatory framework,

policies,andimplementation.AlsoidentifiedwasacriticalconcerninimplementingtheNQFgiventheinfancyof

theinstitutionalandregulatoryinfrastructure,despiteitsconceptualmaturity.Inresponsetotheseconcerns,the

establishment of a National Qualification Board is strongly advised. It is also strongly recommended to push

institutionalreforminhighereducationtostrengthentheinternalqualityassurancesystemtoensuresustainable

qualitymaintenanceandimprovement.

36Thispaperispreparedforthe12thInternationalworkshoponHigherEducationReform,Oct21-23,2015,TianjinNormal

University,Tianjin,China37UniversityofIndonesia38BandungInstituteofTechnology,Indonesia39BandungInstituteofTechnology,Indonesia40NationalProfessionalCertificationAgency,Indonesia41DublinCityUniversity,Ireland42Independenteducationconsultant,Australia43Independenteducationconsultant,Australia44PancasilaUniversity,Indonesia


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IntroductionNowadays globalization is an undeniable trend and unlikely to be reversed. Policy alternatives for

countriesandregionshavethustobedevelopedinthecontextoftheglobaleconomywithfreetradeof

goodsandservices,freemovementofcapital,technologyandskills,withadvancementintransportation

andcommunication.Due tosignificantdifferences incharacteristicsamongregions in theworld,each

regionneedstodesignitsownstrategyonhowtocopewiththechallengesofglobalization.

ThispaperdescribestheprocessofcopingwithinthescopeofhighereducationinIndonesia.Itprovides

aperspectiveasamemberofASEANcountryon the importanceofqualifications framework,andthe

activities related to theACDP team’s study in implementing the IndonesianQualifications Framework

(IQF)policywithintheIndonesianhighereducation.

ASEANEconomicCommunityIn the ASEAN region, member countries have decided to establish the ASEAN Economic Community

(AEC)bytheendof2015.AECenvisageskeycharacteristicsofasinglemarketandproductionbase,a

highly competitive economic region, a region of equitable economic development, and a region fully

integratedintotheglobaleconomy.

TheAECareasofcooperationincludehumanresourcesdevelopmentandcapacitybuilding;recognition

of professional qualifications; closer consultation on macroeconomic and financial policies; trade

financing measures; enhanced infrastructure and communications connectivity; development of

electronic transactions throughe-ASEAN; integrating industries across the region topromote regional

sourcing;andenhancingprivate sector involvement for thebuildingof theAEC. In short, theAECwill

transformASEANintoaregionwithfreemovementofgoods,services, investment,skilled labour,and

freer flow of capital. In addition, the single market and production base also include two important

components,namely,thepriorityintegrationsectors,andfood,agricultureandforestry[ASEAN2008].

TwelveprioritysectorshavebeenselectedforenteringAFTA,andtwoofthemhavealreadycompleted

itsMutualRecognitionArrangements.Thefiveservicesectorschosenarehealthcare,tourism,logistic,E-

ASEAN,andairtransportation.Thesevensectorsingoodsselectedareagroproducts,woodenproducts,

rubberproducts,fishery,electronics,automotives,andtextiles.

In order to facilitate themobility of workers, as well as students, among themember countries, an

agreed upon standard has to be established. In 2015 theASEANQualifications Reference Framework

(AQRF) was endorsed by the relevantministers of themember countries. The AQRF consist of eight

levelsbasedontwodomains(knowledgeandskills;applicationandresponsibility).

NationalQualificationsFramework(NQF)AsaNQFbecomesanessentialrequirement in implementingAEC,eachASEANmembercountrieshas

eitherestablishedor isestablishing itsownNQFtoenablereferencingtoAQRF.TheAQRF,acommon

referenceframeworkdesignedasatranslationdevicetosupportthecomparisonofqualificationsacross

ASEANmembercountries.

NQFs are now globally recognized as the foundation of the educational strategies needed to build

nations’ skilledworkforces to support their economic development and growth. The best estimate is

that themajority of countries – spanning all continents – has developed or is developing a national

qualifications framework for this purpose. Currents estimate place this figure as being 150 countries.

Furthermorewiththeincreasingglobalmobilityofworkers,theneedforanationalmechanism against


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whichskillsandqualificationsgainedelsewherecanberecognizedisbecominganimperative.Thelatter

hasseentheemergenceofmetaorregionalqualificationsframework,suchastheEQFandtheAQRF.

Whileeconomicgrowthisanindisputablestimulus,asillustratedintheASEANcase,thedevelopmentof

qualifications framework isalsomotivatedbyanation’s imperative to reform itseducationsystem. In

short,thereareanumberofpracticalreasonsfordevelopinganationalqualificationsframework.

