NQF Inventory - Turkey

Improving access to both VET and tertiary education is a key policy target for Turkey. Many education policies have been implemented, based on strategies such as the Lifelong Learning Strategy (2014–18), the Vocational Education and Training (VET) Strategy (2014–18), the Higher Education Strategy (2007) and the Employment Strategy (2014-2023). Turkey’s lifelong learning strategy and Action Plan[2] pays particular attention to improving access to lifelong learning beyond the formal education system and promotes Validation of Non-Formal and Informal Learning (VNFIL). The Employment Strategy and its Action Plan[3] attributes a core role to the Turkish Qualifications Framework aimed at strengthening the link between education and employment and the quality of the VET system. The VET strategy focuses on broadening access to VET, with improved VET system capacity and better employment outcomes for graduates. The latter is also the goal for the Higher Education Strategy of Turkey (2007–25). Employment Strategy of Turkey (2014-2023) and its Action Plan[1] focuses on the National Framework for Qualifications with the aim to cover the university and non-formal education qualifications and the entrepreneurship. There is a whole chapter on the role of TQF for Strengthening the Link between Education and Employment focuses on the quality of the VET system. Its objectives include delivering qualifications as part of the Turkish Qualifications Framework (TQF), implementing curricula in compliance with occupational standards, developing information, guidance and counselling and accrediting VET institutions.

Turkey’s new lifelong learning strategy pays particular attention to improving access to lifelong learning beyond the formal education system and promotes Validation of Non-Formal and Informal Learning (VNFIL).  Lifelong Learning Action Plan 2014-2018: http://hbogm.meb.gov.tr/str/files/LLL_ACTION_PLAN.pdf

In higher education, the implementation of the learning outcome approach is an essential part of the implementation of the NQF for higher education. However, current arrangements inhibit the validation of non-formal and informal learning in higher education.

According to the OECD Education Policy Turkey Report[4], Turkey has made substantial progress in the area of education and human capital focusing on increasing equal access to primary, secondary, upper secondary ( general and VET) and tertiary education. The education system includes key policies to support students from disadvantaged groups, immigrant backgrounds and population subgroups, as well as students with special educational needs and those living in different regions within a country. However, gaps vis-à-vis OECD benchmarks remain very large. This is partly due to the quality of education lagging behind quantitative changes in school years. Equity and quality in education continue to be seen as a challenge by Turkey, which has set several key priorities, such as improving access and completion of upper secondary education, addressing the needs of disadvantaged students and improving equity between regions (especially between urban and rural areas). Providing education facilities and services to Syrians with temporary protection in Turkey is another key target reported.

The Turkish National Action Plan for EU Accession was presented to Commission in March 2016  and lists the actions that Turkish authorities are planning to take up to 2019 in order to align with EU legislation and continue the reform agenda in education and training and the skills agenda.

The EU Education and Training 2020 priorities, the Bruges and Riga Mid-Term Deliverables (MTDs) and the new EU Skills Agenda are informing the Turkey skills agenda. Turkey has benefited from the Instrument for Pre- Accession (IPA II) funds beside national contribution to implement the policy options under each Riga MTD. Applications for the ERASMUS+ programme has increased in quantity focusing on implementing the Riga MTDs. There is a good level of exchange, implementation and learning from other countries, which is shared in the country. However, Turkey’s central structures need to be more strategic on how to build on all these developments/learning from their peers in EU MSs and beyond and mainstream them in the Turkish education and training system.

Turkey has a functioning system for the assessment and recognition of foreign academic qualifications in Associate’s, Bachelor’s and Master’s degrees that is supported by legislation and in line with the Lisbon Convention. The Equivalence office of the Council of Higher Education (CoHE/ YÖK) deals with recognition and equivalence requests in these degrees. CoHE is part of the ENIC-NARIC networks.
Many professions in Turkey are regulated. Requirements to execute a regulated profession in Turkey are defined in different laws. The Turkish Council of Higher Education has adopted a Regulation on the Harmonisation of the Minimum Training Requirements for the Seven Regulated Professions stipulated by the EU-Directive 2005/363. This should bring the minimum requirements for these seven regulated professions in compliance with the mentioned Directive.

