NQF Inventory - Morocco

Stakeholders have high expectations of the NQF as a catalyst for change, as expressed in the NQF reference document:

(a) to strengthen the responsiveness of education and training programmes and qualifications to skill needs of the economy;
(b) to generalise the use of learning outcomes, which should reflect the knowledge, skills and competences required by the labour market;
(c) to serve as a ‘label’ of quality for qualifications allocated in the NQF;
(d) to improve permeability between different subsectors and encourage citizens’ lifelong learning.

In this context, the limitations of the NQF may be a challenge for some stakeholders. The NQF contributes to improving transparency and linkages between subsectors and levels – for better individual mobility lifelong and life-wide. But the NQF alone cannot solve systemic problems related with dead-ends and limited permeability between levels/qualifications from different subsystems. Stakeholders/institutions need to define and use appropriate strategic and legal mechanisms, and pertinent technical, solutions to improve pathways and assure that learning outcomes can be validated, certified and used in career, personal and professional development. The National VET strategy (2021) includes measures geared towards improvement of permeability between levels and subsystems. One such measure is the creation in 2014 of new programmes integrating general and vocational curriculum, such as the bac professional.

The EU-Morocco cooperation framework is an international factor for development of the NQF and the country takes account of the EQF. A first visit of the NQF Moroccan delegation, composed of all focal points and the representative from the Prime Minister’s office, to a meeting of the AG EQF took place in May 2015 (observer status).

The Statut avancé (advanced status) of cooperation with the EU signed in 2008 opens up prospects for deep and comprehensive approximation. Different chapters of the Statut avancé point to approximation in areas related to higher education and the qualifications system and framework: strengthening of cooperation in qualifications, in particular to support transparency and recognition; negotiation of mutual recognition of qualifications to aid the mobility of service providers and investors; and negotiation of mutual recognition of licences professionnelles (vocational bachelor) in the transport trade, particularly sea and air transport. Chapter 4 (human dimension) dedicates a whole section to the approximation of Moroccan higher education to VET to the European area, and to approximation of the qualification system to the EQF.

Although not a member of the Bologna process, Morocco is reforming its higher education sector taking account of developments in the EHEA, implementing the three-cycle structure. It cooperates with projects funded by the EU and in 2014 established the national independent quality assurance body for higher education (Agence Nationale d’Evaluation et Assurance Qualité de l’Enseignement Supérieur et de la Recherche Scientifique du Maroc).

Current and planned EU programmes (sector reform contracts) include indicators and complementary assistance (twinning) targeting NQF implementation.

EU-Morocco agreements include:
(a) Association agreement signed in 1996 (entry into force in 2000): Euro-Mediterranean agreement establishing an association between the European Communities and their Member States, on the one side, and the Kingdom of Morocco ;
(b) Statut avancé: September 2008 . The Statut avancé text mentions (p.12) the possibility of approximation with the EQF, in the long-term, as a result of the modernisation of the education and training system, and enhanced transparency of qualifications;
(c) alignment of the Moroccan higher education and research and vocational training systems with the European space for higher education and scientific research and vocational training.

This will contribute to the modernisation of the education and training systems and to the evolution of acquired qualifications. In the long term, this will permit comparison with the European qualifications framework’
 

The NQF is the national instrument for structuring and classification of qualifications but it is not operational yet.

Other relevant classifications in place are:

(a) Haut Commissariat au Plan (HCP): Nomenclature nationale des diplômes (June 2000) [1];
(b) REM/REC (Répertoire des Emplois-métiers, Repertories of occupations/Référentiel Emplois- compétences, Referential jobs and competences).

The nomenclature developed by the HCP (national statistical entity) structures all diplomas in 10 large groups, with subdivisions by large group to four-digit disaggregation. The large groups are:

• diplomas and certificates of fundamental education;
• diplomas of secondary education;
• higher diplomas delivered by faculties;
• higher diplomas delivered by Grandes Écoles and higher institutes;
• diplomas of technician and medium-level personnel;
• diplomas of higher technicians;
• diplomas of professional qualification;
• certificates of professional specialisation;
• certificates of professional initiation;
• persons without diplomas, undeclared diplomas.