Workersmobility: Economic integration facilitates the flow of goods and services, including workers,

betweenparticipatingcountries.Sincetheeducationandtrainingsystemsarewidelyvariedamongthe

member countries, an agreed upon standard is needed to regulate workers’ qualification. By

implementing such standards, workers would be eligible to take job opportunities within the region

withouthavingtotakeadditionalprocedurestore-qualifytheircompetencies.

Students mobility: Without a common understanding of each other’s qualifications, student mobility

betweencountrieswillbedifficulttoimplement.Thisisparticularlytruewhenmembercountriesdonot

have a similar education and training system and require the transparency that a qualifications

frameworkcanprovide.

Relevance: When establishing program learning outcomes stakeholders, particularly employers and

users,mustbeinvolved.Suchinvolvementwouldimprovetherelevanceoftheeducationandtraining

totheworldofwork.

Lifelonglearning:Economicgrowthbringsnewprosperitythatdrivesadultemployees,whomightmiss

the opportunity to properly attend schooling, to reenter the education and training system. Someof

their work experiences could be recognized, exempting them from taking some courses. Without a

qualifications framework that provides for qualifications linkages and promotes recognition of prior

learning, such an activity could be tedious, cumbersome, and eventually discourage adults from

continuing the learning. In the world of work, experiences could also be used to acquire formal

recognitionthatdirectlybenefitsemployers’career.

Accountability of providers: Learning outcomes at program level are required to be well articulated

givingsufficientinformationtotheprospectivestudentsandparents.Thisaccountabilityisrequiredas

partofgooduniversitygovernance.

TheACDP024studyObjectives

TheGovernmentofRepublicof Indonesia (representedby theMinistryof EducationandCulture, the

Ministry of Religious Affairs, and the Ministry of National Development Planning / Bappenas), the

Australian Agency for International Development (AusAID), the European Union (EU), and the Asian

DevelopmentBank(ADB)haveestablishedtheAnalyticalandCapacityDevelopmentPartnership(ACDP)

as a facility to promote policy dialogue and institutional as well as organizational reform of the

educationsectortounderpinpolicyimplementationandhelpreducedisparitiesinprovincialanddistrict

educationperformance.Withinthiscontext,theACDPcommissionsastudyteamtoconductthestudy

forsupportingthedevelopmentoftheIndonesianQualificationFramework.

Thedevelopmentobjectivesofthisstudyaretocontributetowardsachievingnationalmediumtolong

term socio-economic goals by supporting efforts to improve the quality, efficiency, relevance and

competivenessofnationaleducationand skills formation through theestablishmentof an Indonesian

QualificationFramework (IQF)andassociatedsystemsandcapacity.The final reportwill comprise the

roadmapfortheimplementationoftheIndonesianQualificationFramework,withreferencetothe


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ASEAN Qualification Reference Framework; the development of the Recognition of Prior Learning

system;andtheestablishmentoftheIndonesianQualificationBoard.

Strategychosen

Thisstudywasdesignedfor15monthsofworkthatitwillbeimpossibletocovertheentirespectrumof

available fields.Thereforethreefieldswereselectedaspilots,andtobeusedasreferencefor further

developing the qualification framework for other fields. The aspects are considered in the selection

process:nationalpriority,feasibility,impact,andrepresentativeness.

Tourism,Accounting,andNursinghavebeenselectedaspilotfields.Theyareincludedinthe12priority

integrationsectorsofAEC2015andhavealsobeenincludedintheMRA’samongASEANcountries.The

3 fields, when proposed, were also unanimously endorsed by the stakeholders participated in the

workshoponInceptionReport.

CurrentstageofimplementationHighereducationlandscape

Indonesian higher education programs are divided into academic and vocational streams, as also

illustrated in figure-1. Polytechnics and colleges are known as hosting vocational education; while

Institutes and universities are in academic mainstream. University and institute provide variety of

programsundersocialsciencesaswellasscientificsciences.

HighereducationinIndonesiaislargelyofferedbyprivateinstitutions.Thereareonly180publichigher

education institutions, out of around 4,300 institutions, are established and operated by the

government. The public institutions are mostly under the MoRTHE (126 institutions), MoRA (52

institutions), and other lineministries (175 institutions)45. The total number of registered students is

morethan6millionwithgrossenrollmentrateofcloseto30%in2014[DLSA2015].

TherehasbeenrecognitionamongstpolicymakersthatIndonesianhighereducationsystemistoolarge

a system to manage in a centralized fashion. Therefore the government has begun to gradually

decentralizingitsauthorityandprovidingmoreautonomytotheinstitutionssincetheearly1990s.The

first step was encouraging institutional planning and financial autonomy through competitive grants

introducedinthemid1990s.

