A Review of the Philippine Qualifications Framework: Towards Improved Skills Recognition and Mobility September 2021 © 2021 International Bank for Reconstruction and Development / The World Bank 1818 H Street NW Washington DC 20433 Telephone: 202-473-1000 Internet: www.worldbank.org This work is a product of the staff of The World Bank with external contributions. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Rights and Permissions The material in this work is subject to copyright. Because The World Bank encourages dissemination of its knowledge, this work may be reproduced, in whole or in part, for noncommercial purposes as long as full attribution to this work is given. Any queries on rights and licenses, including subsidiary rights, should be addressed to World Bank Publications, The World Bank Group, 1818 H Street NW, Washington, DC 20433, USA; fax: 202-522- 2625; e-mail: pubrights@worldbank.org. A Review of the Philippine Qualifications Framework: Towards Improved Skills Recognition and Mobility September 2021 Table of Contents Acknowledgments. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 List of Tables, Figures, and Boxes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 Acronyms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 Executive Summary. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10 Chapter 1 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14 Chapter 2 Context . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17 2.1 Macroeconomic and Labor Market Environment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17 2.2 Education and Skills Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22 2.3 Skills Qualifications Framework . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25 Chapter 3 Philippine Qualifications Framework Review. . . . . . . . . . . . . . . . . . . . . . . . . . . . 28 3.1 Overview of the PQF . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28 3.2 Design of the PQF . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30 3.3 Implementation of the PQF . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39 3.4 Utilization of the PQF . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45 Chapter 4 Policy Discussions and Recommendations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53 4.1 Refining the PQF Design . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53 4.2 Strengthening Institutional Arrangements and Capacity . . . . . . . . . . . . . . . . . . . . . . . . . . 56 4.3 Ensuring Quality Assurance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57 Chapter 5 Conclusions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 60 References . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 63 Annexes. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 65 Annex 1 Methodologies Employed for Analysis on PQF Domains . . . . . . . . . . . . . . . . . . . . . . 65 Annex 2 Project Milestones. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 69 Annex 3 List of Key Informant Interviewees . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 70 Annex 4 Profile of the Survey Participants . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 72 Annex 5 PQF Survey Questionnaire . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 73 Acknowledgments This report is prepared by the World Bank team led by Yoonyoung Cho (Senior Economist and Task Team Leader) and Ruth Rodriguez (Social Protection Specialist and co-Task Team Leader) including Sung Joon Paik (Technical Lead and Professor of Korea Development Institute School of Public Policy and Management) and Thelma Seoeun Choi (Social Protection and Jobs Consultant). It was undertaken with the guidance of Ndiame Diop (Country Director, Brunei, Malaysia, Philippines and Thailand), and Yasser El-Gammal (Practice Manager, Social Protection and Jobs, East Asia and Pacific). The team thanks Sachiko Kataoka (Senior Education Specialist), Victoria Levin (Global Lead on Skills), and Xiaoyan Liang (Lead Education Specialist) who provided valuable comments and feedback. The team is also grateful to Nicki Tenazas (Education Consultant) and Arianna Zapanta (Social Protection and Jobs Consultant) for technical support, and Azel Gorne for the design and layout. The review was carried out with the guidance of the Philippine Qualifications Framework-National Coordinating Council (PQF-NCC) consisting of key government stakeholders including the Department of Education (DepEd), Department of Labor and Employment (DOLE), Commission on Higher Education (CHED), Technical Education and Skills Development Authority (TESDA), and Professional Regulation Commission (PRC). Special thanks go to TESDA Director General Isidro S. Lapeña, Deputy Director General Rosanna A. Urdaneta, TESDA Director Imelda B. Taganas, and Yasmin Ann I. Pimentel for overall facilitation for this study. The key findings and recommendations of this report were presented to the PQF-NCC and its Technical Working Group (TWG). The NCC and TWG meetings were chaired by PRC Chair Teofilo S. Pilando, Jr. and DepEd Undersecretary Nepomuceno A. Malaluan and participated by DepEd Assistant Secretary Alma Ruby C. Torio, DepEd Assistant Secretary G. H. S. Ambat , CHED Atty. Lily Freida M. Milla, CHED Dr. Cherrie Melanie Ancheta-Diego, DOLE Undersecretary Ana C. Dione, DOLE Assistant Secretary Dominique Rubia- Tutay, and PRC Dr. Melinda L. Garcia. The study greatly benefitted from excellent suggestions and insights shared by participants in the online survey and interviews. The team acknowledges generous support of the Korea Development Institute School of Public Policy and Management and Korea World Bank Partnership Facility. List of Tables, Figures, and Boxes Tables Table 2.1 Institutional Arrangements on the Philippines’ Education and Training System for SY 2019-2020 Table 2.2 Referencing Poland’s and Germany’s National Qualification Frameworks (NQFs) versus the European Qualifications Framework (EQF) Table 3.1 PQF Domains and Descriptors Table 3.2 Knowledge Dimension in the First Domain (Adopting a Revised Bloom’s Taxonomy) Table 3.3 Cognitive Process Dimension in the First Domain (Adopting a Revised Bloom’s Taxonomy) Table 3.4 Application Domain Adopting the Structure of Observed Learning Outcome (SOLO) Method Table 3.5 Degree of Independence Domain, Following the Dreyfus Model of Skills Acquisition Table 3.6 PQF-National Coordinating Council (NCC) Working Groups Figures Figure 1.1 Structure of Survey Instrument and Key Informant Interviews Figure 2.1 Annual Employment by Sector, 2009–2019 Figure 2.2 Annual Employment by Status, 2009–2019 Figure 2.3 Annual Deployment of OFWs, 1990-2019 Figure 2.4 Trends in Remittances and Share of GDP, 1990-2019 Figure 2.5 Changes in Share of Jobs by Occupation and Skills Category (in percentage points), 2007 to 2017 Figure 2.6 Key Employment Indicators, 2019 Figure 3.1 The Architecture of PQF Figure 3.2 Analytical Framework for PQF Review Figure 3.3 PQF Stakeholders for Utilization Figure 3B.1 Choice of Award Titles for Different Levels Figure 3B.2 Qualifications Framework-Recognized Qualifications Channels in the HKQF System Figure 3B.3 Korean NQF and National Competency Standards Figure 3B.4 Mechanisms for Industry Feedback Figure 3B.5 Utilization of the Korean NCS Figure 5.1 Suggested Next Steps for Full Operationalization of PQF Boxes Box 3.1 Recognition of Professional Qualifications under the Hong Kong Qualifications Framework (HKQF) Box 3.2 Powers and Functions of the PQF-NCC Box 3.3 PQF Survey Results – Facilitating Interactions Among Stakeholders Box 3.4 Establishing an Independent NQF Body Box 3.5 Korean National Qualifications and National Competency Standards (NCS) Box 3.6 Survey Results – Key Objectives of PQF Box 3.7 Insights from Key Informant Interviews—Public Awareness on PQF Box 3.8 Insights from Key Informant Interviews—Revising Curriculum and Training Regulations Box 4.1 Survey Results—Promoting Skills Transferability Box 4.2 Survey Results—Promoting Quality Assurance Acronyms AQRF ASEAN Qualifications Reference Framework CHED Commission on Higher Education DepEd Department of Education DOLE Department of Labor and Employment GDP Gross Domestic Product IT-BPM Information Technology – Business Process Management JHS Junior High School NC National Certificate NCC National Coordinating Council NCS National Competency Standards (Korea) NQF National Qualifications Framework NTESDP National Technical Education and Skills Development Plan OECD Organization for Economic Cooperation and Development OFW Overseas Filipino Workers PCCI Philippine Chamber of Commerce and Industry PCTS Philippine Credit Transfer System PISA Programme for International Student Assessment PQF Philippine Qualifications Framework PRC Professional Regulation Commission PSA Philippine Statistics Authority PSG Policies, Standards, and Guidelines PTQF Philippine TVET Qualifications Framework RQF Regional Qualifications Framework RPL Recognition of Prior Learning SHS Senior High School TESDA Technical Education and Skills Development Authority TRs Training Regulations TVET Technical and Vocational Education and Training TVI Technical Vocational Institutes TVL Technical-Vocational Livelihood TWG Technical Working Group WG Working Group Executive Summary The Philippine Qualifications Framework robust economic growth since the mid-1970s. (PQF) aims to support an individual’s career This robust economic performance translated development and facilitate learner and into a reduction in poverty. The share of the poor worker mobility by setting lifelong training population declined from 23.3 percent in 2015 and education standards. As a key human to 16.6 percent in 2018, lifting close to 6 million resource development strategy to achieve the individuals out of poverty. Continuous structural country’s development objectives of improving transformation and steady remittances from labor productivity, the Government of the abroad are recognized as arguably the two most Philippines (GoP) established the PQF through important factors that have been supporting the issuance of Executive Order No. 83 in 2012 the robust economic growth in the country. and institutionalized it with the enactment of In particular, the growing trend of Filipinos Republic Act No. 10968 in 2018. As prescribed working abroad, with their increased remittances under the law, the PQF National Coordinating received at home, has been a major source of Council (NCC) is mandated to review and update income in the country. the PQF. The NCC recognizes the need to review the PQF’s relevance, adequacy, appropriateness, Despite strong economic growth driven and feasibility during the initial stage of its by steady structural transformation and implementation. The Technical Education and remittances, stagnant levels of worker Skills Development Authority (TESDA), as the productivity and prospects for skills mobility Interim Secretariat of the PQF-NCC, requested remain critical challenges that require policy the World Bank to review key elements of the attention. In the midst of an overall shift from a PQF, focusing on its relevance to industry low- to a higher-skilled workforce, an increase and employers’ needs, adequacy in its scope in low-skilled services, especially in sales and of coverage, appropriateness of design and retail workers, has been prominent. Widespread methodology, and feasibility of implementation informality and a significant share of elementary and utilization. occupations also characterize the Philippine labor market, highlighting the importance of improving labor productivity. The increasing Background and Rationale for trend of Filipinos working abroad also calls for the PQF Review nurturing a skilled and competitive workforce and aligning their skills with the demand from The Philippines maintained robust economic receiving countries to promote labor mobility. growth in recent years (before the COVID-19 To address the labor productivity issue through crisis), which ultimately led to a steady quality education, lifelong learning, and workers’ reduction in poverty. Prior to the pandemic, mobility, the GoP introduced the PQF in 2012, up until 2019, the Philippine economy grew following the establishment of the Philippine by an annual rate of at least 6 percent for 14 Technical and Vocational Education and Training consecutive quarters, which marked the most Executive Summary | 11 (TVET) Qualifications Framework (PTQF) in 2004 weak, with limited utilization and evidence and the Philippine TVET reform initiated by of labor market impact. Several challenges TESDA in 1998. were identified through the review, including the following: A well-functioning National Qualifications Framework (NQF) facilitates human capital • PQF Principles and Architecture. The development and skills mobility. A successful review confirms that the principles and framework increases the consistency of objectives of the PQF are appropriate. qualifications, provides transparency for PQF meets the fundamental purpose of individuals and employers with more broadly qualification, retaining the relevance and recognized learning