VQA is responsible for the validation of the vocational qualifications held by foreigners who are seeking to work in Turkey. The VQA law speaks of validation, not of recognition. Principles and procedures in Turkish: https://www.myk.gov.tr/images/articles/editor/140613/MYK_yab_sert_dogrulanmasi_usul_esaslari_revize_web2.pdf

To execute a craft profession in Turkey one needs to have a master certificate. Foreigners can establish a business or work as an employee, if the equivalence of their certificate is recognised by the Ministry of Education (in addition they need a residence and work permit). Legislation involved: Law N° 3308 on vocational training (as amended by Law No 4702).
 

The TQF is the national instrument for classification of qualifications in Turkey. The higher education qualifications framework, which is a sub-framework within the TQF, is already functioning .
The Turkish Qualifications Database includes qualifications awarded in Turkey regardless of their quality. This means that the database currently functions as a qualifications inventory of Turkey rather than a register of the qualifications included in the TQF. In the database it is emphasized that the official levelling / inclusion of qualifications into the TQF has not started yet. The qualifications database includes all qualifications provided by the Vocational Qualifications Authority (VQA) and a high proportion of the qualifications provided by the Ministry of Education. There is only one higher education institute of which qualifications are included. The process of inclusion of higher education qualifications is There are 1633 qualifications in the Qualification Database as of August 2018. The database is accessible in Turkish and English.  
 

The TQF has eight levels. In addition to levels, the TQF uses qualification types and qualification categories.

(a) Qualification types distinguish among qualifications that are at the same level but differ significantly in terms of their functions, learning outcomes, volume and/or orientations. Examples of qualification types are associate degree and level 5 vocational qualification certificate, at level 5; vocational upper secondary education diploma and skilled worker certificate, at level 4.

(b) Qualification categories classify qualifications according to their purposes:

•  principal qualifications reflect comprehensive sets of learning outcomes achieved as a result of assessment after completion of a learning process, training programme or vocational training; as example, the vocational and technical high school diploma, marking the end of vocational and technical secondary education;
• supplemental qualifications are awarded for learning achievements additional to a previous principal qualification. They relate to updating and refreshing of knowledge or skills, or to continuing professional development and they can only be achieved on condition that a principal qualification is previously achieved as example level 6 vocational qualification certificate in Job and occupational counselling, achieved in addition to any bachelor degree;
• unit qualifications provide recognition for the achievement of a coherent set of learning outcomes that forms part of the combination of the overall requirement for a principal qualification. Unit qualifications are usually associated with modular learning programmes;
• special purpose qualifications are awarded for sets of learning outcomes that form a distinct, coherent achievement that may be used alone (such as license to work, license to start up business). These qualifications involve fewer learning outcomes compared to a principal qualification but they can be used as a license to operate. For example, level 3 vocational qualification certificate for Roller operation in the construction sector or level 5 vocational qualification certificate for Computer hardware in the IT sector.

The TQF level descriptors are described in terms of learning outcomes and use the following domains: knowledge, skills, competence.

1.  knowledge is defined as theoretical and/or factual knowledge requiring comprehension of facts, principles, theories and practices related to an area of work or learning;
2. skill is defined as ‘utilisation of knowledge’ and ‘problem solving’, which requires the ability to use logical, intuitive and creative thinking and dexterity, method, material, tools and instruments acquired in an area of work or learning;
3. competence is defined as use of knowledge and skills in an area of work or learning by taking responsibility and/or displaying autonomy, determination and satisfaction of learning requirements.

 Table 1: TQF level descriptors
Source: Description of the Turkish Qualification Framework
 

The Vocational Qualifications Authority (VQA) Law no 5544 defines a qualification as the formal certification of knowledge, skill and competence possessed by an individual and recognised by the competent authority (VQA Law, Article 2-(1) h).