TheLawonHigherEducationwasenactedinAugust2012,providingafairlycomprehensivelegalbasis

forhighereducationdevelopment, covering keyelements suchas, institutional autonomy,wider and

equitable access, qualification framework, quality assurance system, as well as strengthening of

vocationaleducationandtraining.

In term of its legal status, public universities are grouped into three categories: autonomous public

universities (PTN-BH), public universitieswith adegreeof financialmanagement flexibility (PTN-BLU),

and public universities as government implementing unit (PTN). Since the establishment of an

autonomouspublicuniversity (PTN-BH) requires government regulations, new legal instrumentshave

beenissuedforconversionof11publicuniversitiestoautonomousinstitutions.

Thehighereducationsystemishighlydiverseintermofquality.ThreeIndonesianuniversitiesarerated

high in the world and Asian ranking, but many have not even been accredited by the National

AccreditationAgency,asillustratedintable-1.Somestudyprogramsintheprofessionalstreaminmore

establisheduniversitieshavealsoacquiredtheaccreditationstatusissuedbyinternationalprofessional

45MoRTHE=MinistryofResearch,Technology,andHigherEducation;MoRA=MinistryofReligiousAffairs


155

organizationssuchasABET(AccreditationBoardforEngineeringandTechnology)andWFME(World

FederationofMedicalEducation).

Diploma(1-3years) Undergraduateprogram(S-1)

A B C A B CPublicinstitutions 60 358 148 491 921 311

Privateinstitutions 42 562 1,672 263 1,994 3,807

MoRA 0 11 5 36 387 481

Serviceinstitutions 4 68 24 1 13 12

Total 106 999 1849 791 3315 4611

Table-1:Statusofprogramaccreditation[BAN-PT2014]46

IndonesianQualificationsFramework

Asthe largesteconomyinSoutheastAsia, Indonesia isalsothe largestmarket intheregion,making it

vulnerable for uncontrollable influx of foreign workers eager to capitalize on large employment

opportunities. Inorder tocopewith thechallenges, immediateactionshave tobe taken. In the short

term, Indonesianeeds to implement itsNQFtoassistwithunderstanding theskillsof foreignworkers

andprovideanationalreferenceforthemarket.Inthelongrun,Indonesiahastoimprovethequalityof

itshumanresourcesthroughtheimplementationofqualitystandards.

Figure-1:TheIndonesianQualificationsFramework[ACDP2015]

In2012thePresidentialRegulation8/2012ontheIndonesianQualificationFramework(IQF)was

enacted.ThePresidentialDecreestipulatesahierarchyof9qualificationlevelstoenableequivalencing

46A=excellent,B=Good,C=Accredited.About20%ofprogramsarenotaccredited


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the learningoutcomesof formaleducation,non-formal, informal,orworkexperiences. Thisnotionof

equivalence is illustrated in figure-1. It indicates that the IQF serves as a reference for placement in

accordance with recognized competence in the job structure in various sectors, and also becomes a

fundamentalreference indefiningthecompetenceofgraduatesofacademic,vocational,professional,

andnonformaleducation.

The levelsof the IQF isdescribedas learningoutcomes, consistingof (i) values,ethics,moral asbasic

components;(ii)science,knowledge,orknowhowcomprehension;(iii)workcompetencies;and(iv)level

ofautonomyandresponsibilityintheworkplace.ThePresidentialRegulation8/2012ontheIndonesian

QualificationFramework(IQF)doesnotdescribequalificationsbutnotesfurtherstipulationstotheIQF

istobegovernedbythe‘ministerhandlinglabourissuesandtheministerinchargeofeducationaffairs.

Assuringqualityinhighereducation

All competency standards and qualifications imposed are meant to establish agreement by all

stakeholders.Sincethenatureofvocationaleducationandskillstrainingisclosertotheworldofwork,it

isunderstandablethatthissectorwasthefirstinimplementingthecompetencystandards.Incountries

implementingtheBritishsystemforpost-secondaryeducation, typically theuniversitiesarethe last in

implementingit,duetotheirstatusasselfaccreditinginstitutions.

Accreditation

The Law 20/2003 on theNational Education System stipulates that accreditation ismandatory for all

educationproviders.Currentlytheaccreditationprocessiscarriedoutbythefollowingagencies,

• NationalAccreditationAgencyforBasicandSecondaryEducation(BAN-SM);

• NationalAccreditationAgencyforHigherEducation(BAN-PT);

• NationalAccreditationAgencyforNonFormalEducation(BAN-PNF);and

• IndependentAccreditationAgency(LAM)47

• NationalAgencyforProfessionalCertificationorBadanNasionalSertifikasiProfesi(BNSP)Accreditationofprofessionalcertificationagenciesoutsidetheeducationsectoristheresponsibilityof

theNationalAgencyforProfessionalCertification(BNSP)under theMoM48. Inadditiontothese

agencies,therearesomeprovidersunderotherlineministrieswhichoperateoutsidetheeducation

system,suchasthepoliceacademyandthemilitaryacademy.