modalities, clarifies learning effectiveness of knowledge, skills, values, and pathways and progression, and strengthens applications. It also promotes education and national education and training reform policies. training system reforms toward achieving Amid the COVID-19 pandemic, the mobility a lifelong-learning society. Descriptors of of students and workers has been severely expected learning outcomes along the restricted. The movement of people and labor three domains (knowledge, skills and values, matters because it contributes to the more application, and degree of independence) efficient and productive use of human resources for each of the eight levels are mostly and catalyzes knowledge transfer; this is crucial clear and distinguishable. Nonetheless, to boost productivity. It is, therefore, necessary level progression across all dimensions to have common standards and qualifications and levels needs more uniformity. Post- through NQFs for governments to adequately degree professional qualifications through assess the opportunities and challenges with the professional track (i.e., PQF Levels 6 to labor mobility. The mechanisms to reference, 8) also require further empirical tests and compare, and recognize different qualification adjustments. systems will become more complex in a post- COVID environment, with the proliferation of • Governance. The review notes that the academic and professional online learning PQF Act and its Implementing Rules and that requires the process of certifying and Regulations (IRR) have already prescribed recognizing multiple qualifications at the the overall governance structure, including proper level. With this review conducted at the PQF-NCC, technical working group the early stage of the PQF’s implementation, (TWG), working groups (WGs), and the PQF’s policy recommendations will be provided to Interim Secretariat. The composition and strengthen the PQF’s design, implementation, membership of PQF-NCC and its TWG and and utilization, especially in the context of the WGs, however, have not been finalized yet COVID-19 pandemic and beyond. pending the inclusion of representatives from the economic and industrial sectors. While the roles and responsibilities of each Key Findings involved entity are relatively well defined, clarity on the staff complement and budget This review finds that the PQF is based on a to execute PQF related tasks is lacking. In robust framework, but its implementation is particular, appropriate budget allocation 12 | Philippine Qualifications Framework Review in the General Appropriations Act (GAA) to • Integral measures for implementation. support the full implementation of PQF has Systems and policies essential for PQF not been made, and each member agency implementation, such as the Philippine Credit of the PQF-NCC currently shoulders PQF Transfer System (PCTS) for equivalency and related expenses. pathways and integrated quality assurance, need to be strengthened. Currently, individual • Preparedness for implementation. quality assurance practices managed Awareness of PQF among stakeholders separately by three education agencies and beneficiaries is low. Few awareness- tend to overlook skills acquired through enhancing campaigns and activities nonstandard forms of education and training, have taken place so far to increase and they should be incorporated within the understanding and acceptance of the PQF. PQF level descriptors. Moreover, there is a Practical guidance, operations manuals, need to establish monitoring and evaluation and capacity-building activities for PQF mechanisms of PQF implementation and implementation have yet to commence. utilization, focusing on alignment with PQF Some practitioners expressed concern that descriptors and qualifications standards. it is not straightforward to translate the PQF level descriptors into the curriculum, vertical and horizontal career paths, and human Policy Recommendations resource management for relevant agencies, education and training service providers, In the short term, the PQF can be strengthened and employers. Efforts to align and adapt by reinforcing the core governance structure. the existing curriculum and qualification Completing the constitution of PQF-NCC, standards, or develop new ones, according TWGs, and WGs, with the inclusion of to the PQF level descriptors, are required to economic and industry sector representatives proceed to PQF implementation. and budget allocations, should be prioritized Executive Summary | 13 to institutionalize key activities for PQF points – applicability of adding professional implementation. PQF leadership should then qualifications to the PQF Levels 6 and 8 and the proceed to the development of the official appropriateness of setting Senior High School Operations Manual, which should serve as the (SHS) as a foundation level of the PQF – can also main reference for education curricula, training be revisited and re-assessed. regulations, qualification standards, assessment tools, and equivalency pathways to be aligned In the medium to long term, based on the pilots with PQF. At the same time, active awareness- and implementation lessons, PQF design and raising campaigns and capacity-building related policies, such as a singular quality activities for practitioners and implementers assurance system and ladderized credit should take place. transfers, can be further enhanced. The introduction of pilot activities for major areas Given that PQF implementation has not with robust monitoring and evaluation systems, commenced yet, pilot projects are strongly including quality assurance for short courses recommended. The pilot testing could focus on leading to micro-credentials, would help test specific qualification levels, sectors, or groups the relevance and applicability of the PQF and of stakeholders to inform how flexibly and identify good practices for the realization of efficiently PQF could be utilized. A more flexible the PQF objectives. These building blocks are structure of the PQF applicable to both formal imperative to create momentum and expedite and non-formal skills development modalities the full operationalization of the PQF, especially will tremendously help promote an individual’s in the context of COVID-19 and the diversification lifelong learning and career development. of skills development modalities. Through these pilot projects, two important Chapter 1 Introduction The Philippines increasingly emphasizes the Department of Education (DepEd), with lifelong learning and skills mobility for labor the following as member-agencies: Technical productivity as an integral part of the country’s Education and Skills Development Authority growth strategy. The Philippine Development (TESDA), Commission on Higher Education Plan 2017-2022 presents a series of activities (CHED), Professional Regulation Commission to improve labor productivity through human (PRC), and Department of Labor and Employment capital investment. Investment in this area is (DOLE). The PQF Act also specifies the inclusion critical given that the country’s growth has of one representative each from the economic benefited from a steady structural transformation and industry sectors in the NCC. shifting resources from low- to high-productivity sectors and occupations and from robust flows A well-established NQF is central to a of remittances from Overseas Filipino Workers government’s efforts to develop a skilled and (OFWs). Key initiatives to invest in human capital competitive workforce, and the PQF aspires and enhance labor productivity include the K-12 to play such a role. An NQF focuses on setting education reform, which mandates compulsory national standards and levels of learning education up to Grade 12 while promoting an outcomes, supporting an individual’s lifelong early start of schooling from kindergarten, and a career development among different education series of laws for skills development and higher and training sectors, and aligning domestic education to enhance quality, with an emphasis qualification standards with international on learning outcomes. ones for better labor mobility. By defining the standards and levels of learning outcomes of Aside from improvements in basic education the knowledge, skills, and values of learners, of requirements, an important milestone in the workers, and of professionals, an NQF guides country’s skills development came with the the development, recognition, and awarding introduction of the national qualifications of qualifications. It also increases consistency system known as the Philippine Qualifications in qualifications, provides individuals and Framework (PQF). The PQF is based on the employers with more broadly recognized legal and regulatory foundation of Executive learning forms, clarifies learning pathways and Order No. 83, issued in October 2012, enacted progression, and informs national education and into a law entitled An Act Institutionalizing training reform policies (World Bank 2013). Many the Philippine Qualifications Framework countries have a qualifications framework to (hereafter, the PQF Act) in January 2018, and guide their education and training policies, and subsequently promulgated Implementing Rules these frameworks are regularly updated based on and Regulations (IRR) in January 2019. In order the changing nature of work and evolving labor to implement the PQF, a National Coordinating market demand for skills in order to recognize Council (NCC) was constituted to spearhead new and restructure existing qualifications. As its implementation. The Council is chaired by an NQF, the PQF also aims to be utilized as a tool Chapter 1 Introduction | 15 for workforce development by the government, covers the overall policy context (e.g., human resource management by firms, quality economy, labor market, education, TVET assurance by education and training service system, among others) in the Philippines providers, and lifelong career development by and internationally, cases for NQFs from individuals. various studies, notably those done by the Association of Southeast Asian Nations To ensure that the PQF remains responsive to (ASEAN) countries and other advanced NQF the skills demand and needs of the international examples, including the ones from Australia and domestic labor markets and fully achieves and Hong Kong; and PQF Act and its IRR. its mandate, the PQF Act requires regular reviews and updates of the framework. This • Online stakeholder survey. Stakeholders, PQF review, the first of its kind, aims to assess including government agencies, education various aspects of the framework, including: and TVET providers, industry, and professional organizations, were given • relevance, appropriateness, and consistency an online questionnaire to assess their of the PQF levels and qualifications by awareness, knowledge, and acceptance of design; PQF operations. • stakeholders’ awareness of the PQF; • feasibility of implementation and governance • Key informant interviews: Interviews structures; and were conducted between July and August • effectiveness of the PQF in facilitating life- 2020 to facilitate an in-depth probe into long learning and mobility through pathways practitioners’ experience and views of the and equivalencies between higher education PQF and complement the quantitative survey, and technical and vocational education and assessing the current status of the PQF and training (TVET). its implementation. The interviews were also intended to identify critical issues related to TESDA, as the Interim Secretariat of PQF’s the design and implementation of the PQF NCC, requested the World Bank team to and to gather views on measures to improve conduct a review and provide key lessons and the PQF. recommendations for the PQF, considering that the framework is still at a very early stage of The unprecedented COVID-19 pandemic has implementation. impacted the Philippine economy with triple shocks: a health crisis, strict containment The review is based on a combination of desk measures, and a global recession. These shocks research, an online survey conducted among led to the nation’s Gross Domestic Product (GDP) various stakeholders, and in-depth qualitative contracting year-on-year by 10.0 percent in the interviews with selected key informants. The first three quarters of 2020 (World Bank 2020). findings from the quantitative survey and key It shook the labor market immensely; labor informant interviews provide complementary market indicators, including the 17.6 percent information (Figure 1.1), with the latter focusing unemployment rate recorded in April 2020, more on detailed topics through candid and showed that conditions were dire. Many workers open discussions. who lost jobs in the industry and services sectors had to rely on agricultural activities, reversing • Desk and literature review. The review some of the progress in structural transformation 16 | Philippine Qualifications Framework Review made over a long time prior to the pandemic. The remainder of this report consists of four Numerous OFWs had to be repatriated due to sections. Section 2 provides a brief country