The TQF Regulation defines a qualification as the official document obtained when a competent body, at the end of a process of assessment and validation, recognises that an individual has accomplished the learning outcomes according to certain criteria (TQF Regulation, Article 3- (1) r).

Turkey does not use the term qualification standard  but the TQF Regulation and TQF document define the term ‘Qualification type specification’ to describe the features of a qualification type. A qualification type specification includes:

1. qualification type title;
2. awarding body;
3. orientation;
4. level;
5. category;
6. credit range and typical duration programme;
7. programme profile;
8. learning environment;
9. learning outcomes;
10. key competences;
11. assessment and evaluation methods;
12. quality assurance;
13. entry requirements;
14. requirements for obtaining the qualification;
15. progression paths;
16. legal basis of the qualification.

Qualification type specifications have been drafted for all types such as bachelor diploma and level 3 vocational qualification certificate and submitted for consultation by the responsible bodies. The plan is to use these specifications while developing qualifications in specific types, so that the qualification bachelor in BA should be consistent with the qualification type specification of bachelor diploma.

Development process of qualifications

The Ministry of National Education (MoNE) is responsible for developing qualifications under its mandate. MoNE has launched secondary education curriculum reform for both general and vocational and technical schools. Vocational curricula are modularised and MoNE has a database of more than 4 000 modules that are also used for the licensing and certification of adult learning. There are also plans to establish a national credit system for VET. Although curricula are advanced, most initial vocational qualifications are not yet utilised and fully learning outcomes-based. Modules based on learning outcomes are used for learning, but they are not separately assessed and often lack an assessment component.

The Vocational Qualifications Authority (VQA) is responsible for development of qualifications under the national vocational qualifications system. Qualifications under the mandate of VQA are based on occupational standards and learning outcomes. Assessment, evaluation and certification for these qualifications is carried out by Voc-Test centres, authorised by VQA. These qualifications are classified under the qualification types vocational qualification certificate.

The Council of Higher Education (CoHE) coordinates and supervises the development of higher education qualifications awarded by higher education institutes. The higher education qualifications framework is a sub-framework within the TQF that is already functioning. National working groups for different fields of learning define common outcomes as a guideline for qualification and curriculum developers. A common register on the website of the higher education NQF  provides links to specific programmes (website in Turkish and English).

According to its Regulation, facilitating access to qualifications and progress between qualifications are main principles of the TQF.

The TQF Council has drafted a concept paper about credit transfer and accumulation. The preparation of the principles and procedures for horizontal and vertical progression between the qualifications in the TQF, credit transfer and accumulation is about to start.
The TQF proposes an evaluation and credit system associated with the workload that will allow credit accumulation and transfer. The proposed metric for the qualifications to be included in the TQF is 60 credits as the value ascribed to a learning period of 1 500 to 1 800 hours. This approach is compliant with both of the transnational credit systems in use in Europe, ECTS and ECVET. The regulating bodies will determine the credit range of the qualification types and the credit values of the qualifications. The principles and procedures for the credit transfer systems are planned to be developed by mid-2019.
 

Learning outcomes are the backbone of the TQF. According to the Regulation, the TQF is to ensure that qualifications are prepared based on learning outcomes. However, the shift to learning outcomes takes time.

National qualifications developed by VQA are based on learning outcomes. By mid-2018, VQA had published 451 national qualifications in 21 sectors.

For all of the VQA qualifications, modules used in the VET training programmes of MoNE are defined by learning outcomes. However, MoNE VET programmes have no separate qualification specifications defined by learning outcomes. This situation created a challenge while populating the qualifications database with qualifications. General education qualifications of MoNE are also not readily identified as defined by learning outcomes. In higher education, some universities have identified the qualifications they offer by learning outcomes but it is not easy to give an exact number. The process of transformation continues and the plan is to have all qualifications of MoNe and HEIs (higher education institutions) defined by learning outcomes until the end of 2018 at least on the Turkish Qualifications Database.
 