In the education sector, accreditation process is conducted by using the National Standards on

Education as the main reference. Although learning outcomes have been included in the national

standards, thecurrentassessmentprocessdoesnotassignsignificantweighttotheoutcomes.Oneof

thepossiblereasonsisthatassessorsarenotyetsufficientlytrainedtoassesseducationaloutcomes.

Somestudyprograms inmoreestablisheduniversitiesalsoacquire international accreditation,mostly

from international professional associations such as, the Accreditation Board for Engineering and

Technology(ABET).IntheASEANregion,theAsianUniversityNetwork(ANU)providesservicestoassess

thequalityofaneducationprovider,andsomestudyprogramshavebenefittedfromsuchservices.

47LAMsarecurrentlyestablishedtoaccredittheprofessionaleducation,suchasmedicaleducationandengineeringeducation.

In themediumterm, themandateof LAMwillbeexpanded tocoveraccreditationofall studyprograms,whilstBAN-PTwill

focusitsattentiontoconductinstitutionalaccreditation.48MoM=MinistryofManpower


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Professionalcertification

InthecontextofIndonesia,thehighereducationsectoralsocoversvocationaleducationconductedby

polytechnics, the newly established community colleges, and universities as well colleges49. Many of

these programs are also licensed to organize certification process on behalf of relevant professional

association. Insomefields,theprofessionalcertificatesbringsignificantbenefitstothegraduatesthat

manyalsoputeffortstoacquireit,eitherthroughtheirhighereducationinstitutionordirectlyfromthe

professionalassociation.

In specific sector suchasHealth,anationalexitexamination isorganizedby the relevantprofessional

association. Only examinee passes this examinationwould be certified, andwithout this certificate a

graduate is not eligible to acquire the license for practice. Such national exit examination has been

imposedformedicaldoctors,andwillalsobeappliedfornurses.

Neverthelessexitchecksortestsshouldbeaccompaniedbyassessmentofinputsaswellasprocesses.

Inmanycases,overrelianceonexitcheckstendstoencouragemanipulation.

Internalqualityassurance

Sincetheconnotationof“assurance”isprovidingconfidence,qualityassuranceshouldinvolveexternal

parties.Althoughexternalevaluationisanimportantaspectinassuringquality,qualityassuranceshould

also be internally driven. In the long run, over reliance on external quality assurance will not be

sustainableinIndonesia.

The concept of continuous quality improvement (Kaizen), was considered as the strength of the

JapaneseindustriesinitscompetitionwiththemoreestablishedindustriesintheWesternhemisphere.

Kaizenwasoriginally introduced to theWestbyMasaaki Imai [Imai1986].TodayKaizen is recognized

worldwideasanimportantpillarofanorganization’slong-termcompetitivestrategy.

Nowadaysthecultureofcontinuousqualityimprovementhasbeenadoptednotonlybyindustries,but

also by organizations in the social sector, including educational organizations. Therefore the

development of quality culture in any learning organizations should eventually become the ultimate

objectivetoensuresustainability.Thelessonslearnedinmanufacturingorganisationscanbeappliedto

educationalinstitutions.

Internal quality assurance unit is currently mandatory in all higher education institutions, but its

effectiveness varies significantly among institutions. Whilst some best institutions are currently

developingclearstrategies towardachievingan institutionalqualityculture, thebulkof theremaining

institutionsarestillstrugglingtocopewiththeaccreditationrequirements.Thepolicydirectionsofthe

MoRTHEshouldprovideaclearmessagethatstronginternalqualityassuranceistheultimateobjective.

Implementationofcompetencystandards

Skillstrainingproviders

Competency standards have been commonly implemented outside the higher education sector,

particularlyforskillstrainingprogramsinIndonesia.Theseprogramsaremostlyadministeredunderthe

auspice of Directorate General of Early Childhood and Non Formal Education under the Ministry of

Education and Culture (MoEC) and Directorate General of Training and Product under MoM50.

Nonetheless,varioustechnicalministriesandindustriesalsoundertakeskillstrainingsundertheir

49Vocationalprogramscarriedoutbyuniversitiesareshortcyclenondegreeprograms50Thisgroupingisderivedfromtheprevailingregulations(Law20/2003)andalsoimplementedintheorganizationalstructure

oftheMoEC


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trainingunits(PendidikandanPelatihan).Thelatestfigureacquiredin2014indicatesthatunderMoEC

andMoM27,321courseandtrainingprovidersareregistered.

CompetencyBasedTrainings

TheconceptofcompetencybasedtrainingwasdevelopedunderMoMaftertheLawonManpowerwas

enactedin2003.Acompetencyisdefinedasaworker’sabilitytoperformjobasrequiredbyemployer.