this global shock, and remittances dropped background of the Philippines to put the significantly during the early months of the discussions into context. Section 3 presents pandemic. The labor force surveys conducted findings from the PQF review concerning the in July and October 2020 showed a modest PQF’s design, implementation, and utilization. rebounding of the labor markets, but not to Section 4 presents policy recommendations and pre-pandemic levels. The implications of the discussions, and Section 5 concludes. pandemic for skills development and the PQF are rather unclear at this point. However, promoting lifelong learning and the mobility and transferability of skills is even more important when the labor markets are in turmoil. Figure 1.1 Structure of Survey Instrument and Key Informant Interviews Survey Part A Purpose of the PQF • Ensuring the fundamental purposes of qualification • Driving broader education and training system reforms toward achieving a lifelong learning society Part B Design, structure, and • Establishing coherent and integrative qualification systems functions Part C Quality assurance • Promoting quality assurance Part D Governance • Facilitating interactions among stakeholders Part E Written comments • Providing opinions on primary issues and ways to improve the PQF Key Informant Interviews Part A Governance • PQF-National Coordinating Council, Technical Working Group, and institutional Working Groups, and coordination among key agencies mechanisms Part B Design of the PQF • Appropriateness of 8-level system, responsiveness, efforts of international recognition, responses to COVID-19 Part C PQF implementation • Policy context, awareness, capacity, curriculum and training regulations revisions, and credit transfer Part D PQF utilization • Utilization by individual learners and workers, education and TVET providers, and employers Part E Quality assurance, • Systematic data collection and information system including M&E Part F Finance • Budget allocation Chapter 2 Context 2.1 Macroeconomic and Labor recognized as arguably the two most important contributors to the country’s robust economic Market Environment growth. With structural transformation, the country’s labor moved from agriculture to non- The Philippines maintained robust economic agricultural employment (Figure 2.1) and from growth in recent years before the COVID-19 non-wage to wage employment (Figure 2.2). crisis, which ultimately led to a steady The employment share of the agricultural sector reduction in poverty. Prior to the pandemic, has been steadily declining over time, from up until 2019, the Philippine economy grew at more than a third in 2009 to just over a fifth in least 6 percent year-on-year for 14 consecutive 2019. Meanwhile, employment expansion has quarters, which marked the strongest economic been observed for the services and industry growth since the mid-1970s. The gross national sectors, which rose to their highest combined income (GNI) per capita, in real terms, had grown employment share of 77 percent in 2019. That at above 4 percent annually since 2012. In 2019, same year, an additional 1.6 million jobs were the GNI per capita reached US$3,850,1 and the created by both services and industry, while country was on a pathway to rise from a lower- the agricultural sector recorded job losses of middle-income to upper-middle-income country approximately 300,000. Notably, employment status.2 This robust economic performance in the manufacturing sector— commonly translated into a reduction in poverty. The associated with productive employment3— share of the poor population declined from grew by 24 percent over a decade to reach 3.6 23.3 percent in 2015 to 16.6 percent in 2018, million workers in 2019. The expansion of the lifting close to 6 million individuals out of manufacturing sector was accompanied by poverty. Almost all regions in the Philippines increasing productivity (measured as value- (except the Bangsamoro Autonomous Region added divided by employment) and by shifts in Muslim Mindanao, BARMM) experienced a within the sector from basic textiles, apparel, fall in poverty rates over the same three-year and paper products to more skills-intensive period. The country was on track to meet the products, such as electronic components and goal of the Philippine Development Plan (PDP) transport equipment manufacturing. 2017-2022, which was to reduce the poverty rate to 14 percent by 2022. Deployment of Filipino workers abroad and remittances have been a major source Continuous structural transformation and of income in the country, highlighting the steady remittances from abroad have been 1 GNI per capita, Atlas method, based on World Development Indicator. 2 Upper-middle-income economies have a GNI per capita of at least $3,996 (2018). The Philippines has been classified as a low- er-middle-income country since 1987. 3 Based on the 2016 Annual Survey of Philippine Business and Industry from PSA, manufacturing contributed the highest value-add- ed share among sectors, with Php 1.3 billion (26.4 percent). 18 | Philippine Qualifications Framework Review Figure 2.1 Annual Employment by Sector, Figure 2.2 Annual Employment by Status, 2009-2019 2009-2019 100% 100% 80% 80% 60% 60% 40% 40% 20% 20% 0% 0% 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 Agriculture Industry Services Worked without pay in own family-operated farm or business Employer in own family-operated farm or business Self-employed without any paid employee Wage and salaried workers Source Philippine Statistics Authority (PSA) - Labor Force Surveys. importance of nurturing a skilled and the top occupation. In many cases, sea-based competitive workforce and aligning their skills OFWs work in deck occupations (e.g., cooks, with demand from receiving countries. The waiting staff). Salary and incomes remain the number of Overseas Filipino Workers (OFWs) main driver for working overseas.4 Remittances has been increasing massively (Figure 2.3), with have greatly increased over time and remained the majority heading to various parts of Asia or close to 10 percent of Gross Domestic Product the Middle East (e.g., Saudi Arabia, United Arab (GDP) throughout the 2010s (Figure 2.4). Emirates, and Qatar). Almost 80 percent of this overseas worker population are land-based, and more than half are employed in elementary occupations, with Household Service Worker as 4 Based on an online survey conducted in 2015 by DOLE and JobStreet. Billions 0 5 10 15 20 25 30 35 40 Source Source 0 500,000 1,000,000 1,500,000 2,000,000 2,500,000 1990 Figure 2.3 Figure 2.4 1991 1990 446,095 1992 1991 615,019 1993 1992 686,461 1994 1993 696,630 1995 1994 719,602 1996 1995 654,022 1997 1996 660,122 1998 1997 747,696 1999 1998 831,643 World Development Indicators (WDI). 2000 1999 837,020 2001 2000 841,628 2002 2001 866,590 2003 Personal remittances, received (current US$) 2002 891,908 2004 2003 867,969 Philippine Overseas Employment Administration (POEA). 2005 Annual Deployment of OFWs, 1990-2019 2004 933,588 2006 2005 988,615 2007 2006 1,062,567 2008 2007 1,077,623 Trends in Remittances and Share of GDP, 1990-2019 2009 2008 1,236,013 2010 2009 1,422,586 2011 2010 1,470,826 2012 2011 1,687,831 2013 2012 1,802,031 2014 2013 1,836,345 2015 2014 1,832,668 2016 2015 1,844,406 2017 2016 2,112,331 2018 2017 2,044,877 2019 2018 1,988,980 0 2 4 6 8 10 12 14 Chapter 2 Context 2019 2,156,742 % of GDP Personal remittances, received (current % of GDP) | 19 20 | Philippine Qualifications Framework Review Despite this robust economic growth and were in wage employment (Figure 2.6). Relatively positive developments, worker productivity less vulnerable were the 11 million wage and and skills remain critical challenges requiring salaried workers with monthly incomes and policy attention. The share of high-skilled slightly over one million employers with paid jobs—including technicians, professionals, and employees. The rest can be considered as managers—increased during 2007–17, while vulnerable workers, consisting of daily wage that of elementary occupations and skilled earners (12 million) and other wage workers agricultural, forestry, and fishery workers whose payments are per piece, per hour, or declined (Figure 2.5).5 In the midst of this overall commission-based (4 million), as well as own- shift from a low- to a higher-skilled workforce, account workers (12 million) and nonpaid family however, increases in low-skilled services, workers (3 million). Many daily wage workers are especially in sales and retail workers, have been concentrated in construction and low-skilled prominent. services sectors. Even among wage earners, fewer than a quarter hold jobs working for private The share of informal workers, who tend to firms that provide benefits and access to social engage in low productivity jobs in the labor insurance (e.g., Social Security System or the market, is high. Among 42 million workers in Government Social Insurance System). the Philippines (based on July 2019 Labor Force Survey), about 27 million (64 percent) workers Figure 2.5 Changes in Share of Jobs by Occupation and Skills Category (in percentage points), 2007 to 2017 8% 6% 4% 6% 5% 2% 1% 1% 1% 0% 0% -2% -2% -4% -4% -6% 7% -8% Elementary Service & Skilled Plant & Craft and Clerical Technicians & Professionals Managers occupations sales workers agricultural, machine related trades support associate forestry, & operators & workers workers professionals fishery assemblers workers L o w - s k i l l ed M E D I U M - s k i l l ed H I G H - s k i l l ed Source World Bank 2019. 5 Elementary occupations include the following subcategories: cleaners and helpers; agricultural, forestry and fishery laborers; laborers in mining, construction, manufacturing, and transport; food preparation assistants; street and related sales and services workers; refuse workers; and other elementary workers. Chapter 2 Context | 21 Figure 2.6 Key Employment Indicators, 2019 Working Age Population 72.93M Labor Force Not in Labor Force 44.69M, 62% 28.24M, 38% Employed 42.43M, 95% Unemployed 2.26M, 5% Wage and Salaried Workers Employers Unpaid Family Workers Self-employed 27.22M, 64% 1.25M, 3% 2.47M, 6% 11.48M, 27% Private Establishments Own Family-Operated Farm 21.39M, 78% or Business 0.13M, 1% Government/GOCC Private Households 3.87M, 14% 1.83M, 7% Employed 42 million, 100% Wage and salaried workers Non-wage workers 27 million, 64% 16 million, 37% Per piece, Per hour, Non-paid family workers Commission 3 million 4 million Paid with monthly salary Employers 11 million 1 million Own account Daily wage earners (small shop owners) 12 million 12 million Source Philippine Statistical Authority – July 2019 Labor Force Survey. 22 | Philippine Qualifications Framework Review Unlike the typical development pattern for whereas high school graduates are often not primary workers moving into industry jobs equipped with the necessary skills demanded by as the economy develops and workers’ employers (Ortiz et al. 2018). While it is promising productivity improves, the Philippine low- that the recent senior high school (SHS) program skilled workers have moved to low-end informal aims at cultivating capable graduates prepared service sectors. The Philippine pattern reflects for jumping into the labor market without a stagnant workers’ productivity with workers not college degree, on the other hand, producing sufficiently skilled to be absorbed in the industry more graduates with a SHS education who lack sector but engaging in low productivity services. employable skills would likely worsen the current Indeed, a recent Integrated Survey on Labor skills mismatch and high youth unemployment and Employment (ISLE) conducted by the PSA issues in the Philippines. found that one-third of employers’ respondents reported that they could not hire employees due The global trend of the increasing use of to lack of either experience, competency, or artificial intelligence and robotics, and the skills of job applicants; or professional license changing nature of work, urge to foster the or skills certification. workforce with high skills and non-routine cognitive skills. Elementary occupations, which Unfortunately, the expected productivity comprised 26.7 percent of the employed in level of the future workforce in the country 2019, represented the largest occupational appears unpromising. The 2018 Programme for share in the Philippines. They are followed by International Student Assessment (PISA) ranked service and sales workers (18.4 percent) and Filipino students at the bottom of the chart for skilled agricultural, forestry, and fishery workers reading and second lowest for both science (11.8 percent). The PSA defines the work in this and mathematics among 79 participating occupation group as involving the performance countries. The PISA results also revealed that of simple and routine tasks, which may require socioeconomic status accounts for 18 percent the use of handheld tools and considerable of the variance in reading comprehension in physical effort. This includes unskilled labor, such the country. This share among countries in as