Important foundations for the NQF are the repertories of occupations (Répertoire des emplois- métiers, REM) and the associated referential (standards) of occupational competences (Référentiel emplois-compétences, REC), designed by sectors/branches (such as textile, tourism, and IT). REM and REC are developed by the VET department in cooperation with the sectoral federations/professionals and the relevant sector ministries (industry, tourism and others), and other partners. REM and REC are based on the principle of learning outcomes. REM describes key functions and activities by occupation, as well as key required competences. REC provides a fine and detailed description of tasks, skills and competences.

Together, REM and REC are management tools for the occupations (by sector) to reinforce coherence between learning outcomes (expressing enterprises’ needs) and VET programmes from different provider categories. As such, REM and REC can contribute to the quality of training and qualification outcomes. They are also good foundations to establish mechanisms for validation of non-formal and informal learning, and elements of career information and guidance. REM and REC have been developed for 13 sectors [2], totalling 246 fiches and 288 fiches respectively.
The NQF is seen as a tool for QA and credit recognition, hence its links with the QA framework and ECTS (still in its early development stage).

[1] Available at: http://www.hcp.ma/file/103334

[2]Sectors: REM-REC before 2009: tourism/hotels; textile/ clothing; ICT; building and public works; industrial maintenance and automotive repair; leather industry. REM-REC developed in 2009-12: offshoring; aeronautic industry; trade and distribution (Rawal plan); automotive equipment; renewable energy and energy efficiency; electronics; security and cash transportation.

The Moroccan NQF is composed of eight levels with no sublevels. The level structure of the NQF signals vertical progression, based on relevant criteria (level descriptors) defined by the principle of learning outcomes.

Since 2015, the National Agency for the Struggle Against Illiteracy has proposed to add a level, capturing the quality-assured certificate of functional literacy. This is obtained by numerous candidates at completion of programmes and in assessment carried out under the auspices of the agency.

The level descriptors are learning-outcomes-based, formulated in six categories: knowledge; skills; complexity; autonomy/responsibility; adaptability; and communication skills.

The descriptors, as with the framework overall, are inspired by the EQF, in higher education by the framework of qualification of the European higher education area, and generally by lessons learned from different countries, particularly in Europe.

In developing the categories, stakeholders took account of certain strategic areas which will require greater attention in education and training in the future, such as communication skills.

The definition of ‘qualification’ in the NQF reference document is identical to the definition given in the EQF recommendation (2008): ‘qualification’ means a formal outcome of an assessment and validation process which is obtained when a competent body determines that an individual has achieved learning outcomes to given standards.

Credit systems are not yet in place in Moroccan education and training. Higher education reforms started in early 2000 led to generalisation of the three- cycle structure (LMD).
In 2016-2017 work was undertaken towards development of an acceptable ECTS approach, which paved the way to a learning outcomes (rather than workload) orientation. Final consolidation of the ECTS principles and practice is expected to progress in 2018-2020 with EU Support through a 24-month Twinning project, which started in February 2018.
 

The NQF reference document explicitly places the concept of learning outcomes at the heart of defining level descriptors, allowing indication of vertical progression, comparison of qualifications and their referencing of qualifications to levels. Application of learning outcomes reflecting relevance to labour market needs is considered the fundamental element of NQF quality assurance.

The learning outcomes approach is well established in the APC (competence-based approach) in VET, and is applied throughout all main elements of the APC cycle of qualifications development and implementation. Schematically the APC cycle can be depicted as in Figure 1. The initial design of learning outcomes for the qualification is undertaken at the stage of the Analysis of work situation (Occupational standard): these are specific descriptors (abilities cognitive and motor, complexity, communication and others). Deeper and finer definition of the learning outcomes corresponding to tasks and operations is done at the stage of elaboration of the Standard of competences. These are multidimensional learning outcomes (knowledge, skills, attitudes and perception), used throughout the training programme and assessment guide.