Intheimplementation,BNSPprovideslicensetoprofessionalcertificationbodies(PCB)tocarryoutthe

certificationprocess.PCBsarelegalentitiesestablishedbyindustryand/orprofessionalassociation.

TheGovernmentRegulation31/2006onNationalSkillsTrainingSystemwasissuedasaplatformforthe

integratedcompetencybasedtrainingsystem.Thesystemdescribesthreepillarsofcompetencybased

training system, namely competency standard, competency based skills training program, and

competencycertification.The3differentcompetencystandards(knowledge,skills,andattitudes)used

aretheNationalCompetencyStandard(NCS),internationalstandards,andspecialstandards.

The development of NCS involves MoM, other relevant technical ministries, and the Committees of

CompetencyStandard.CompetencyBasedTraining(CBT)isatrainingapproachwhichincludesmodules,

trainingaids,methods,and instructors.Theapproachaims toapplycompetencybasedstandardsand

implementprinciplestoensureagraduateacquirescompetenciesasrequiredbytheNCS,andiseligible

toreceivetheCertificateofCompetency.

Bytheendof2014,406packagesofcompetencystandards(SKKNI)havebeendevelopedforthemain

economic sectors. The number of SKKNI yet to be developed is still very large, considering the rapid

advancementoftechnologyintheindustries.Jobsininformationandcommunicationtechnologyaswell

aslogisticsarefewexamplesofnewoccupationsinthemarketthatrequiredefinitionsofcompetency

standards. In theperiodof 2005 to2014, the accumulatednumberofworkers certifiedbyBNSPwas

approximately2.1million. Inordertoachievethegovernmenttargetof10millioncertifiedworkers in

2019,alargenumberofadditionalpackagesareneededinthenearfuture.

ProgramsadministeredbyMoEChadbeeninoperationformanyyearswhentheIQFdecreewasissued.

Therefore a significant proportion of the structure has to be adjusted to comply with the new IQF

standards. The learning outcomes also need adjustment, particularly shifting the emphasis from

educationalachievementstomoreskillsformation.

RecognitionofPriorLearning

AlthoughRecognitionof Prior Learning (RPL) has beenwidely practiced in the industries to recognize

employee’scompetenciesforhis/hercareerpromotion,anationalstandardprocedureisrelativelynew

forIndonesia.TherecentinitiativetoimplementRPLinIndonesiaaimstowidenaccesstoeducationby

providing theopportunity foremployedworkers topursue furtherqualificationsby reentering formal

highereducation.Theirexperiencescouldbeusedtowaiversomeofthemandatorycoursework.

Similarproceduresareapplicableforvaluingqualificationimprovementofteachingstaffwhoapplyfor

permanent faculty status. A more important benefit is in capitalizing the expertise of industrial

practitioners, who, without an RPL process will not be eligible to become lecturers in vocational

programs.InordertofacilitateRPLimplementationinhighereducation,theMoEC73/2013decreewas

issued. The decree promotes RPL for life-long learning and RPL for recognizing professionals with

qualificationsatlevel8and9tobecomelectures.However,anoperationalguidelinetorecognizeone’s

expertise and assign individuals in the institution’s personnel system is required to assist

implementation.


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In 2013 the Directorate of Learning and Student Affairs MoEC launched a pilot program for RPL in

selected study programs in public polytechnics. Evaluation after one year shows that in general the

resultshavenotbeenasgoodasexpectedandasignificanteffortisstillneededtoimprovethedesign

andimplementationmechanisminthefuture.

Defininglearningoutcomes

The Presidential Decree on IQF requires all education programs, as well as courses and skill training

offerings, to adjust their learning outcomes to reference the IQF. At the beginning of this study,

descriptors in75studyprograms in29subjects/professions,within the8prioritysectors,havebeen

drafted;and25descriptorswereaddedtothedraftattheendof2014.

Sincethequalityofeducationissignificantlydiverse,somelessdevelopedinstitutionsproposetohave

tiered national standards, whereby the standards are set differently for them. Unfortunately such a

proposal is not a commonly accepted practice in the global platform in which Indonesia is going to

participate.

Thedecreerevivestheconceptofcompetencystandards incoursesandtraining.Coursesandtraining

thatpreviouslyusedcompetencystandardswhichemphasizededucationachievement,nowshouldshift

toskillsformation.Inordertoimprovetransparency,thequalificationsandcompetenciesofagraduate

shouldbestatedinadocument,termedaDiplomaSupplement,asrequiredbyMoECDecree81/2014.

Althoughthereputationof the issuing institution is still crucial invaluing thesupplement, it isagood

intentiontowarddevelopingtrustandconfidence.

InterimfindingsandanalysisThestudyteamconductedseveralworkshopswithrelevantstakeholdersineachofthe3-pilotedfields.