street vendors, construction site workers, the Organization for Economic Cooperation cleaners, domestic helpers, and farmhands. and Development (OECD) is about 12 percent, The concentration in low-productivity activities indicating that the association between learning presents a challenge, as most of these workers and income poverty is more significant in cannot easily be absorbed by high-end the Philippines than in developed countries. employers or have difficulty transitioning to The poor performance in the internationally other high-level jobs. renowned and standardized tests may increase difficulties for Filipino students and workers 2.2 Education and Skills Policies seeking to carry their technical qualifications or diplomas/degrees to other countries. Also, With increasing recognition of the importance the lower secondary completion rate is below of boosting worker productivity and mobility, that of several ASEAN neighbors, including the Government of the Philippines (GoP) has Indonesia, Malaysia, Singapore, and Vietnam,6 introduced considerable policy reforms in 6 WDI database. Chapter 2 Context | 23 education and skills development. One of the enhancing completion rates. The formal TVET is most critical policy actions in this area in the delivered starting from SHS’ technical-vocational last decade is the K-12 Law, enacted through livelihood (TVL) track and can be continued with Republic Act 10533 (Enhanced Basic Education enrolment in registered technical vocational Act). Through this reform, compulsory basic institutes (TVI), each of which falls into the education was expanded from 10 years to one DepEd and TESDA jurisdiction. Similarly, the year of kindergarten and 12 years (through SHS nonformal and informal TVET are governed by Grades 11 and 12), supported with substantial TESDA regulations while alternative learning increases in public education spending. The systems are under the purview of the DepEd. K-12 Law made the completion of kindergarten With respect to higher education, both general mandatory for enrollment in Grade 1. The and vocational tracks are provided through enrollment rate of five-year-old in educational higher education institutions under CHED. institutions increased from 57 percent in 2010 to 84 percent in 2017. At the primary level, Various efforts have been made to increase enrollment improved even among children in the public spending in skills development poorest income quintile (close to 100 percent for and tertiary education programs, expand those up to age 12 and exceeding 80 percent for access to such programs, and facilitate those up to age 16). In addition, in June 2016, the learning progression to improve workforce two-year SHS program was launched nationwide, competencies. A series of landmark laws for admitting 1.5 million Grade 11 students for the skills development and higher education were first time. Since the program launched, the enacted, contributing to three out of four SHS share of youth not in the labor force who cited students, including those in TVL track planning, schooling as their reason for not looking for work to proceed to higher education institutions (Ortiz increased by about 9 percentage points (79 et al. 2018). Some noteworthy legislations are percent in 2019 from 70 percent in 2016). The as follows: surge in college-educated workers is expected to exert a strong demand for quality work in • Ladderized Education Act [Republic Act the labor market, particularly starting in 2022 10647] of 2014 (and its IRR in 2015) allows when the first cohort of SHS graduates finishes students to enter or exit technical education tertiary education. courses and shift to a college degree program, ensuring that no subject taken Formal education and TVET are provided by or credit incurred will be wasted. Transfers a trifocalized government structure, which between education and training institutions consists of the DepEd for basic education, and programs are enabled, because the TESDA for TVET, and CHED for higher PQF provides the ground for assessing and education (Table 2.1). Basic education, K-12, is certifying the level of training and education provided through a large number of institutions. and supports the development of education The completion rates for elementary education pathways and skills recognition of learners are high, indicating the achievement of near- and workers. universal primary education, but Junior High School (JHS) and SHS levels show room for 24 | Philippine Qualifications Framework Review Table 2.1 Institutional Arrangements on the Philippines’ Education and Training System for SY 2019-2020 Sector Technical Higher Education (CHED) (Governing Basic Education (K-12) Vocational Agencies) (DepEd) Education General Vocational (TESDA) Senior High School**** Elementary Junior High Higher Education Providers (Kindergarten School Arts & Public / Private* Academic TVL Sports Institutions (HEIs) + Grade 1-6) (Grade 7-10) Design HEIs: 27,040 Junior HS 796,576 State universities and Number of 8,503,650 Grade Grade Grade Grade Public: 278,595 K-G6 15,332,706 (SY 2018- colleges: 9,092 students 12 12 12 12 Private: 139,134 (G6 2,259,667) 2019) Local colleges and enrolled (G10 968,794 516,041 2,477 6,860 (Jan-Nov 2020) universities: 2,282 1,824,699) (2020) 85.8 percent Completion 96.6 percent N/A (JHS) N/A N/A N/A rate (%) (K-G6) 76.7 percent (both junior and senior high schools) HEIs: 320 Public: 667 State colleges and Private: Public: 429 universities: 55 Number of 1,729 44,916** 1,824*** 10,581 7,358 120 247 Private: 3,977 Local colleges and institutions *Includes (Jan-Nov 2020) universities: 6 satellite *Includes satellite campus campus (2020) Programs under Alternative Learning Systems (ALS) Examples of Extension programs; certificate Basic Literacy Program: 52,008 Community-based non-formal courses; and Continuous Professional Elementary Level: 132,128 trainings programs Development Programs (CPDs) Secondary Level (up to Grade 10): 575,587 Source CHED, DepEd, and TESDA. Notes * COVID-19 has affected the non-formal TVET education, with significant declines in the number of graduate students by 75 percent and 87 percent in each public and private Technical and Vocational Institutes (TVIs). Before the pandemic, 1,228,345 and 1,175,090 graduated from public and private TVIs in 2019, respectively. ** Additionally, there are two types elementary schools that are integrated with high school programs: (i) K to Grade 10 = 2,969 and (ii) K to Grade 12 = 3,394. *** Additionally, there are 7,400 junior high schools combined with SHS programs. **** There are 1,420 stand-alone SHS, which are responsible for its governing bodies and accrediting. Chapter 2 Context | 25 • Unified Student Financial Assistance for the challenges and opportunities posed by System for Tertiary Education, UniFAST the fourth industrial revolution.7 Anchored on the [Republic Act 10687 of 2016] facilitates national plan, TESDA also published its TVET PH affordable tertiary education by consolidating 4.0 Framework, which presents its recalibrated multiple programs and modalities of strategies to address Industrial Revolution 4.0 government-funded Student Financial challenges (e.g., teaching a learner a skill set Assistance Programs. for a job that may not yet exist today). • Universal Access to Quality Tertiary 2.3 Skills Qualifications Education Act, also known as the Free Tuition Law [Republic Act 10931], passed in Framework 2017, provides exemptions from tuition for eligible Filipino students in state or local Enhancing the productivity of the Filipino universities or colleges and subsidies to workforce requires a high-quality, effective needy students in private higher education labor and skills management system, which a institutions (HEIs). well-functioning qualifications framework can help achieve. The United Nations Educational, • Act Instituting a Philippine Labor Force Scientific and Cultural Organization (UNESCO) Competencies Competitiveness Program defines a Qualification Framework as the and Free Access to Technical-Vocational structure into which accredited qualifications Education and Training, or Tulong Trabaho are placed. This allows learners and workers, Act [Republic Act 11230], passed in 2019, education and training service providers, establishes a fund that provides free training employers, and government entities to gain fees and additional financial aid, such as information and a shared understanding of transportation allowances for qualified the broad equivalency of qualifications. A beneficiaries enrolling in selected training qualification framework is cognizant of various programs. modalities of skills development (e.g., formal vs. informal education), different levels of skills • Rice Competitiveness Enhancement Fund even within seemingly similar occupation groups (RCEF) under the Rice Tariffication Law (e.g., nurse practitioner vs. registered nurse), [Republic Act 11203] aids farmers and farm different career tracks and governing and quality workers registered in the system in attending assurance entities (e.g., academic tracks under training programs at field school. a ministry of education vs. vocational tracks under a skills development authority), and the Building on these reforms, the National need for mobility and transferability of skills Technical Education and Skills Development across different tracks, education and training Plan (NTESDP) 2018-2022 was adopted, as institutes, workplaces, and regions within the approved by Executive Order 83 in June 2019. country and beyond borders. It also recognizes The NTESDP aims to produce work-ready, globally the increasing trends of lifelong learning and competitive green-economy workers with 21st- highlights the importance of measuring and century skills to prepare the Philippine workforce accrediting learning outcomes. 7 This term – fourth industrial revolution—was coined at the 2016 World Economic Forum, to highlight the impact and consequences of disruptive technologies. 26 | Philippine Qualifications Framework Review Many countries currently implement the NQF, higher education, credential-issuing expert while the regional qualifications framework groups in various sectors, and organizations (RQF) is becoming increasingly common with of trades, which follow the NQF guidelines and the increases in labor mobility. Some countries standards. The database provides resources (e.g., United Kingdom) have multiple qualification for end-users of the qualifications framework, frameworks within the country, and a national such as learners, jobseekers, and employers. It system aims to provide coherent competency could serve as a great source for statistics and standards across different systems and promote monitoring related to skills demand, education transferability. RQFs facilitate workers’ mobility and training services, and workers’ mobility, and across borders in the region. For instance, the as a platform for information exchange among European Qualifications Framework recognizes the network of stakeholders. different education and training systems in each country and aims to provide a tool for However, there is no one-size-fits-all system, comparability in the systems among member and each country or economy adapts its countries. Once a member country’s NQF is framework according to its needs. Strong referenced to an RQF, qualifications reflected in motivation comes from the need to reduce the national diplomas or certificates should be skills mismatches, to have mechanisms to prove translated in other member countries. Due to a and signal competencies beyond academic historical tie, many Polish migrant workers tend credentials, and to recognize skills beyond the to work in Germany, and both countries’ NQFs schooling and training period toward lifelong are referenced to the European Qualification learning. Framework. Thus, the European Qualification Framework as a connector provides a comparison The PQF, as the Philippines’ NQF, along with the between two countries’ qualification levels, as ongoing education and skills reforms, aims to in Table 2.2. promote individuals’ lifelong learning and their ability to build and present skills credentials by Major building blocks for an NQF or RQF recognizing the adoption of national standards include (i) a policymaking entity with a and levels of learning outcomes of education. coordinating body as a secretariat, (ii) The PQF is a strong complementary initiative technical councils or advisory boards, and to the K-12 reform as it provides guidance to (iii) a qualifications framework database or the skills credentials to the added grades. It registry. The policymaking entity is responsible should be able to provide a coherent framework for developing, reviewing, updating, and for those who went through formal education endorsing the relevant qualification frameworks. systems, those who went through alternative Throughout the process, the entity is advised learning systems, and those who move from by technical councils and experts in various a technical training institute to a university. sectors and skills, and coordinates with