The TQF is designed as an inclusive, comprehensive framework for classification of all quality-assured qualifications. The TQF primarily includes:

(a) qualifications awarded under the mandate of the Ministry of National Education (MoNE);
(b) qualifications awarded under the mandate of the Vocational Qualifications Authority (VQA);
(c) higher education qualifications awarded under the coordination and supervision of the Council of Higher Education (CoHE).
In time, the TQF will include other qualifications awarded under the mandate of certain responsible institutions.
 

The Regulation on the procedures and principles on the implementation of the Turkish qualifications framework (TQF Regulation) entered into force via Decision 2015/8213 of the Council of Ministers and publication in the Official journal dated 19.11.2015 and numbered 29537.

According to the Regulation, a three-year action plan for the implementation of the TQF has been developed by the TQF secretariat and approved by the TQF Council.
The Regulation on the Quality Assurance of Qualifications to be Included into the TQF was adopted and published in the Official Journal in March 2018 [1].

[1] https://myk.gov.tr/images/articles/TYC/TQF_QA_Regulation.pdf

The 3-member TQF Coordination Council is the decision making body of the TQF. Its members are: the Deputy Minister of the Ministry of National Education (MoNE), the President of the Council of Higher Education (CoHE) and the President of the Vocational Qualifications Authority (VQA).

The TQF Coordination Council is assisted by the 22-member TQF Council, representing MoNE, CoHE, VQA and social partners’ organisations. The TQF Council addresses technical issues.

VQA is the responsible body for implementation and execution of the TQF. The TQF Department of VQA executes secretariat services for the TQF Council and TQF Coordinating Council.

TQF Coordination Council, TQF Council and the TQF Department have been established and are operational.
Main duties and responsibilities are described below.

The TQF Coordination Council:
(a) evaluates and approves procedures, principles, decisions, suggestions and opinions submitted by the TQF Council;
(b) collaborates with responsible bodies and institutions, international organisations, and the bodies and institutions of other countries.
Members of the Coordination Council are responsible for ensuring collaboration and coordination in the implementation of Coordination Council decisions within their bodies.

The TQF Council:
(a) prepares a three-year action plan for the implementation of the TQF and a communication strategy to raise national and international awareness of it;
(b) prepares principles, procedures, and criteria for a wide range of issues such as quality assurance of the qualifications to be included in the TQF, qualifications database, progress routes, credit accumulation and transfer, recognition of prior learning, updating, modification and cancellation of qualifications.
TQF Secretariat: secretariat services in relation to the Turkish qualifications framework are carried out by the TQF Department of the VQA.

The Secretariat:
(a) provides assistance to all the technical and administrative works of the Coordination Council and Turkish Qualifications Framework Council;
(b) drafts an action plan, annual work plan and activity report under the management of the Council;
(c) ensures the implementation of the Turkish qualifications framework communication strategy;
(d) establishes the qualifications database and ensures its update;
(e) prepares all kinds of research and analysis reports requested by the Chairman of the Council, or to conduct work and procedures for its preparation;
(f) performs other duties to be assigned by the Chairman of the Council.
 

The TQF Regulation foresees establishment of a consultation committee, with broad stakeholder participation, to evaluate issues and submit opinions regarding the framework. The committee will meet at least once a year. The VQA and the TQF Council are identifying which stakeholders should sit on the consultation committee. The Consultation Committee has been established. The list of the institutions to be represented in the committee was approved by the TQF Coordination Council at the meeting held on January 25, 2018.

Turkey has a system of sector committees, which is one of the cornerstones of the sustainability of the national vocational qualification system under the authority of the VQA. Sector committees are tripartite structures with State, employer and employee representatives; their establishment, duties and operation are regulated by law. 26 sector committees [1] are operational, sectors have been defined by VQA. These committees perform tasks related to development and maintenance of occupational standards and qualifications for their sector.

