NQF inventory Serbia

The Employment and Social Reform Programme in the Process of Accession to the European Union (ESRP Serbia, 2016) [1] identifies main challenges in the areas of Labour market and employment, human capital and skills, social inclusion and social protection. The ESRP builds on various strategic documents such as the National Employment Strategy 2011-2020, the Strategy and Policy of the Industrial Development of the Republic of Serbia 2011-2020 and the Strategy for Education Development in Serbia 2012-2020. The main objectives set forth by the Strategy for Education Development are:

1.  Increasing the quality of the process and outcomes of education to the maximum attainable level - arising from scientific knowledge on education and respectable educational practice;
2. Increasing the coverage of population of the Republic of Serbia on all educational levels, from preschool education to lifelong learning;
3. Achieving and maintaining the relevance of education, particularly the one that is fully or partially funded by the public sources, by aligning the educational system structure with immediate and developmental needs of individuals and economic, social, cultural, media, research, educational, public, administrative and other systems;
4. Increasing the efficiency of the use of all the education resources, i.e. completion rate within the stipulated period, with minimum extended duration and reduced dropout rates.

The Action Plan [2]  for the Implementation of the Strategy for Education Development in Serbia was adopted in 2015. The Action Plan describes individual activities (actions) defined by objectives and priorities of the Strategy and the method of their implementation, deadlines, key actors and facilitators, including the monitoring tools and performance indicators.

A progress report [3] (2018) of the Action Plan defines the adoption of the NQFS law as one of the most important measures for improvement of the relevance of education in Serbia. Main goals of the National Qualifications Framework in Serbia are the development of qualification standards based on the needs of the labour market and the society as a whole as well as ensuring that the entire education is oriented on learning outcomes, building the competencies which are defined by the standard of a given qualification, as well as the affirmation of the importance of key, general and inter-curricular competencies for lifelong learning. The progress report describes the sectoral councils, provided for in the NQFS Law, as an important tool for ensuring the relevance of qualifications on the labour market. The sectoral councils, expert and advisory bodies, will be established in the form of partnership. Their main function is to determine the demand for qualifications on the labour market in the Republic of Serbia, through dialogue and direct cooperation between the representatives of the labour and education domains. This cooperation is facilitated by the composition of such councils. 
Establishment of the NQFS Council and the Qualifications Agency are among the government priorities for 2018.
 

[1]  http://socijalnoukljucivanje.gov.rs/wp-content/uploads/2016/06/SIPRU-ESRP-2016-English.pdf

[2]  http://www.mpn.gov.rs/wp-content/uploads/2015/08/Akcioni_plan.pdf

[3]  http://www.mpn.gov.rs/wp-content/uploads/2018/08/AP-SROS-IZVESTAJ-15jun-Eng.pdf

Serbia is an EU candidate country. It receives financial assistance from the EU via IPA (Instrument for pre-Accession). IPA II funds have provided sector budget support following the Sector reform contract (SRC) since 2017. The SRC focus is on NQF development, teacher training, Roma and minority language education.
Serbia has also adopted the Riga 2015 conclusions on a new set of medium-term deliverables (MTD) in VET for the period 2015-20 (Riga is a follow-up of the Bruges process). MTD 3 is related to the NQF: ‘Enhance access to VET and qualifications for all through more flexible and permeable systems, notably by offering efficient and integrated guidance services and making available validation of non- formal and informal learning’.
The arrangements for recognition of foreign qualifications in Serbia are in transition due to new regulations in the NQFS Law, adopted in April 2018.

The ENIC-NARIC Centre Serbia is currently a unit of the Ministry of Education, Science and Technological Development of Serbia. ENIC-NARIC Serbia operates in the area of higher education recognition of foreign qualifications only (academic and professional recognition).

With the implementation of the NQFS Law, ENIC-NARIC will become a department of the new Qualification Agency, to be established. The NQFS Law distinguishes Recognition of Foreign School Documents and Professional Recognition of Foreign Higher Education; both procedures shall be conducted by the ENIC-NARIC centre, as a department of the Qualification Agency.
 