multiple Ladderized education, skills progression, and stakeholders, especially education and training efforts to align with international qualifications service providers and accreditation authorities. are also part of the fundamental objectives of It is also responsible for disseminating the PQF. Notably, the referencing of PQF to ASEAN’s information on the qualifications framework Qualification Reference Framework (AQRF) could for wide utilization. The qualifications framework make it easier for Filipinos to enroll in schools registry database is supposed to include or acquire jobs according to their level of skills education and training institutes, including and credentials in the ASEAN member countries, Chapter 2 Context | 27 thus facilitating academic transfers and employment in the regional labor market. Table 2.2 Referencing Poland’s and Germany’s National Qualification Frameworks (NQFs) versus the European Qualifications Framework (EQF) Poland EQF Levels Germany NQF Level 8 NQF Level 8 • Doctoral Diploma • Doctorate and equivalent • Nonstatutory qualifications EQF Level 8 artistic degree • Regulated qualifications • Postgraduate qualifications NQF Level 7 NQF Level 7 • Second cycle of higher education • Master’s degrees and equivalent diploma higher education qualifications • Integrated first- and second-cycle (‘Diploma’ or ‘Magister’) diploma EQF Level 7 • Strategic Professional (certified) • Nonstatutory qualifications • Advanced vocational training • Regulated qualifications regulated by Vocational • Post-graduate qualifications Training Act or Crafts and Trades Regulation Code Levels 3 to 6 not shown here NQF Level 2 NQF Level 2 • Lower secondary school-leaving • Lower secondary school-leaving certificate certificate • Certificate of professional • Vocational training preparation EQF Level 2 competence in the profession • Full-time vocational school for • Nonstatutory qualifications basic training • Primary school-leaving certificate (8 years) NQF Level 1 NQF Level 1 • Nonstatutory qualifications • Vocational training preparation EQF Level 1 • Primary school-leaving certificate (6 years) Source The European Qualification Framework (https://europa.eu/europass/en/european-qualifications-framework-eqf). Chapter 3 Philippine Qualifications Framework Review 3.1 Overview of the PQF and values, (ii) application, and (iii) degree of independence. PQF levels 1 to 5 correspond The PQF Act states that the PQF describes to National Certificates (NC) I-IV and Diploma the levels of educational qualifications under TESDA; and PQF Levels 6 to 8 correspond and sets the standards for qualification to higher education with degree programs. As outcomes. It is a quality assured national discussed above, basic education up to grade 12 system for the development, recognition, and is under the oversight of DepEd, and the TESDA award of qualifications based on standards and CHED share responsibilities for delivering of knowledge, skills, and values acquired in TVET and higher education. Based on the PQF different ways and methods by learners and and Ladderized Education Act, the learning workers in the country. The PQF defines eight outcomes and credentials (including nonformal levels of qualification (Figure 3.1) differentiated and informal education and training) allow for by descriptors of expected learning outcomes easier transition and progression between TVET in the three domains of (i) knowledge, skills and higher education. Figure 3.1 The Architecture of PQF LEVEL B A S I C E D U C AT I O N T E C H N I C A L E D U C AT I O N A N D H I G H E R E D U C AT I O N SKILLS DEVELOPMENT L8 DOCTORAL AND POST DOCTORAL L7 POST-BACCALAUREATE L6 BACCALAUREATE L5 DIPLOMA L4 NC IV L3 NC III L2 NC II L1 NC I GRADE 12 Source PQF-NCC Resolution No. 2014-03 adopted on December 11, 2014 Chapter 3 Philippine Qualifications Framework Review | 29 PFQ levels are supported by sub-systems professions into the framework. CHED’s adoption of TESDA and CHED. TESDA is leading the of the competency-based learning standards implementation of the first five PQF levels. The and outcomes-based approach in 2012 built a existing qualifications, NC levels I through IV, are foundation on higher education aligned with adapted from the Philippine TVET Qualifications the PQF. Framework. They are integrated into the PQF, and a new TVET qualification, namely NC level Like other NQFs, the PQF can be assessed as V or Diploma, was added into the PQF as well. successful if it is found to be satisfactory in all Moreover, CHED’s subsystem covers degree three dimensions of design, implementation, programs corresponding to PQF Levels 6 to 8. and utilization (Figure 3.2). An NQF should be Studies of the labor markets and employment designed to have clear principles and objectives generation as well as major development plans, in line with the governing law and policies; including the PDP 2017-22 and NTESDP 2018- ensure the consistency of qualifications; provide 2022, provided adequate guidance on the transparency for individuals and employers with development of the qualifications for relevance more broadly recognized learning forms; and and appropriateness. Moreover, feedback on new clarify learning pathways and progression. The qualification needs from industry associations, NQF can then be implemented efficiently and professional organizations, and trade and labor effectively by multiple implementing agencies unions also played an important role in shaping when their roles, rules, and responsibilities are PQF. For instance, the Comprehensive National clearly defined. Enabling policies, adequate Industrial Strategy and Inclusive Innovation-led budget allocation, and a clear governance Industrial Strategy in 2018 also informed the PQF structure are important determinants for in linking its qualifications to labor market needs, successful implementation. Ultimately, the especially in the strategic industry sectors amid active utilization of various stakeholders would the changing world of work. be an important factor to measure the impact of an NQF. Individual workers, employers and The two subsystems above “interface” in businesses, and educators and trainers would the provision of Diplomas at Level 5. Level use the framework only when they find it useful. 5 is “referred to as a Diploma in the TVET sector, and also is meant to cover the sub- baccalaureate level of the traditional associate baccalaureate and the Diploma level in TVET for the technologist.”8 The CHED designs the associate degree for Level 5, while the TESDA designs the diploma in the TVET sector for Level 5. Both agencies are collaborating to craft TVET and higher education qualifications in the credit transfer system. The PQF is intended to harmonize and promote seamless training and education qualification systems, incorporating higher level qualifications and PRC’s regulated 8 AQRF Referencing Report of the Philippines (May 2019). p.44. 30 | Philippine Qualifications Framework Review Figure 3.2 Analytical Framework for PQF Review National Qualifications Framework Design Implementation Utilization Principles and Objectives Governance Structure Individuals Considerations for Key Budget, Staff Complement, Employers and Businesses Stakeholders and Activities Educators and Trainers Descriptors with Domains Coordination among Government Level Progression Key Stakeholders Source World Bank 3.2 Design of the PQF career life. In particular, it is intended to help individuals progress from a TVET certification Overall Principle and Objectives to a higher academic qualification, severing the notion of TVET being a second-class choice or The key principle of PQF is its focus on learning a trap. outcomes and competency, with results reflected in performance at the workplace The PQF is adequate concerning its objectives rather than inputs or modalities of skills in that it aims to meet the demands of major development.9 Thus the learning outcomes stakeholders, including the government, and competency should be recognized and individuals, and employers. First, the PQF transferable for learners and workers regardless can support the quality of education and TVET of the learning input (e.g., number or duration of by providing relevance, adequacy, and quality courses taken) or skills development modalities criteria and guiding results indicators and (e.g., prior learning through informal training qualifications. Second, with these core functions, or ALS) (Tuck 2007). Following this principle, the PQF is designed to promote individuals’ the PQF level descriptors, which are essential lifelong career development by allowing elements to the NQF, were developed to both vertical and horizontal pathways among describe the types and levels of education different levels and types of qualifications. For and TVET outcomes and guide qualification employers, the PQF can serve as a guideline for assessments. By facilitating progression among their companies’ human resource management, TVET, academic qualifications, and other such as the recruitment, placement, and modalities of skills development under a more promotion of workers, as well as wage-setting interoperable and transferrable system, the PQF and on-the-job training. Education and TVET is designed to promote both horizontal and institutions can anchor the PQF in providing vertical pathways throughout an individual’s high-quality education and training services as well by developing their curricula. Thus, 9 The PQF’s principle of “learning outcomes/competency-based, market-oriented and assessment-based” also shares the primary recommendations that other NQFs manifest. See AQRF Referencing Report of the Philippines (May 2019). Chapter 3 Philippine Qualifications Framework Review | 31 the PQF ultimately can serve as a catalyst be compared and related;10 for changes toward a more effective human resource development system in the Philippines, • Serving as a reference for reviewing and enhancing the linkages between education, designing qualifications – level descriptors especially higher education and TVET, and can be used as a reference to review existing among education, TVET, and the labor market. qualifications and design new ones; The stakeholders survey broadly affirms • Serving as a reference for quality assurance that the principles and objectives of the PQF – level descriptors can serve as a reference for are well formulated. A vast majority of the cross-examining the quality of qualifications respondents (89 percent) agree that the PQF and bringing together disparate education meets the fundamental purpose of qualification, and TVET systems and provisions within a retaining the relevance and effectiveness of single quality assurance framework; knowledge, skills and values, application, and degree of independence. Concerning the • Promoting lifelong learning – level purpose of the PQF, which drives education descriptors indicate how qualifications and training system reforms, 70 percent of the from different subsystems, including non- respondents agree that PQF promotes education formal learning can be linked and promote and training system reforms toward achieving individual’s career development; and a lifelong learning society. • Providing information about qualifications Level Descriptors with Domains – level descriptors provide information on the ‘level and overall orientation of a qualification With respect to PQF’s level descriptors, and its link to other qualifications’ that alignment with the principles is critical, as help authorities and institutions check is each domain’s clear articulation of the whether ‘a qualification meets equivalence expected learning outcomes, assessment requirements.’ criteria, and qualification standards and a balanced progression from lower to upper As shown in Table 3.1, PQF employs three levels across all domains (JET Education domains of expected learning outcomes: (i) Services 2017, p. 19). Well-formulated level knowledge, skills and value, (ii) application, descriptors are then expected to perform five and (iii) degree of independence. It is important important functions, as follows (CEDEFOP 2018, to have all three domains well-articulated and pp. 9-10; JET Education Services 2017, p. 10): balanced together to understand the overall progression from lower to higher levels. If a level • Classifying and mapping different descriptor is designed in such a way that the qualifications – level descriptors indicate progression through the levels of knowledge, how diverse qualifications of different skills, and values and application is relatively countries, subsystems, and institutions can slow, whereas progression toward independence 10 “The added value of NQFs depends on their ability to specify levels of learning outcomes” (CEDEFOP 2018, p. 5). The levels of the NQF serve as the reference to which qualifications can be mapped. “PQF levels denominate qualifications in terms of the application to work and/or professional activities of knowledge, skills and attitudes and the degree of independence allowed in the application” (AQRF Referencing Report of the Philippines, May 2019. p. 45). 