Theteamalso tookseveral importantstakeholders tooverseasstudy trips toHongKong, Ireland,and

England.Thefollowingsectionspresentthesummaryofthefindingsandanalysisthisstudy.

Issuesonsynergy

Segmenteddevelopment

Activities in the development of qualification framework have been conducted by several ministries,

professionalassociations,andindustries,withlimitedornocoordination.Thethreemainplayersarethe

MinistryofManpower51,MinistryofEducationandCulture52,andMinistryofResearch,Technology,and

Higher Education. Until recently the development of qualification framework could be considered as

segmented,between theeducation sector (underMoEC)and the skills training sector (underMoMT).

UnderMoMtheprocessof certificationhasbeenconducted longbefore thedecreeon IQF is issued,

usingtheLawonManpower13/

The segmented development increases cost, drives the system into cumbersome bureaucracy due

unnecessaryduplication,andslowingdownIndonesian’spreparationtoentereconomicintegration.

Weakcoordination

ProvidersundertheMoMusetheterm“training”,whilstthoseunderMoECusetheterm“course”. In

practice these two terms are very similar, since the curricula are quite similar.Most providers under

bothministrieshavetoseparately registertoMoMandMoEC.Eachofthetwoministriesestablished

51UntilOctober2014wascalledtheMinistryofManpowerandTransmigration(MoMT)52AfterOctober2014HigherEducation,Research,andTechnologysectorshavebeenmergedintoanewlyestablishedMinistry

ofResearch,Technology,andHigherEducation(MoRTHE)


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separate units for registration, accrediting process, conducting assessment and certification process.

Manyproviders submit registration tobothministries, particularly to acquire recognition and funding

assistancefrombothsides.

Policyanddecisionmakersinthegovernmentbureaucracytendtoavoidissuingregulationsoutsideits

jurisdiction.Insomeaspects,however,itisdifficulttocontainanalysiswithinacertainsector.Henceit

is not uncommon to find overlapping, sometime even conflicting, regulations issued by these 2

ministries.Otherministries andagencies add to the complexityof theproblemby issuing regulations

withlimitedcoordinationwiththese2majorplayerministries.

Mobility of skilled workers is one of the consequences of economic integration. Without a single

nationalagencycoordinatingtheregulations,itwillbedifficultforIndonesiatocopewiththechallenges

ofregulatingthemanpowermarket.

Lackofnationalstandardsasareference

Insomesectors,theimplementationofcompetencystandardsintherelevantindustriesisalreadyinthe

advanced stage. Tourism is anexampleof such sector,whereby standard in competencieshavebeen

implemented long before the IQF was decreed. On one hand such advanced stage benefits the

dissemination process of IQF, but on the other hand it requires a significant effort to harmonize the

existingstandardswiththeIQF.Whentheindustriesinthissectorbegantoimplementthestandardof

competencies,anationalstandardtobeusedasareferencedidnotexistthattheyhadnochoicebutto

developonebythemselves.

As a selected sector in this study, the tourism sector is perhaps a unique case, since Indonesia is

currently considered as already in the advanced stage compared to other ASEANmember countries.

SomeissuesinthissectorneedtoberesolvedinordertocomplywithIQF.Theyarenomenclaturesthat

do not fit with the national standards as required by the IQF, job titles defined by providers do not

confirmwiththejobtitlesregionallyagreeduponintheASEANMRA,andlearningoutcomesthatdonot

complywiththeIQFnorms.Inthisstudysignificanteffortshavebeengiventoprovideassistancetothe

providersthroughseriesofFGDswithstakeholderstoresolvetheproblems.

Thecaseillustratesthecriticalroleofnationalstandardsinthedevelopmentandimplementationofa

qualifications framework.Withoutnational standards as a reference, thedevelopmentof standardof

competenciesbecomesfragmented,segmented,anduncoordinated.

Irrelevantlearningoutcomes

In some fields, the development of learning outcomes has not properly involved the stakeholders,

particularlyemployers,inameaningfulmanner.Oneofthesectorsselectedtobestudiedisaccounting.

It is only one example of sectors with irrelevant learning outcomes that at odd with the job titles

availableintheworldofwork.

Accounting is one of themost favorite programs which attracted the largest number of high school

graduatestoapply,drivingmanyhighereducationinstitutionstoopennewprogramsinaccounting.At

theendof2013578undergraduateprogramsinacademicstreamand4743-yearvocationalprograms

in accounting were offered. Since the IQF requires a distinct learning outcome for each program,

providersalsotriedtodefineaspecificjobtitleforeachprogram.

Howeverthe jobtitlesdefinedbyprovidersas itstargetaremostly irrelevanttotheemployers’need.