The NQF Law foresees establishment of a system for classification of qualifications – KLASNOKS which is in line with the International Standard Classification of Education (ISCED 13-F). By introducing KLASNOKS, a unique classification system of qualifications is established, regardless of the existing classification of educational profiles of pre-university and higher education. KLASNOKS shall be established by the Minister in charge of education affairs.

The NQFS has 8 levels and 4 sublevels; the levels 6 and 7 are each divided in two sublevels. The need for sublevels comes from a communication purpose of the NQF – to clarify that qualifications of different volumes are at the same NQF level; e.g level 6.1 180 ECTS, level 6.2 240 ECTS.
NQFS level descriptors have been defined in terms of learning outcomes and use the domains Knowledge, Skills and Abilities and Attitude. These terms are not further defined in the NQFS law. The NQFS level descriptors are included in an annex of the NQFS Law.
 

Definition of qualification
The definition of qualification in the NQFS law is: ‘A qualification is a formal recognition of acquired competences. An individual obtains the qualification when the authorised body determines that he has achieved the learning outcomes at a certain level and according to a given qualification standard, which is confirmed by a public document (diploma or certificate).

Qualification standards

A Qualification Standard is a document containing:

• a description of the objectives and learning outcomes of the qualification
• data of the qualification which determine the NQFS level
• data on the connection of the qualification with the occupational standard(s), which enables the integration of data from the education system and data from the labour market
• classification of the qualifications in KLASNOKS that is aligned with ISCED
• evaluation.

The qualification standard is the basis for the development of education programs for acquiring qualifications at all levels of education.
The Ministry of Education, Science and Technology (MoESTD) shall adopt a methodology for development of the qualification standards on proposal by the Qualifications Agency (to be established).
Examples of current qualification standards can be found in the NQFS database on the NQFS website . The database has 140 qualifications, of which 86 with the qualifications standard (August 2018). Entry of new qualification is ongoing.

Development process of qualifications

• Currently the Institute of Improvement of Education (IIE) develops qualification standards for secondary vocational education as well as the formal vocational education programmes for qualifications levels 1-5, based on the qualification standard. The Council for Vocational and Adult Education and Training evaluates and adopts new or reformed vocational education programmes.
• Once the new institutional framework is operational the Qualification Agency will develop the qualification standards for all NQFS levels on proposal by the sector council and send it to the NQFS Council for evaluation and adoption. The employees and experts of IIE will be taken over by the Qualifications Agency.
• A higher education institution (the proponent) develops the formal education programme for qualifications levels 6-8 and sends it to the Commission for Accreditation and Quality Assurance (the University Senate or the Council for Vocational Colleges) for evaluation and adoption.
• Publicly-recognized organizer of adult education activities (JPOA) develops the adult non-formal education programme for qualifications up to the level 5.  JPOA programmes are based on qualification standards. Currently the qualification standards are developed by the Institute of Improvement of Education (IIE). With the formation of the Qualifications Agency the qualification standards for JPOA programmes will be developed by the Agency. 
   

The NQFS Law describes three ways of acquiring qualifications, through formal and non-formal education and through the process of recognition of prior learning. Non-formal education: vocational qualifications are acquired through different adult education activities of the publicly recognized adult education organizations (JPOA), after which an appropriate public document or certificate is issued in accordance with the law governing adult education or other law.

Recognition of prior learning (RPL): The Law on Adult Education defines RPL as one of the paths for acquisition of qualifications. The NQFS Law foresees RPL procedures, based on the standard of qualifications, for qualifications at levels 1,2, 3 and 5 of the NQF, and exceptionally, at NQF level 4.