32 | Philippine Qualifications Framework Review of work advances more rapidly, the qualification level descriptors do reflect the changing needs framework is not appropriately designed to of skills, knowledge, and application. However, provide standards for assessing and granting they note that the feasibility of implementation qualifications. Also, if qualifications are not and utilization of the level descriptors has yet distinguishable between different levels, the to be seen. The review also found that it is design should be revisited. essential to provide a more detailed definition and explanation on each of the level descriptors Three-quarters of the respondents confirm of the three domains with a clearer description that PQF is adequately designed in the level of vertical linkages among the eight levels. descriptors, but applicability in the field is not Practitioners point out that awareness among tested yet. The review finds that level descriptors implementers is low and note that a guide address existing requirements of industries, booklet or a manual would help to provide academia, and government and thus are in more detailed guidelines on how to interpret and line with the principle. They clearly distinguish translate level descriptors of the three domains between levels and three domains within the into education and TVET curricula, qualification level. Also, the respondents assess that PQF standards, and assessment tools with examples. Table 3.1 PQF Domains and Descriptors Level Qualification Knowledge, Skills, and Values Application Degree of Type Independence Grade Possess functional knowledge Apply functional knowledge, Apply skills in 12 across a range of learning technical skills and values in varied situations areas and technical skills in academic and real-life situations with minimal chosen career tracks with through sound reasoning, supervision. advanced competencies in informed decision-making, and communication; scientific, the judicious use of resources. critical, and creative thinking; and the use of technologies. Have an understanding of right and wrong; an understanding of one’s history and cultural heritage; and a deep respect for self, others and their culture, and the environment. I National Knowledge and skills that are Applied in activities that are In conditions Certificate I manual or concrete or practical set in a limited range of highly where there and/or operational in focus. familiar and predictable contexts; is very close involve straightforward, routine support, issues which are addressed by guidance or following set rules, guidelines or supervision; procedures. minimum judgment or discretion is needed. II National Knowledge and skills that Applied in activities that are set In conditions Certificate II are manual, practical and/or in a range of familiar predictable where there operational in focus with a variety context; involve routine issues is substantial of options. that are identified and addressed support, by selecting from and guidance Chapter 3 Philippine Qualifications Framework Review | 33 Level Qualification Knowledge, Skills, and Values Application Degree of Independence Type following a number of or supervision; limited set rules, guidelines or judgment or discretion is procedures. needed. III National Knowledge and skills that are Applied in activities Application at this Certificate III a balance of theoretical and/ that are set in contexts level may involve or technical and practical. Work with some unfamiliar or individual responsibility involves understanding the work unpredictable aspects; or autonomy, and/ process, contributing to problem involve routine and non- or may involve some solving, and making decisions to routine issues that are responsibility for others. determine the process, equipment identified and addressed Participation in teams, and materials to be used. by interpreting and/ including team or group or applying established coordination, may be guidelines or procedures involved. with some variations. IV National Knowledge and skills that are Applied in activities Work involves some Certificate IV mainly theoretical and/or abstract that are set in a range leadership and guidance with significant depth in one of contexts, most of when organizing or more areas; contributing to which involve a number activities for self and technical solutions of a non- of unfamiliar and/or others. routine or contingency nature; unpredictable aspects; evaluation and analysis of current involve largely non- practices and the development of routine issues that new criteria and procedures. are addressed using guidelines or procedures that require interpretation and/or adaptation. V Diploma Knowledge and skills that are Applied in activities that In conditions where mainly theoretical and/or abstract, are supervisory, complex, there is broad guidance with significant depth in some and non-routine which and direction, where areas, together with wide-ranging, require an extensive judgment is required in specialized technical, creative, interpretation and/or planning and selecting and conceptual skills. Perform adaptation/ innovation. appropriate equipment, work activities demonstrating services, and breadth, depth, and complexity techniques for self and in the planning and initiation of others. Undertake work alternative approaches to skill and involving participation knowledge applications across in the development of a broad range of technical and/ strategic initiatives, or management requirements, as well as personal evaluation and coordination. responsibility and autonomy in performing complex technical operations or organizing others. VI Baccalaureate Demonstrated broad and coherent Applied in professional/ Substantial degree of Degree knowledge and skills in their field creative work or research independence and or/ of study for professional work and in a specialized field of in teams of related lifelong learning* discipline and/or further fields with minimal study. supervision. VII Post- Demonstrated advanced Applied in professional/ High substantial degree Baccalaureate knowledge and skills in a creative work or research of independence that Program specialized or multi-disciplinary that requires self-direction involves the exercise of field of study for professional and/or leadership in leadership and initiative, practice, self-directed 34 | Philippine Qualifications Framework Review Level Qualification Knowledge, Skills, and Values Application Degree of Independence Type research and/or lifelong learning* specialized or multi- as individual work or in disciplinary professional multi-disciplinary teams. work/research. VIII Doctoral Demonstrated highly advanced Applied for professional Full independence in Degree and systematic knowledge and skills in leadership for individual work and/ Post-Doctoral a highly specialized and/or complex innovation, research or in teams of a multi- Programs multi-disciplinary field of learning and/or development disciplinary nature for complex research and/or management in a highly or more complex professional practice and/or for the specialized or multi- setting, which advancement of learning* disciplinary field. demands leadership for research and creativity for strategic value added. Significant level of expertise- based autonomy and accountability. *based on PQF-NCC Resolution No. 2014-01 adapted on July 22, 2014. Source PQF website. Level Progression increase in complexity from lower to higher levels. Overall, each level descriptor captures While each level descriptor for the first domain the degree of complexity relatively well, is well defined, the entire level progression demonstrating the changes of key concepts lacks clear distinction and continuity. The of knowledge in terms of (i) depth, breadth, review delves deeper into the appropriateness and complexity and (ii) types and applications of level descriptors by each domain with a according to level. Although it is implausible methodology used by JET Education Services to have an unambiguous progression across all (2017).11 For the first domain, the review levels by three domains, still some levels of each adopts a revised Bloom’s taxonomy to assess domain categorized into the same taxonomy knowledge and cognitive processing. Knowledge dimension need to be more clearly distinguished. is disaggregated into factual, conceptual, In that sense, it is not clear whether all eight procedural, and metacognitive knowledge.12 levels of knowledge lie in a continuum with Table 3.2 presents how the knowledge equal grades of distinction separating them13 requirements in the first domain of the PQF that can be easily identified and understood. Specifically, the distinctions between levels 1 11 See JET Education Services (Jan. 2017) for the methodology used to assess Southern African Development Community (SADC) Regional Qualifications Framework (RQF) for the analytic review of level descriptors. The method was also used for the analysis of the European Qualifications Framework (EQF) level descriptors and NQF level descriptors of European countries (CEDEFOP 2018). Although the domains of the SADC RQF do not precisely match those of the PQF, the methodology used for the analysis of level descriptors of the SADC RQF can be adopted to analyze the PQF level descriptors. The first domain of the PQF corresponds to the knowledge domain, the second domain of the PQF corresponds to the skills domain, and the third domain of the PQF corresponds to the autonomy and responsibility domain of the SADC RQF. 12 Factual knowledge means the basic elements students must know to be acquainted with a discipline or solve problems in it; conceptual knowledge means interrelationships among the basic elements within a larger structure that enable them to function together; procedural knowledge means knowledge of how to do something, of methods of inquiry, and of criteria for using skills, algorithms, techniques, and methods; and metacognitive knowledge means cognition in general as well as awareness of one’s cognition. 13 The magnitude of the progress of level descriptors from one level to the next needs to be clear enough to be distinguished. Chapter 3 Philippine Qualifications Framework Review | 35 Table 3.2 Knowledge Dimension in the First Domain (Adopting a Revised Bloom’s Taxonomy) Knowledge Dimension PQF – Knowledge Dimension in the First Domain Factual Conceptual Procedural Metacognitive Knowledge Knowledge Knowledge Knowledge Level 8 x Level 7 x Level 6 x x Level 5 x x Level 4 x x Level 3 x x Level 2 x Level 1 x Note (i) factual knowledge: basic elements students must know to be acquainted with a discipline or solve problems in it; (ii) conceptual knowledge: interrelationships among the basic elements within a larger structure that enable them to function together; (iii) procedural knowledge: how to do something, methods of inquiry, and criteria for using skills, algorithms, techniques, and methods; (iv) metacognitive knowledge: knowledge of cognition in general as well as awareness of one’s cognition. Source JET Education Services 2017, p.29. and 2 and between levels 3, 4, and 5 appear For the application domain, this review adopts unclear. This implies that the PQF–NCC needs the Structure of Observed Learning Outcomes to develop guidelines on how the eight levels (SOLO) method as in the JET Education of knowledge can be differentiated from each Services (2017) (Table 3.4) (Biggs and Collis other so that practitioners can accurately utilize 1982). The SOLO levels capture the progression the PQF descriptors for developing curricula of the application level between PQF levels 1 and qualification standards. and 5 well, but the differences between levels 5 and 8 are unclear. For example, levels 8 and 7, Similarly, Table 3.3 illustrates how the level both require the competencies of leading and of the cognitive process dimension increases managing teams or work organization, describe along lower to higher levels. The cognitive ‘professional leadership’ and ‘leadership’ process is disaggregated into remembering, required, respectively, but those two terms understanding, applying, analyzing, evaluating, are hard to distinguish. In addition, current and creating14 that correspond to various skills application level descriptors that define learners’ and values. Progression of the level increase competency only based on their learning in is relatively well captured in the PQF, whereas schools or TVET institutions may fail to fully there is a lack of distinction between levels 4, capture post-school employment situations (e.g., 5, and 6, as in the knowledge dimension. internship programs, apprenticeship programs, 14 Remembering refers to retrieving, recognizing and recalling relevant knowledge from long-term memory; understanding refers to constructing meaning from oral, written, and graphic messages through interpreting, exemplifying, classifying, summarizing, infer- ring, comparing, and explaining; applying refers to carrying out or using a procedure through executing, or implementing; analyz- ing refers to breaking material into constituent parts, determining how the parts related to one another and an overall structure or purpose through differentiating, organizing, and attributing; evaluating refers to making judgments based on criteria and standards through checking and critiquing; and creating refers to elements together to form a coherent or functional whole, reorganizing elements into a new pattern or structure through generating, planning or producing. 