Introduction and context
NQF snapshot
Kyrgyzstan adopted its NQF by Ministerial Order on 17 March 2016. The law provides for 9 levels in the NQF, its ninth covering highly specialized post-doctoral qualifications.
Although Kyrgyzstan ratified the Lisbon Convention on the recognition of qualifications in 2004, it is outside the geographical coverage of the European Cultural Convention of the Council of Europe.
Educational, social, economic and political context
Kyrgyzstan is a developing country with a population of approximately 5.7 million. People aged under 20 account for 41% of its population; those aged 20-29 are a further 20%. The economy is unable to provide adequate work for many young people, so youth unemployment is high, at 18%.
More than 600,000 Kyrgyz are outside the country. Agriculture and construction are key industries, while the service sector is expanding at the fastest rate. Remittances are an important source of revenue. High poverty levels are present- in 2016, 25.4% of the population was still below the poverty line; poverty is most entrenched in the countryside. Educational attainment is broadly greater among urban citizens.
The informal economy is extensive, in fact it is estimated that three-quarters of all employment is in the informal sector.
Politically, the country crossed a watershed in 2010 with the establishment of a parliamentary system of government; a new government and new president were elected.
The education and training system is poorly integrated, so that the NQF should address the issue of building pathways. VET remains a second-class option, though specialists of VET system are in more demand on a labour market rather than alumni of higher educational institutions.
Policy objectives
Education and training reforms
The NQF is an element in the Education Development Strategy 2020; its other aims in VET include improving quality, boosting labour market relevance and increasing access.
Objectives of the NQF are to enhance transparency of qualifications; facilitate mobility of citizens to other countries; structure and integrate education and training systems in the country; enhance employability; boost lifelong learning; and link qualifications better to the labour market.
International cooperation
NQF development in the country has depended on donor support, including from the EU e.g. via Tempus in higher education or the European Training Foundation; the Asian Development Bank, DVV and the Gustav Streseman Institute, the Soros Foundation and others. Sectoral frameworks were developed, for example in tourism and construction.
More broadly, The NQF and Sectoral Qualification Frameworks are significantly influenced by the EQF and the Bologna process, which can be seen in the structures, functions, and learning outcomes basis. The Order explicitly refers to these frameworks as influences.
The development of a NQF in the country depends on donor support, for example European support in the framework of the Tempus program in higher education or through the European Training Foundation; Asian Development Bank, DVV International, Gustav Stresemann Institute, Soros Foundation and other organizations.
Levels and use of learning outcomes
Alignment to other classification systems
A manual on the national classification of occupations is applied. It includes 10 consolidated groups, divided into subgroups, but these concerns occupations rather than qualifications in an explicit form; the levels used in the classification correspond to educational levels. At the same time these qualification levels of can be obtained outside the education system, using various approaches.
In addition:
- The Law on Education, indicates the levels of education in force in Kyrgyzstan. It is foreseen that in current legislative changes these will be related to the NQF
- State educational standards are confirmed with a specific credit value.
NQF levels and level descriptors
The descriptors are described in learning outcomes, using three columns, Knowledge and understanding, abilities and skills and personal competences (independence, responsibility).
Qualifications
The Order does not define “qualification”. However, it refers to qualification in the context of levels and study programs based on cycle, credits and length of the study program, for some levels. Levels of are differentiated between qualification types, however further specification is needed. The structure of the NQF takes into account advanced training in short-term courses (non-formal education), but the NQF order lacks the concept of validation of non-formal and informal learning. The term sectoral qualifications is sometimes used in specific cases (e.g. for the food industry or in gold mining) that are not part of the formal system.
Access, progression and credit
The NQF Order includes progression as a basic principle of the framework. Credit volumes are assigned to each NQF level.
Use of learning outcomes
Learning outcomes are used in the descriptors although the Order does not explicitly say all qualifications, at least new qualifications must be outcomes-based.
Traditionally, qualifications have been inputs-based. The State Educational Standards define how learners can reach specified levels of education; student attainment of such levels is confirmed by awarding of certificates, diplomas etc.
In the EU and other internal projects, qualifications were outcomes-based.
NQF scope and structure
All existing qualifications for vocational education and training, general and higher education are included.
The new Order specifies 10 levels including sub-levels 7a and 7 b; level 9 is for very high level post-doctoral qualifications, correspond to the old Soviet degree of “ Doctor of Science ”). 7a layer also includes the old Soviet qualification type of Specialist, whereas 7b - Masters degrees, as in EQF or the Bologna framework in higher education.
Stakeholder involvement and institutional arrangements
Legal basis of NQF
Formally - Order of the Ministry of Education and Science of the Kyrgyz Republic of the Republic No. 308/1 and Order of the Ministry of Labour and Social Development of the Kyrgyz Republic No. 87. of the 17 March 2016.