According to employers, only 3-year vocational programs and 4-year undergraduate programs in

academicstreamarerecognized.Furthermore,manyemployersassignedgraduatesofbothprogramsat

asimilarentrylevel,illustratingimproperdemandanalysisbytheproviders.Currentlyworking


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competencies as well as knowledge comprehension between graduates at different levels cannot be

clearlydifferentiated.Anattempttousethe InternationalFederationofAccountants(IFAC)asabenchmark

byprovidersfailedtoproducesatisfactoryresults.Finally,theofferingofthenewD4programcreates

morecomplicationratherthansolvingtheexistingproblem

The case of accounting is not unique and itmight also be found in other sectors aswell. During this

study, a rigorous assistance through series of FGDs has been provided to rectify the problem.Many

providers do not have sufficient capacity to solicit meaningful inputs from the stakeholders, and

providers’ initiated workshops failed to attract the appropriate industrial experts to participate.

Therefore a program to provide technical assistance is needed for such sectors to enable them to

formulatethelearningoutcomes.

BenefittingfromRPL

TheIQFalsoopensnewopportunitiesthatpreviouslywerenotpossible,suchastherecognitionofprior

learning(RPL).AlthoughRPLhasbeenimplementedbyindividualhighereducationinstitutionaswellas

individual industry for quite some time, a nationalmodel is yet to be developed. TheMoEC73/2013

decreeonRPLprovidesnewopportunities,asillustratedinthefollowingsections.

Lifelonglearning

AnationalmodelinRPLisneededwhenanadultwithsufficientworkexperienceswouldliketoreenter

the formaleducation.His/herexperiencesneedtobeproperlyassessedbeforeadecision ismadeon

whether some academic works could be exempted. Such mechanisms are not uncommon in some

highereducationinstitutions,albeitinfrequent.

Aproblemariseswhenthenationalsystemhastodealwithamassivevolume,suchastheupgradingof

46,000 unqualified nurses. The Law 38/2014 on Nursing requires D3 as a minimum qualification to

practicingnurse.Asaconsequence,unqualifiednurseswhocurrentlyarepracticinginhospitalshaveto

beupgradedtoD3.Thegovernmentfirstpriorityisgiventonurseswithpublicservantstatus,whichis

estimatedat46,000nurses.Whenthecoverage isextendedtothoseworking inprivatehospitals, the

number couldeasilyexceed100,000.Mostof themhavebeen in service for years that someof their

workexperiencescouldberecognizedtogetwaiverstosomeoftherequiredacademicworks.Without

anationalmodelasareference,thereariskofnegotiatedquality.Sincethenurseprofessiondealswith

patients,theriskwouldbeintolerable.

Industryexperiencedlecturers

In some fields, particularly vocational education and profession, lecturers with extensive working

experiences is verymuch preferable. In the fields such asmanufacturing, engineering, or performing

arts,lecturerswithworkingexperienceisessential.Manypotentialcandidatesforlecturer,however,do

notpossesstherequiredformalqualification.TheLaw14/2005onTeachersandLecturersrequiresthat

lecturersshouldholdatleastS2qualificationtobeeligible.

TheMoEC73/2013decreeprovidesasolutiontotheproblembygivinganopportunityforthemtomeet

therequirementthroughanRPLprocess.Evidenceoftheirworkingexperiencewillbeassessed,andif

allcriteriaaremetwouldgrantthemtheformaleligibilitytolecture.Grantingeligibilitydoesnotmean

toawardthemwithdegreethoughitmightincludefinancialincentives.


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Qualityassurance

Continuousimprovement

InmanycasesinIndonesia,competencytestisconsideredasaneffectivemethodtomaintainstandards

that it is implemented by some professional associations, such as medical doctors and accountants.

Similar principle of exit test or examination is also used in tests leading to certification.Other cases,

whereby the similar principle is applied, are secondary school final examination and the entrance

examination to the university system. In both cases, the decision of pass or fail is almost entirely

dependent on that one time assessment event. In these cases the reward of passing the exam is

significantly high that drives some participants to beat the systemby cheating or othermanipulative

measures.

Thereforethequalityassurancesystemhastoberigorouslyimplementedinternallywithinthetraining

providers and externally through accreditation, as well as othermechanisms. The oversight agencies

should send a clear and sound signal to training providers that the exit examination should not to

becomeanultimategoal,insteadaseriousattentionshouldbegiventostrengthentheinternalquality

assurance and broadening the assessment model. As for now, some of the autonomous public

institutions failed to demonstrate their strong commitment to develop a sustainable quality culture,

whilst they are supposed to become the national model for the implementation of institutional

autonomy.

Diversity

Intermsofqualitythesystemishighlydiverse:afewlistedasAsianeliteinstitutionswhilstthousands

aresmallandhavefailedtoearnaccreditationstatus.Thebestinstitutionspossesstherequiredcapacity

tobuildits internalqualityassurancesystemtowardaqualityculture.Butthebulkinthesystemdoes

nothavesufficientcapacityandresourcestodothat.