36 | Philippine Qualifications Framework Review Table 3.3 Cognitive Process Dimension in the First Domain (Adopting a Revised Bloom’s Taxonomy) PQF – Cognitive Cognitive Process Dimension Process Dimension in the First Remember Understand Apply Analyze Evaluate Create Domain Level 8 x Level 7 x Level 6 x x Level 5 x x Level 4 x x Level 3 x x Level 2 x Level 1 x Note The six Cognitive Process Dimensions are (i) remembering: retrieving, recognizing and recalling relevant knowledge from long-term memory: (ii) understanding: constructing meaning from oral, written, and graphic messages through interpreting, exemplifying, classifying, summarizing, inferring, comparing, and explaining; (iii) applying: carrying out or using a procedure through executing, or implementing; (iv) analyzing: breaking material into constituent parts, determining how the parts related to one another and an overall structure or purpose through differentiating, organizing, and attributing; (v) evaluating: making judgments based on criteria and standards through checking and critiquing; (vi) creating: putting elements together to form a coherent or functional whole, reorganizing elements into a new pattern or structure through generating, planning or producing. Source JET Education Services (2017), p.30. Table 3.4 Application Domain Adopting the Structure of Observed Learning Outcome (SOLO) Method SOLO Levels PQF – Application Domain Pre- Uni- Multi- Extended Relational structural structural structural abstract Level 8 x Level 7 x Level 6 x Level 5 x Level 4 x Level 3 x Level 2 x Level 1 x Note The five SOLO levels are: (i) pre-structural (no relevance): fail, incompetent, misses the point; (ii) unit-structural (one relevant aspect): identify, name, follow simple procedure; (iii) multi-structural (several relevant independent aspects): combine, describe, enumerate, perform serial skills, list; (iv) relational (integration into a structure): analyze, apply, argue, compare/ contrast, criticize, explain causes, relate, justify; and (v) extended abstract (generalization to a new domain): create, formulate, generate, hypothesize, reflect, theorize. Source JET Education Services (2017), p. 32. Chapter 3 Philippine Qualifications Framework Review | 37 and practical training, along with recognition of 2, between levels 3 and 4, between levels 5 prior learning and current competence). Thus, and 6, and between levels 7 and 8. Levels 7 it is more appropriate to consider contexts in and 8 qualifications require ‘leadership’ that which students and workers apply knowledge can influence the performance of a team and skills through a wide range of learning or organization in line with the ‘leadership’ opportunities earned both in schools and requirement in the domain of application. workplaces so that the application of knowledge and skills is assessed appropriately. Putting all these together, the PQF descriptors by three domains do not progress uniformly For the independence-of-work domain, the across all levels, raising a critical question: Dreyfus model of skills acquisition is used Is the current 8 level structure appropriate to analyze the autonomy and responsibility to distinguish the qualifications levels of domain. The Dreyfus model of skills acquisition the three domains? It might be arbitrary or assumes skills formation based on instruction and artificial to have an eight-level structure in practice, categorizing learners into novices and some domain(s) in the Philippines’ labor market those with competency, proficiency, expertise, situation, considering actual demands for the and mastery. Table 3.5 shows that this domain three domains’ competencies. In the current appears to be relatively well developed, with PQF design, if a university would develop a new a smooth increase in the complexity, breadth, college qualification, the academic curricula and depth of the level of independence of would need to meet the PQF level 6 descriptors work from levels 1 to 8. Still, there is room to in all three domains, requiring students also be more straightforward between levels 1 and to have a qualification of level 5 in all three Table 3.5 Degree of Independence Domain, Following the Dreyfus Model of Skills Acquisition PQF- Degree of Dreyfus Levels Independence Advanced Domain Novice Competent Proficient Expert Beginner Level 8 x Level 7 x Level 6 x Level 5 x Level 4 x x Level 3 x Level 2 x Level 1 x Note The Dreyfuss model has five levels: (i) novice: has an incomplete understanding, approaches tasks mechanically and needs supervision to complete them; (ii) advanced beginner: has a working understanding, tends to see actions as a series of steps, can complete simpler tasks without supervision; (iii) competent: has a good working and background understanding, sees actions as least partly in context, able to complete work independently to a standard that is acceptable, though it may lack refinement; (iv) proficient: has a deep understanding, sees actions holistically, can achieve a high standard routinely; (v) expert: has an authoritative or deep holistic understanding, deals with routine matters intuitively, able to go beyond existing interpretations, achieves excellence with ease. Source JET Education Services (2017), p.31. 38 | Philippine Qualifications Framework Review dimensions. However, depending on the college for the Baccalaureate course (PQF level 5) if course or program, that requirement may not desired, while other graduates are not assigned be feasible. As will be further discussed below, to any level of PQF. The strands included feasibility needs to be investigated, and based in the TVL track are agri-fishery arts, home on the field experience, there is room to revise economics, industrial arts, and information and update the level descriptors. and communications technology (ICT), mostly following a TVET curriculum. Also, the notion The Status of Senior High School of basic education as a foundation level in the Qualification PQF structure unintentionally excludes those individuals who have dropped out of school, if The PQF recognizes the importance of workers with NC levels 1 to 4 are at least Grade completing basic education (Grade 12) as the 12 completers. These observations may call for a foundation level. This means that it is critical more flexible application of the PQF levels. The to ensure that all SHS graduates do have a DepEd responsible for basic education currently foundational level of knowledge, skills, and proposes to place the JHS certificate or SHS values and core competencies required to diploma at PQF levels 1 and 2, respectively. acquire at least the PQF level 1 qualification of the three domains, regardless of the tracks Possible Consideration for chosen. If SHS was not accountable for providing Professional Qualifications in PQF quality education, the foundation for PQF would Levels 6 to 8 be weak and unsustainable. As has been well recognized in the 2018 PISA results and other The PQF levels are driven mainly by academic studies, the academic competence of 15-year degrees, not fully reflecting professional old Filipino students has been assessed to qualifications that require years of experience be much lower than both the OECD average or complexity of practice. Academic and and the average of other Asian countries. This professional qualifications are separate and highlights that the quality of basic education, academic degree programs alone would not particularly SHS, needs to be enhanced. Related capture professional qualification standards. to the quality issue, some survey respondents While academic qualifications reflect one’s expressed the need for qualified and well-trained knowledge and understanding of a theory SHS teachers as well as sufficient facilities and and some ability to apply that knowledge equipment, especially for resources related to independently, they do not adequately certify TVL qualifications like automotive servicing an individual’s adaptability in real-life situations and machining. It is thus necessary to examine or a changing environment. whether the secondary school exit exam guarantees the competencies of graduates The current PQF design may overlook hands- corresponding to the level descriptors. on experience and qualifications, such as the professional occupations required for There is a lack of clarity in the newly added licensing. For example, to become a licensed SHS TVL track (Grades 11 and 12) in the architect in the Philippines, a graduate of a five- PQF framework. Completion of the TVL year Bachelor of Science (BS) in Architecture programs provides a pathway to NCs I and II degree program needs to pass the Architectural (equivalent to levels 1 and 2) with an option Licensure Examination with experience of Chapter 3 Philippine Qualifications Framework Review | 39 practicing, equivalent to the Master of Art (MA) six levels of occupation-based qualifications, also or Doctor of Philosophy (Ph.D.) degree levels. accommodates professional and specialist jobs However, in the current PQF level structure, one at the levels of Specialist Diploma and Graduate remains a BS degree holder without recognizing Certificate/Diploma. the license or experience of practicing. Alternatively, the PQF levels 7 and 8 could consider including professional qualifications 3.3 Implementation of the PQF in addition to the MA and Ph.D. degrees. The advantage of including those would be for the Governance Structure PQF to be able to reflect the national training and education system of “the Philippines’ Career The establishment of PQF-NCC, technical Progressions and Specializations Programs” working Group (TWG) and working groups currently being prepared by the PRC, and vice (WGs), and a permanent Secretariat constitute versa, for establishing equivalency. Adding the overall structure of PQF governance. the professional track would also align well The PQF-NCC, composed of key agencies in with other international standards. In Hong education, skills, and workforce competency, Kong, the Professional Diploma/Certificate and is central to ensuring adequate design, Advanced Diploma/Certificate are placed at implementation, and utilization of PQF. Given levels 4 to 6 (Box 3.1). Singapore’s Working Skills the multitude of education and training and Qualifications (SWSQ) system, which comprises quality assurance systems implemented by Box 3.1 Recognition of Professional Qualifications under the Hong Kong Qualifications Framework (HKQF) Figure 3B.1 Choice of Award Titles for Different Levels 7 Doctor Postgraduate 6 Master Diploma / Certificate Professional Advanced 5 Bachelor Diploma / Certificate Diploma / Certificate Diploma Higher 4 Associate Diploma / Certificate Certificate 3 2 Foundation Certificate 1 40 | Philippine Qualifications Framework Review The HKQF is consisted of a seven-level hierarchy covering qualifications in the academic, vocational, and professional, as well as continuing education and training sectors. Professional qualifications have been recognized under the HKQF since 2018, along with learning programs and recognition of prior learning qualifications, as shown in Figure 3B.1. The rationale is to acknowledge the importance of the assessments that could be made available to the workforce for related professional qualifications. Figure 3B.2 Qualifications Framework–Recognized Qualifications Channels in the HKQF System Qualifications attained through learning programs that are offered By learning by education, training providers, and industry, and accredited programs by the Hong Kong Council for Accreditation of Academic and Vocational Qualifications QF-recognized qualifications Qualifications issued by RPL Recognition Assessment Agencies in recognition of of prior work experiences and competencies learning (RPL) acquired by industry practitioners at the qualifications workplace By assessment Qualifications attained through Professional assessments and issued by qualifications accreditation agencies appointed by the Secretary of Education Professional qualifications are attained through assessments and issued by accredited agencies that the Secretary of Education appoints (Figure 3B.2). Eligible organizations may apply to become assessment agencies for issuing professional qualifications under the HKQF. Currently, there are three agencies selected for professional qualifications assessment: Hong Kong Institute of Certified Public Accountants; Marine Department of the Government of Hong Kong Special Administrative Region; and Hong Kong Institute of Bankers. To have their professional qualifications assessed, individuals need to meet all of the following criteria: (i) the requisite academic qualifications; (ii) prescribed years of industry or professional