The NQFS Law describes conditions for acquiring qualifications at specific NQFS levels as follows:

Levels 2, 3 and 4 - The condition for acquiring this level is previously achieved level NQFS level 1;
Level 5 - The condition for gaining this level is previously achieved NQFS level 3 or level 4, and for acquiring through non-formal education of adults, previously NQFS level 4 has been acquired;
Level 6.1 - The condition for acquiring this level is previously achieved NQFS level 4 and passed the general, professional or artistic matura, in accordance with the laws regulating secondary education and higher education;
Level 6.2 - The condition for acquiring this level is previously achieved NQFS level 4 and passed the general, professional or artistic matura, in accordance with the laws regulating secondary education and higher education;
Level 7.1 – The condition for acquiring this level is previously achieved Basic academic studies (OAS) volume of 240 ECTS, the Master academic studies (MAS) volume of at least 120 ECTS (with previously achieved OAS volumes of 180 ECTS), or master vocational studies of at least 120 ECTS credits (with previously achieved Basic vocational studies (OSS) scores of 180 ECTS credits;
Level 7.2 – The condition for acquiring this level is previously achieved completed Master academic studies (MAS);
Level 8 - The condition for acquiring this level is previously achieved completed integrated academic or master academic studies.

The NQFS Law describes progression as one of the principles of the NQFS: ‘openness - different ways of acquiring qualifications and opportunities for horizontal and vertical progression in the qualifications system including academic mobility’. Ways of progression are not further elaborated in the Law.

The NQF Law mentions credits in terms of ECTS points for HE programs only. The descriptions of the qualifications in the NQFS database  gives volume of qualifications in years for qualifications at level 1 – 5 (in years or in hours) and in ECTS points for qualifications at level 6-8. ie level 6.1 (180 ECTS).
 

The NQFS is based on qualification standards and learning outcomes. Description of learning outcomes is one of the elements of a qualification standard.

According to the NQFS website http://noks.mpn.gov.rs/en/:
NQFS is an instrument for identifying, creating and classifying qualifications, in accordance with the demands of labour market, continual learning, science and society in general.

NQFS defines processes and institutions (bodies, organisations) responsible for defining qualifications and qualification standards, methods and conditions for acquiring, comparing and recognition of qualifications, along with other mechanisms for quality assurance.

NQFS contributes to the improvement of the educational system of Republic Serbia and to the overall reform processes. The main purpose of improving the educational system is the education of competent individuals who will be able to respond to the requirements of labour market, society, economy, and to meet their own needs in an adequate and professional manner.

NQFS is an integral part of the European integration process and the Chapter 26 – Education and Culture, with the planned referencing to European Qualifications Framework and mobility of workforce.
 
The NQFS Law defines the following objectives of the NQF:

1. ensuring that qualifications are comprehensive and transparent and that they are interconnected;
2. developing qualification standards that are based on the needs of the labor market and society as a whole;
3. ensuring the orientation of the whole education system towards learning outcomes;
4. improving access, flexibility of pathways and mobility in the formal and non-formal education system;
5. ensuring the validation of non-formal and informal learning;
6. affirming the importance of key, general and interdisciplinary competences for lifelong learning;
7. improving cooperation between relevant stakeholders or social partners;
8. ensuring the quality of the processes of developing and acquiring qualifications;
9. ensuring the comparability and recognition of qualifications acquired in the Republic of Serbia with qualifications acquired in other countries.

The NQFS Law defines four qualification types:
1) general - basic education and secondary education;
2) vocational education and adult education;
3) academic - higher education;
4) vocational - higher education

The Law on the National Qualifications Framework of Serbia (only in Serbian) was adopted by parliament in April 2018.

The Law on Foundations of the Education System, Law on High Education and Law on Adult Education are coherent with the NQFS.

The NQFS Law stipulates termination of other regulations to ensure consistency with related legal acts and regulations.
 

The NQFS Law foresees establishment of:

• An NQFS Council for strategic management of NQFS development and implementation. The Council will be an advisory body that gives recommendations on planning and development of human capital in accordance with public policies in the field of lifelong learning, employment, career guidance and counselling.
• A qualifications agency that will perform administrative and technical tasks and expert support for the Council.
• Sector councils whose main function is to define the need for qualifications in the labour market in Serbia
   

NQFS Council:

The NQFS Council will be an advisory body that gives recommendations on the process of planning and development of human resources in accordance with public policies in the field of lifelong learning, employment, career guidance and counselling. The NQFS Law describes the main competences of the Council as follows: 