Assessmentprocess

Currentlymostassessmentprocessesarecarriedoutwithtoomuchemphasisoninputsandprocesses,

and less attention to outputs and outcomes. Due to the very large volume of works to carry out by

accrediting agencies, it tends to be toomechanistic instead of qualitative expert judgment based on

synthesizingarangeofavailableevidence.Althoughmostkeypersonnelintheseagenciesareawareof

the problem, the lack of autonomy does not allow them to quickly respond to the change. Limited

resources,fundingaswellasqualifiedassessors,addtotheobstaclestocopewiththechallenges.

ConcludingremarksAtthisstage,theteamconcludesthatthereisanurgentneedforthegovernmenttoestablishanational

agency-mightbecalledtheIndonesianQualificationBoard–thatprovidescoordinationfunctionwithin

the activities necessary conducted related to the implementation of IQF. Therefore, its main

responsibilitiesaretocoordinate,maintainqualitystandards,metaevaluatetheaccreditationagencies,

liaise with international agencies, and promote IQF to the stakeholders. In order to carry out such

responsibilities, this agency should be positioned above all ministries. However this agency is not

expectedtotakeoveractivitiescurrentlycarriedoutbyvariousgovernmentunits.

The implementation of IQF provides the country with a national reference, benefitting both the

education and training provides as well as the employers. It also helps the country in its transition

toward integrating its economy regionally. Meeting the required adjustments might not be easy for

somesectors,andneedconsistenteffortandstrongcommitment.Havingsaidthat,theteamstrongly


163

suggests that the establishment of a national reference should not reduce institutional autonomy in

highereducation,insteaditshouldstrengthentheinstitutionalaccountability.

InalargedevelopingcountrylikeIndonesia,somesectorsandinstitutionsaremorepreparedtomake

adjustmentsthanothers.Thegovernmentshouldprovideassistanceandsupportforthoseinstitutions

thatenable themtocopewith thechallenges.The teamwouldsuggest for thegovernment todesign

andimplementasystematicprograminelevatingthecapacityoflateadopterinstitutions,soonerthan

later.

Itiscriticalforthecentralgovernmenttosendaclearmessagetoallplayersandstakeholdersthatthe

ultimate goal is to build a culture of quality within each institution across all education and training

sectors.Allkindsofassessment,includinginstitutionalaccreditationandindividualcertification,aimto

provide feedback to internal continuous improvement processes. The IQF implementation could

becomeacriticaljunctureforthehighereducationsectortoreformitself.

Itisrecommendedtoprovidetheautonomouspublicinstitutionswithaseedfundingandassistanceto

establishanindependentQualityNetworkAgency,witharesponsibilitytomonitorandassistthequality

assurancewithintheseinstitutions.Itwoulddemonstratetheaccountabilityoftheseinstitutionstotheir

stakeholdersbydevelopingassessmentproceduresthatmeettheinternationalstandards.Althoughthis

agencyisindependent,establishedandownbytheconsortiumoftheautonomousinstitutions,itcould

receivesupportfromthegovernment,atleastatthebeginning.Inthemediumterm,thisagencyshould

share its expertise with non autonomous institutions by conducting training and providing technical

assistance.

At the end, it is fair to say that the higher education sector should reform itself by introducing,

enhancing,andstrengtheningtheinternalqualityassurancetowardasustainablequalityculture.Inthis

context thegovernment could interveneby introducing funding schemes thatencourageand support

theinternalqualityassurancesystem,aswellasprovidethenecessarytechnicalassistance.

AcknowledgementThis paper is prepared by the study team on “Support to the Development of the Indonesian

Qualifications Framework”, for PT Trans Intra Asia under the Analytical and Capacity Development

Partnership (ACDP), funded by ADB-EU-AusAID. The authors are indebted to the ACDP, without its

supportthispaperwillnotbeabletobepresented.

Bibliography[ACDP2015]AnalyticalandCapacityDevelopmentPartnership,“StudyforsupportingthedevelopmentoftheIndonesianQualificationFramework”,InterimReport-ACDP024

[ASEAN2008]ASEANEconomicCommunityBlueprint,theASEANSecretariat

[ASEANMRA2013]HandbookofASEANMRAontourismprofessionals,2013

[BNSP2015]BNSPpresentationmaterial,15June2015

[DLSA 2015] Database on Higher Education Institutions (PDPT), Directorate General of Learning and

StudentAffairs,MoRTHE,unpublishedmaterials

[Imai1986]Imai,Masaaki.Kaizen:ThekeytoJapan'scompetitivesuccess.NewYork,McGraw-Hill

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