In the reference document, the NQF is defined as: ‘An instrument for regulation of qualifications based on objective characteristics of quality, in view of their recognition by the labour market. It is an instrument for referencing of qualifications, whose quality is in line with a quality assurance system that takes account of learning outcomes, prescribed by the labour market following a prospective analysis.’

The objectives of the NQF are:

(a) promoting the quality of all programmes/courses across education and training;
(b) coherence between qualification subsystems;
(c) transparency and quality of all certifications;
(d) link of qualifications to the labour market;
(e) comparability of qualifications between countries, to aid mobility;
(f) lifelong learning.

The NQF is a comprehensive framework, encompassing public and private qualifications in all subsystems (national education, VET and higher education).
Qualifications acquired outside the formal system are not currently being considered in the NQF.

This NQF definition appears to restrict the framework to labour market needs and objectives. Other policy and legislative documents currently in development have broadened the scope and basis of the NQF to include also the needs of societal development.
 

Currently only one legal act directly related to the NQF has been enacted, the Circulaire of the Prime Minister of June 2014, establishing the National NQF Commission.

Approval by the National NQF Commission of the structure and level descriptors, the governance scheme and the roadmap for NQF development (2016-17) will be followed by publication of the approved report of the cited meeting in official channels. Implementation will require legal acts and decisions, notably concerning the establishment of the permanent secretariat, the executive committee and the NQF regulations/bylaws and procedures.

The NQF has been mentioned in two important approved strategic documents:

(a) Strategic vision for reform 2015-13 (education and training) [1];
(b) National VET strategy [2].

The Strategic vision 2015-30 mentions the NQF in the following terms :[3] ‘Establish a national system of certification enabling the organisation and classification of certificates and diplomas, on the basis of a reference structure that will be defined by the departments in charge of education, training and scientific research. Such a framework will guarantee transparency and clarity, and also comparability of diplomas on the basis of a national qualifications guide; it will improve the instruments for assessment of learning outcomes from education and training and enhance their credibility and effectiveness. It will likewise ascertain the national and international mobility of graduates.’
The same document also stipulates: ‘Establish a system of validation of skills and competences from professional experience to the benefit of workers/ personnel with experience, with the aim to allow their access to opportunities of lifelong learning.’
Under the fifth strategic axis – ‘Enhance the value of the professional pathways through a better articulation of the components of the education and training system’ (p. 38 of the main document) – the National VET strategy 2021 mentions the NQF.
The draft Framework law on education mentions the establishment of the NQF under an autonomous commission, as one of the measures for global reform of the mechanisms of assessment, examination and certification. The NQF is defined in broader terms, which take account of the needs both of the labour market and societal development.
 

[1 ] Pour une école de l’équité, de la qualité et de la promotion: vision stratégique de la réforme 2015-2030. http://www.csefrs.ma/pdf/Vision_VF_Fr.pdf
[2] Stratégie nationale de la formation professionnelle 2021. http://dfp.gov.ma/images/pdfdocs/2016/Strate%CC%81gie%20Formation%20FR.pdf
[3 ]Strategic vision 2015-30, p. 45.
 

In the current period of gradual institution building, two institutions are operational: the National Commission and the first format of the future executive committee (called: Comité de pilotage = steering committee).

The governance scheme is based on the principle of complementarity and coordination between two levels, strategic and operational:

(a) political strategy (higher decision-making): NQF Commission;
(b) operational strategy: two instances;
(c) executive committee (organisational level): based on rotating chairmanship and composed of the secretaries general of education and training (national education, VET and higher education), the employers’ confederation (Confédération générale des entreprises du Maroc – CGEM);
(d) permanent secretary (technical level): hosted by the services of Prime Minister, has administrative autonomy, a budget and trained staff. Not yet established.