[1]   http://www.myk.gov.tr/index.php/tr/sektor-komiteleri

The TQF Regulation stipulates that all expenditures arising from drafting, updating and roll out of the framework shall be covered by VQA. The Ministry of National Education, Council of Higher Education, and VQA shall designate personnel to work permanently at the TQF Department of VQA (Secretariat). The TQF department of VQA consists of one administrative staff, three assistant experts, one expert and one manager.

Erasmus+ funds are also being used. IPA-II funding for TQF implementation is expected in 2019.

Per diem allowances for Coordination Council and Council members attending meetings shall be covered by the responsible bodies.
 

A key statement in the TQF document is that "all quality-assured qualifications shall be included in the TQF.”
The Regulation on the Quality Assurance of Qualifications to be Included into the TQF regulates the QA procedures and principles to which qualifications must comply to be included in the TQF. This regulation is applicable to all qualifications offered in Turkey, whether achieved through formal education, non-formal education or an RPL/VNFIL procedure.

The regulation stipulates the Duties, Authorities and Responsibilities regarding the Quality Assurance and the Components of the Quality Assurance System:

• QA criteria
• QA paper and guidelines
• qualification form
• assessment and evaluation
• certification
• self-assessment and external evaluation
• regular review
• allocation of resources
• stakeholder involvement
• feedback mechanisms
• accessibility to the outcomes of the activities (through electronic information technologies)

Criteria for quality assurance are identified in accordance with Annex 4 of the EQF Recommendation 2017, the Standards and Guidelines for Quality Assurance in the European Higher Education Area for higher education qualifications, and the European Quality Assurance Reference Framework for Vocational Education and Training for vocational qualifications, as well as national quality frameworks for education that are in compliance with them.

The Regulation on the Quality Assurance of Qualifications to be Included into the TQF was adopted and published in the Official Journal in March 2018.
The TQF has three regulating bodies. MoNE, CoHE and VQA. Each is responsible for QA of the qualifications under its authority.  For HE, the Higher Education Quality Board was established in 2015.

Quality assurance for the qualifications outside the scope of MONE, COHE, higher education institutions and VQA responsibility will be ensured by the institutions and organizations specified in related legislation.
TQF Coordination Council shall monitor continuous improvement of all quality assurance processes.

MoNE, CoHE and VQA are responsible for the quality assurance of qualifications under their authority. The qualifications under the responsibility of MoNE and CoHE mostly focus on academic and key competences, while the qualifications under the responsibility of VQA are developed focusing on employment and skills. Thus, the quality assurance systems of the institutions responsible for qualifications in Turkey have different procedures by nature.

The Council of Higher Education is an affiliated member of the European Association of Quality Assurance in Higher Education ( ENQA).
 

The TQF does not yet include qualifications since realisation of the QA is a priority for qualifications to be included into TQF. Therefore the QA Regulation has been adopted. The Regulation envisages the establishment and implementation of the QA systems by April 2020. The principles and procedures for the inclusion of the qualifications into the TQF are being drafted. Following the adoption of the principles and procedures, the quality assured qualifications can be included into the TQF, expected in 2019.

Monitoring the effectiveness of TQF implementation will be the mutual task of the TQF Coordination Council and the TQF Consultation Committee. The Consultation Committee has been established and planned to be held in Q4 of 2018 or Q1 of 2019.

Legal arrangements for the TQF are in place and the implementation of the TQF is in process. A qualifications database is operational. The TQF does not yet include qualifications since the realization of the QA is a priority for qualifications to be included into TQF. Therefore the QA Regulation has been adopted. The Regulation envisages the establishment and implementation of the QA systems by April 2020. The principles and procedures for the inclusion of the qualifications into the TQF are being drafted. Following the adoption of the principles and procedures, the quality assured qualifications can be included into the TQF, expected in 2019.

The ACB/VOC-Test Centers that assess, evaluate and certify skills of adults have impact for end users. By August 2018 these centers have issued over 387.000 certificates to individuals that now have a recognized national vocational qualification.