The council:

1. proposes qualification standards for all levels of the NQFS;
2. proposes to the Government the establishment of sectoral councils for particular sectors of work or activities;
3. monitors the work of the sectoral councils and makes recommendations for the improvement of work based on regular reports on the work of the sectoral councils;
4. gives opinions to the minister responsible for education about the recommendations of the sectoral councils regarding the enrollment policy in secondary schools and higher education institutions;
5. makes recommendations on the process of planning and development of human resources in accordance with the strategic documents of the Republic of Serbia;
6. makes recommendations on improving the relation between education and labour market needs;
7. gives opinions on standards for self-evaluation and external quality assurance of JPOA (publicly recognized adult education organizations);
8. perform other duties in accordance with this Law.

Qualifications Agency:

The Government established the Qualification Agency In order to perform quality assurance and professional support to the NQF Council and other competent organizations in all aspects of the development and implementation of the NQF. The Agency has the status of a legal entity. The NQFS Law describes the main competences of the Agency as follows:
The Agency:

1. considers initiatives for the introduction of new qualifications;
2. provides expert support to the sector councils and prepares proposals for the qualification standard;
3. provides administrative and technical support to the work of the sectoral councils;
4. keeps the Registry and takes care of the entry of data into the appropriate sub-registries;
5. classifies and encrypts qualifications according to the KLASNOKS system;
6. performs recognition of foreign school documents;
7. performs the procedure for recognition of a foreign higher education document for the purpose of employment (professional recognition), in accordance with this law and the law regulating higher education;
8. performs first validation of the foreign study programme in the procedure form the point 7 of this paragraph, in accordance with this law and the law regulating higher education;
9. grants approval to organizations for obtaining the status of JPOA;
10. decides on the amount of the fee for the procedures of the points 6, 7 and 9  of this paragraph;
11. keeps records of professional recognition in accordance with this and the law regulating higher education;
12. exerts an external quality control of the JPOA, once during the five-year approval period;
13. at the request of the ministry responsible for education, issues a report on the fulfilment of requirements regarding the plan and program of adult education activities, program implementation and staffing;
14. prepares development projects, analysis and research relevant to the development of qualifications;
15. monitors and measure the effects of the implementation of (new) qualifications on employment and lifelong learning;
16. proposes measures for the improvement of quality assurance in the entire system17) performs other duties in accordance with this Law.

The NQFS Law describes the competences of the Sector Councils as follows:

Sector Councils:

1. analyse the existing qualifications and determine the necessary qualifications in a particular sector;
2. identify the qualifications to be modernized;
3. identify qualifications that no longer meet the needs of the sector;
4. make a decision on the drafting of standards of qualifications within the sector;
5. give an opinion on the expected outcomes of knowledge and skills within the sector;
6. promote dialogue and direct cooperation between the world of work and education;
7. promote opportunities for education, training and employment within the sector;
8. identify opportunities for training adults within the sector;
9. consider the implications of the national qualifications framework on qualifications within the sector;
10. propose lists of qualifications by levels and types that can be acquired by recognizing prior learning;
11. perform other duties in accordance with this Law.

Sector Councils are based on the principle of social partnership. The Government, on the proposal of the NQFS Council, establishes sector Councils.

The NQFS Law stipulates that members of the Sector Councils represent:

• the Chamber of Commerce and representative associations of employers from the relevant sector;
• professional chambers or associations;
• Council for Vocational Education and Adult Education;
• University Conference and Conference of Academies and Higher Schools;
• National employment services;
• ministries responsible for: education, employment and work activities and activities for which the sector council is established;
• communities of vocational schools;
• representative branch unions; Institute of Improvement of Education.

There are resources allocated in the national budget for NQF development but they are limited. However, as development of the NQF is one of the areas covered by the IPA II budget support programmes, relevant work should also get appropriate resources.

The NQFS document (section 3) describes quality assurance arrangements of:

(a) identification of need for qualifications;
(b) development of the qualification standard;
(c) development of the education programme for a qualification;
(d) acquiring a qualification;
(e) monitoring and evaluation of the process of acquiring qualifications.