According to the Circulaire (June 2014), the National NQF Commission has the following missions:
(a) follow-up the NQF implementation, its update, evaluation of the award mechanisms, and validation of levelling decisions;
(b) link the various components of the education and training system and employment, in view of implementation of the NQF, and recommend reforms and improvements based on evidence gathered through the implementation of the NQF;
(c) ensure cooperation and links with NQF of other countries.

The main planned missions of the NQF governance instances can be summarised as follows:
(a) National NQF Commission:

• monitoring NQF implementation, endorsement of levelling decisions and registration of qualifications from public and private providers (certifying bodies) in the NQF;
• formulation of strategic orientations for improving the systems of education, training and employment;
• approval of decisions regarding alignment with other countries’ qualifications frameworks, and long-term preparation of a correspondence/link with the EQF;
• approval of the annual/multiannual action plan;

(b) executive committee:

• coordination between the permanent secretariat and the National NQF Commission;
• validation of processes of allocation/levelling of qualifications and their registration;
• validation of the proposals of levelling of qualifications and their registration in the NQF register;
• establishment of working groups and planning activities;
• validation of the annual/multiannual action plan;

(c) permanent secretariat: in charge of the NQF operational activities:

• coordination and preparation of the meetings of the executive committee and the working groups;
• elaboration and implementation of the levelling processes and registration of qualifications;
• proposals to update/improve the National register of qualifications (NQF);
• elaboration and implementation of the communication plan and the annual/ multiannual action plan;
• opinion on the opportunity to create new qualifications.

NQF focal points include nominated representatives from the two ministries, CGEM, and Higher Council for Education Training and Scientific Research. Working groups/technical groups can be formed ad- hoc or permanently to support focal point work.

Stakeholder consultation is via the steering committee and the focal points organising/hosting workshops and events to consult and inform stakeholders groups.
CGEM has strong outreach to all professional and branch associations and representatives and takes care of their involvement, at national and regional levels.
The development of the CNC – concepts, structure and governance scheme – are the result of several years of analysis, consultation and final approval, on 23 May 2016, of the three key documents: the structure of the NQF and its level descriptors; the governance scheme; and the roadmap for NQF implementation for 2016-17. In 2015, the decision was taken to transform the temporary secretariat into a permanent secretariat, to be hosted by the services of the Prime Minister and act as the operational entity of the NQF. The legal basis of this secretariat is not yet developed/approved, which is slowing the pace of NQF implementation.
 

Financial resources for NQF functions and bodies are the State budget allocated to the ministries and departments involved, and a budget for the future permanent secretariat hosted by the services of the Prime Minister.

International partners contributing directly to develop the NQF and its instruments are the EU and the ETF.
 

VET programmes and related qualifications are approved by a legal decision, which allows the award of officially recognised diplomas and certificates. Activities of private sector VET institutions are regulated by a specific law and abide by a strict set of external quality assurance requirements and procedures.

Quality assurance of VET qualifications is consistent within the APC segment, through rigorous methodology and practice for qualifications development, based on learning outcomes, identified with involvement of labour market actors. Learner assessment is carried out using the Assessment Guide; it covers the learning outcomes defined in the standard of competences and uses criterion assessment (pass or not).

In higher education, the introduction of the principle of quality assurance was based on three main measures stipulated by the Law 01.00:

(a) accreditation of the programme/qualification (filière de formation);
(b) evaluation system (of education and training, research and higher education institutions (HEIs));
(c) creation of the institutions in charge of evaluation and regulation (the National Higher Education Coordination Commission in 2003; the Coordination Commission of Private Higher Education in 2005; the National Evaluation Instance in 2006; and the Coordination Council of the Higher Education Institutions not related to Universities, in 2008).