In 2018, work began on promoting the NQF through making changes to the Law on Education of the Kyrgyz Republic: the conceptual apparatus on the National Qualification System in the Kyrgyz Republic is also introduced in the amended Law on Education that has currently passed several readings in the Parliament at the time of writing.
A Concept on the National Qualifications System is in preparation and there is work on-going to update the NQF Order.
The Order is consistent with the Kyrgyz Republic Law on Education, the Law on initial vocational training and the Labour Code of the Kyrgyz Republic.
Roles and functions of actors and stakeholders
The Policy lead lies with the Education and Labour Ministries. The institutional mechanisms are being developed by the Ministry of Education and Science and the Ministry of Labour and Social Development.
Roles and functions are not yet defined or allocated, but actors will include the national VET Agency. Currently, the Concept of the NQS in Kyrgyzstan is being developed, where the roles and functions of institutions in the implementation of the components of the NQS will be defined.
Beyond the institutions, stakeholder engagement in developing the NQF, or in its project forerunners, has been limited. The degree of organisation of sectoral stakeholders is one of the difficulties, with SME dominating the economy. Some employers are aware of and understand NQF concepts via their involvement in the various EU and other donor-driven projects. Under the mandate of the Ministry of Education and Science of the Kyrgyz Republic, an interdepartmental working group and a group of experts is created that will directly deal with the development of the NQS concept, the action plan and the implementation arrangements. There is also a partially overlapping group supported by the GIZ project on employment promotion and VET that develops the system for validation.
The order was issued in 2016 and the relevant ministries are developing a "road map" as part of the NQS concept, taking into account the discussions of functions of various players.
Resources and funding
Funding for earlier NQF-related projects came from international donors but sustained state funding, or support from social partners locally, is a challenge.
Quality assurance of qualifications
The Order does not refer to quality assurance, and quality measures are yet to be defined and developed for validation of qualifications and provider accreditation, for example.
The Decree of the Government of the Kyrgyz Republic is in force, where accreditation criteria for educational institutions that wish to provide qualifications included in the NQF are specified. In 2018, most educational institutions passed the accreditation procedure through the authorized body (MoE) and other independent accreditation agencies (5 independent accreditation agencies are currently operating in the Kyrgyz Republic).
Moreover, in the programming documents concerning the education, such as the Strategy for the Development of Education until 2020, quality assurance is important.
Broader education policies such as the Education Development Strategy 2020 place emphasis on QA. GIZ is also supporting work on independent assessment.
Recognising and validating non-formal and informal learning and learning pathways
Experiments have been carried out over the last ten years, including with support of ADB in the light industry for seamstresses, more recently in the food industry where an independent certification centre has been establishment with support of GIZ.
More systemic approaches have been developed within the framework of the Support to Employment and VET project of GIZ, where an interdepartmental working group, consisting of key ministries, the chamber and sectoral organisations have been working on the development of a national system in accordance with a three-year plan 2017-2019.
In November 2018 a methodology was adopted by key stakeholders that has been tested for several occupations in personal care and food and catering sectors (so far 11 candidates have been certificated). Legislation has also been drafted but is not yet approved.
NQF implementation
Inclusion of qualifications in a register
Such tools have not been developed yet.
Monitoring, evaluation and review of the NQF
Mechanisms to monitor the effectiveness of NQF implementation have not yet been defined. As soon as the roadmaps have been specified there could be a tool to start monitoring the implementation.
Impact for end-users
None yet.
Referencing to regional frameworks
No formal relationship, though Kyrgyzstan ratified the Lisbon Convention on the recognition of qualifications in 2004.
Important lessons and future plans
Adoption in spring 2016 of the NQF law was a step forward. Initiatives such as NQF-Quadriga under Tempus have proposed methodologies to develop an NQF. Various donor-funded projects, including the Asian Development Bank and GIZ, have contributed elements of a qualification system, including occupational standards. Further, sectoral frameworks were piloted in sectors such as mining, light industry and food processing.
The Ministry of Education and Science is more engaged in the NQF now. Parliament is discussing amendments to the Law on Education. A working group bringing together all relevant stakeholders and experts is improving and operationalising a Concept for a National Qualification System and has initiated work with international donors to develop the wider system.
Independent development of an NQF is unlikely in the near future and the country will need to draw on international support and finance to progress its NQF.
Understanding of the functions and benefits of an NQF, especially among different stakeholders, remains limited among necessary actors; stakeholder involvement remains weak. While state institutions, the chamber and providers are more consistently involved, the wider involvement of stakeholders from sectors and regions needs strengthening.
Abbreviations
ADB Asian Development Bank
DVV German development agency, supporting adult education
EQF European Qualifications Framework
KR Kyrgyz Republic
NQF national qualifications framework
MES Ministry of Education and Science
VET vocational education and training
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