The NQFS Law describes quality assurance as ‘managing the process of developing qualifications based on standards and learning outcomes, as well as the quality system in the process of acquiring and evaluating qualifications’

The NQFS Law describes specific arrangements and procedures for:

• The qualification standard: a methodology for development of the qualification standard will be adopted by MoESTD on proposal of the qualifications agency. In addition to the basic qualification data, the qualification standard will also contain data on the connection of the qualification with the occupational standard(s), which enables the integration of data from the education system and data from the labour market.
• Submitting an initiative to develop and adopt a qualification standard: Any legal entity can in principle submit a proposal to develop a new qualification standard. An application form will be developed. The proposal is submitted to the Qualifications Agency, which assesses whether the proposed qualification standard is covered by an existing qualification standard in the Register (if so the applicant will be notified). If the proposed qualification standard is not covered by by another qualification standard in the Registry the agency will send the proposal to the relevant sector council for a recommendation. On a positive recommendation by the Sector Council the agency will develop the proposed qualification standard. The qualification standard is the basis for the development of education programs for acquiring qualifications at all levels of education.
• Drafting a new qualification standard: The Sector Council issues a decision to the Qualifications Agency to draft a new qualification standard (based on a documented proposal and recommendation). The Agency will draft the new qualification standard and submit it within 60 days to the NQF Council. On positive advice of the Council the Minister responsible for education will adopt the new qualification standard for inclusion in the Register.
• The Register consists of a National Qualifications sub-register, a qualification standard sub-register and a sub-register of publicly recognized adult education providers (JPOA) with employers with whom JPOA realizes practical work. The National Qualifications sub-register is established for the purpose of managing qualification data, classified according to the level and type, in accordance with KLASNOKS. The qualification standard sub-register is established for the purposes of data management on qualification standards. The JPOA sub-register is established for the purpose of managing the data on JPOA. 
• The Register shall be kept by the Agency in electronic form. The data from the Register are open and accessible through the official website of the Agency, which is bilingual in Serbian and English.
• Enrolment of qualifications in the NQFS Register: The Qualification Agency enters qualifications in the national qualifications subsector of the Register.

1. General and vocational qualifications of NQFS levels 1 to 5 that are adopted by the minister responsible for education, are directly entered in the national qualifications subsector of the Register.
2. Academic and vocational qualifications of NQFS levels 6.1 to 8 that are accredited in accordance with the law governing higher education, are registered in the national qualifications subsector of the Register for receiving accreditation notifications from the National Body for Accreditation and Quality Assurance in Higher Education.

The Qualification Agency is the responsible body for quality assurance of NQF implementation.
Academic and vocational qualifications of NQFS levels 6.1 to 8 are accredited by the National Body for Accreditation and Quality Assurance in Higher Education, in accordance with the law governing higher education

Ministry of Education, Science and Technological Development (MoESTD) and the Council for Vocational and Adult Education are responsible institutions for QA of vocational qualifications.
The Commission for Accreditation and Quality Assurance (CAQA) is member of the European Association of Quality Assurance in Higher education (ENQA) since 2013.

The Ministry of Education, Science and Technology (MoESTD) maintains an electronic database of qualifications, accessible on the NQFS website .  By August 2018, 140 qualifications had been entered into this database, of which 86 with the qualifications standard. Entry of new qualification is ongoing. An NQFS Register is planned.

The NQFS Law stipulates:

• The minister responsible for education is responsible for monitoring the implementation of the NQF law.
• The NQFS Council monitors the work of the sectoral councils and makes recommendations for the improvement based on regular reports on the work of the sectoral councils;
• The Qualifications Agency monitors and measures the effects of the implementation of (new) qualifications on employment and lifelong learning.
   

The NQFS Law has been adopted and sets the conditions for establishing the institutional framework. The NQF Council and Qualifications Agency have been founded by Government Decree and Sector Councils are in the process of formation. A qualifications database, accessible via the NQFS website , is under development. The database will form the basis for the NQFS Register.