Procedures and practice of accreditation are fully generalised to all cycles, programmes and HEIs. The accreditation system is mandatory for programmes leading to qualifications of public HEIs, and is optional for those of private HEIs. Accreditation is for a fixed period.
The principle of evaluation of institutions is another lever for higher education reform and is characterised by:

(a) global nature, regularity and ex-post approach;
(b) mandatory self-evaluation for all HEIs (public and private);
(c) obligation to disclose the results of evaluation to the elected bodies at national and regional levels;
(d) obligation to inform the public on the evaluation results;
(e) audits and evaluations by specialised and independent institutions.

An integrated quality assurance framework covering all forms and types of VET and institutions is yet to be created. A number of legal texts regulate parts of the VET system:
(a) Law 12.00: on apprenticeship;
(b) Law 13.00: on private VET.

Authorisation to open VET institutions follows differentiated principles and procedures, due to incoherence in the legal basis, problems in the application of the rules, and other factors such as low capacity of certain institutions to analyse applications promptly.

Law 01.00 for higher education: main principles and their application presented above.
The main quality assurance bodies relevant in NQF implementation are not yet explicitly defined, though a strong role is anticipated for:

(a) in VET: department of VET (under the Ministry of National Education and VET);
(b) in higher education: ANEAQ (Agence Nationale d’Évaluation et d'Assurance Qualité de l'enseignement supérieur et de la recherche scientifique) —the new Agency for Evaluation and Quality Assurance of Higher Education and scientific research.

A strong point of the NQF concept in Morocco is its focus on quality of qualifications and stakeholder expectation that the allocation of qualifications in the NQF shall reflect quality based on objective criteria, such as learning outcomes and compatibility with the principles and structure of the NQF.

To reach expected transparency in allocating qualifications to the NQF a number of issues and challenges regarding NQF and qualifications QA need to be addressed:

(a) the clarity of mission and interactions of future NQF governance structures, which impact on the effectiveness of NQF operations;
(b) the consistent application of the learning outcomes principle, from design of the qualification, to provision and assessment of learners’ achievements;
(c) publication of the future register of NQF qualifications;
(d) publication of information for users on qualifications content and results of graduate tracking studies and other analyses of graduate employability.
In 2017 the EU has supported modernisation of the QA framework and procedures in higher education, through technical assistance. This cooperation contributed to further convergence with the aspects of the EHEA and concretely developed:

• evaluation standards for institutions, programmes / curricula, research, centres of doctoral studies and cooperation;
• QA Procedures Handbook for ANEAQ;
• Action plan 2018 for ANEAQ, the key body in charge of quality assurance in higher education.
   

The NQF is still in development.
The approved Roadmap 2016-17 is structured in five main components, each with a list of key activities and milestones:

(a) governance: establishment of the legal basis and installation of the Permanent Secretary;
(b) support to launch operations of the permanent secretariat;
(c) organisation and strengthening of the permanent Secretariat;
(d) levelling of qualifications in accordance with NQF principles and registration;
(e) register of qualifications (repertoire).

In line with component 4 of the roadmap, in 2016-17 the ETF is supporting NQF stakeholders in preparing the methodology package and procedures to carry out transparent allocation of qualifications in the NQF. The first phase of this pilot project is focused on qualifications in two pilot sectors (construction and automobile), and developed:

• (a) the draft complete Procedures and methodology for allocation of qualifications to NQF;
• (b) two Inventories of qualifications relevant for the two pilot sectors, one covering VET qualifications and the other higher education qualifications.

Following validation by NQF stakeholders, the procedure and methodology will be tested on a sample of qualifications selected from the two inventories. The second project phase will analyse lessons from the first, expand the levelling to new sectors, build the capacity of the permanent secretariat and create a first simple integrated database of qualifications.
 

Mechanisms to monitor the effectiveness of NQF implementation have not yet been defined.

No impact yet on end users.