experience; and (iii) passing of a robust assessment in a written or practical format. Source Hong Kong Qualifications Framework website. individual agencies, the PQF-NCC’s leadership potential users. TESDA, as the PQF-NCC’s Interim is particularly critical to ensure a harmonized Secretariat, has been leading and supporting approach for the country’s qualifications agenda. the institutionalization of TWG and its WGs for The powers and functions of the PQF-NCC are PQF’s implementation. comprehensively covered in Section 5 of the PQF Act and its IRR (Box 3.2). Established in Despite a relatively clear set of roles and 2012, the PQF-NCC has made significant strides responsibilities, PQF-NCC’s activities have in strengthening the design of PQF, preparing been limited so far, mainly due to less clear for its implementation, coordinating among rules on staff complement and budget to stakeholders, and raising awareness among execute the PQF tasks and related rules Chapter 3 Philippine Qualifications Framework Review | 41 to manage the resources. For any entity to information technology – business process effectively accomplish its functions, it has to have management (IT-BPM), food processing, and a clear specification of roles and responsibilities. supply chain, have contributed to developing Along with that, it needs human resources, a and refining the SHS curriculum to align with budget to execute the tasks, and related rules industry requirements. However, implementing to govern them. For PQF-NCC, a broad set of PQF has not been the highest priority for the roles and responsibilities have already been industry sector. Some industry representatives defined, but specific rules related to both staff in the key informant interviews mentioned other complement and budget execution fall short. demanding priorities and challenges, including The establishment of a permanent PQF-NCC labor regulations and practices such as ENDO Secretariat and the formation of the PQF-NCC (i.e., “end of contract” or hiring of workers based and its WGs have not been fully completed. The on short-term contracts below six months to delay is related to the lack of rules granting the avoid payment of social benefits and fees which practical authority of personnel administration come with regularizing workers), the viability of (e.g., appointment and placement of staff) and TVET, and relations with labor unions, among guiding specific activities. others. Similarly, Section 6 of the PQF Act (and IRR Sections 20-22) addresses each WG’s The composition and membership of PQF- functions and lead agency (Table 3.6), but the NCC have not been formed as specified under process of constituting all WGs has yet to be Section 5 of the PQF Act (and Section 9 of its completed. IRR). In particular, the inclusion of representatives from the economic and industrial sectors has Budget, Staff Complement, and to be sorted out given the requirement of their Activities inclusion. The GoP has been working closely with the private sector through the Philippine The operationalization of the PQF Act requires Chamber of Commerce and Industry (PCCI) a concrete and coordinated financing plan by and other employer associations. Sectors that the CHED, TESDA, and DepEd. The PQF Act require vocational skills, such as construction, Box 3.2 Powers and Functions of the PQF-NCC • Harmonize qualification levels across basic, technical-vocational, and higher education; • Align education standards and learning outcomes with the level descriptors contained in the PQF; • Promote the PQF and its elements, including the principles, key features, definitions or terminologies, structure, and governance arrangements, and provide information and guidelines on the implementation of the PQF; • Rationalize the quality assurance mechanisms in Philippine education; • Develop and recognize pathways and equivalencies; • Maintain a national registry of qualifications to ensure the international alignment of the PQF with the qualification frameworks of other countries or regions; • Create technical working groups in support of the development and implementation of the PQF; • Represent the country in international fora or negotiations in line with qualifications agreements or arrangements; to review and update the PQF; • Submit to the Office of the President, the Senate of the Philippines, and the House of Representatives an updated report on the progress and accomplishments in relation to the PQF; and • Perform such other functions that may be related to the implementation of the PQF. Source Section 5 of the PQF Act 42 | Philippine Qualifications Framework Review and its IRR provide the legal foundation for the the initial implementation of the PQF Act shall PQF financing, but to date no budget has been be sourced from the current budgets of the allocated for PQF-NCC and its TWG and WGs. CHED, TESDA, and DepEd. Thereafter the funds Indeed, the Act does not prescribe budget necessary for the continuous implementation of allocation or execution for the PQF-NCC and the Act shall be included in the annual General the TWGs regarding PQF implementation. The Appropriations Act.” It is up to each individual law specifies that an “amount necessary for agency, coordinating through the PQF-NCC, to Table 3.6 PQF-NCC Working Groups Working Group Lead Agency Functions Qualification TESDA • Provides information to employers, trainers and trainees on education and Register training opportunities, licensure and assessment, and certification services in professional and skilled qualifications; • Maintains/updates the database of professional and skilled qualifications; • Provides regular, timely data/information to the Technical Secretariat; • Coordinates/harmonizes agency databases on the registry of qualifications Quality CHED • Develops PQF quality procedures manuals Assurance • Facilitates the conduct of evaluation and compliance audits/reviews vis-à- vis set standards; • Provides recommendations to the NCC based on the results of the evaluation Pathways and CHED • Establishes equivalency pathways and equivalency system for seamless Equivalencies education transfer and/or progression between education levels corresponding to the PQF levels; • Develops a National System of Credit Transfer; • Facilitates the enhancement and adoption of the Ladderized Education Program consistent with the PQF Information and DepEd* • Develops information, education and communication (IEC) materials to Guidelines promote and advocate PQF; • Formulates guidelines, circulars and policy issuances for the approval of the NCC International PRC • Conducts research/studies for comparability/benchmarking of Philippine Alignment qualifications with other countries and regional/international groupings; • Coordinates with professional organizations in the pursuit of mutual recognition arrangements/ agreements Government-In- DOLE and • Facilitate coordination and linkages among government, industry, and dustry-Education TESDA the education sector and academic/research community on cross-cutting Sector issues toward making PQF responsive and relevant to the broader economy and society Lifelong Learning DepEd and • Initiate research studies, consultations, and pilot programs for the TESDA recognition of lifelong learning within the PQF; • Compile and disseminate information on lifelong learning through databases, conferences, and symposia. Note PQF Act (Section 6) and its IRR (Rule IV Sections 20-21) specify these seven WGs with their functions and composition. Section 6 of the PQF Act states the establishment of the PQF-NCC WGs to “pursue the implementation of the PQF.” Section 20 of the IRR of the PQF Act enumerates the seven WGs, namely: Qualification Register, Quality Assurance, Pathways and Equivalencies, Information and Guidelines, International Alignment, Government-Industry-Education Sector, and Lifelong Learning. According to Section 21 of the IRR, the WGs shall consist of “designated representatives of the respective members of the PQF-NCC and other relevant stakeholders and experts and each WG shall be chaired by a member-agency as designated by the PQF-NCC.” Section 22 of the IRR states that “the WGs shall develop their respective workplans and targets aligned to their mandates and prepare the corresponding budget for approval and inclusion in the overall budget for PQF implementation.” * Currently, the DepEd sits as the interim head of the WG, the permanent head is still to be identified once the PQF Permanent Secretariat has been established. Chapter 3 Philippine Qualifications Framework Review | 43 set aside a task team and budget and to initiate WG lead agencies have been identified, the PQF-specific activities. Planning concrete action composition of members of each WG should be items with medium- to long-term goals for the agreed on, including which of them will provide PQF and securing the funds will likely help the information on budget requirements. accelerate the operationalization of the PQF, including carrying out activities for awareness Stakeholder Coordination and campaigns, capacity-building workshops, Collaboration and curriculum revisions. The endowment fund that HKQF adopted could be a solution, To effectively implement the PQF, it is essential where a dedicated QF Fund was established to have well-performing collaboration and to support the sustainable development and coordination mechanisms among the PQF-NCC implementation of QF in 2014.15 WGs and key agencies. While the importance and potential of a PQF governance system to Specific activities, budget, and staff contribute to coordination and cooperation complement for PQF should be devoted for among key stakeholders are well recognized, the PQF-NCC and its Secretariat. Although the other areas need to be strengthened (Box 3.3). PQF Act states the functions of the PQF-NCC, For example, an essential function of the PQF is to there are no specific rules and regulations on promote vertical pathways from TVET institutions the activities of the PQF-NCC related to those to universities and linkage mechanisms from functions and their budget, and there is no Recognition of Prior Learning (RPL) to NCs and comprehensive strategic plan. The consequence even to a university degree, and this requires that is that representatives of each agency in the coordination be institutionalized by law, rules, PQF-NCC, TWGs and WGs work for the PQF and regulations among TESDA and CHED. The agenda in addition to their regular workload linkages across different education and training and assignments in their own agencies. The systems and the mechanisms to carry forward situation is the same for TESDA, which plays a recognition and credits all need to be enhanced. role as an Interim Secretariat for the PQF-NCC. The review confirms that it is critical to establish The Philippines can explore the option a separate Permanent Secretariat for the PQF- of establishing permanent independent NCC, as stated in Sections 19 and 24 of the IRR governance or secretariat to effectively of the PQF Act, with members equipped with the manage the PQF to ensure close coordination expertise in the PQF agenda to support the PQF- in implementing the PQF among key NCC and with authority to execute the budget. stakeholders. There is no single solution, and it is not uncommon to face this coordination WGs, intended to facilitate the operation difficulty between qualifications across sectors and development of rules and regulations and between the agencies responsible for these governing the budget and activities for specific qualifications. Most Asia Pacific Economic technical areas of PQF, are not fully functional Cooperation (APEC) economies do indeed as envisaged. The WG’s activities so far tend to have multiple agencies responsible for the heavily rely on the respective chairs’ discretion accreditation, award, and quality assurance without clear workplan or guidelines. While lead 15 The QF Fund of US$1 billion was initially established, and in 2018, an additional US$12 billion was further allocated. 44 | Philippine Qualifications Framework Review of qualifications, with an increasing effort to Department of Education, Skills and Employment achieve alignment of qualifications (APEC 2009). -- without an independent NQF agency. Malaysia’s governance system to manage the However, the recent review of Australia’s system Malaysian Qualification Framework (MQF) highlighted the need for a governance body (Box appears to be similar to that of the Philippines 3.4). Hong Kong, in addition to its Qualification in its intention and functions, with significant Framework Secretariat, appears to rely heavily maturity. In contrast, the Australian system on the private sector through Industry Training reflects its policy trials of implementing its Advisory Committees. These committees qualification through a single entity -- the consist of representatives of the training sector, Box 3.3 PQF Survey Results – Facilitating Interactions Among Stakeholders Do you agree that the PQF facilitates interactions among stakeholders? 100% Survey Statements Soliciting Agreement/Disagreement (Section D) 6% 8% 5% 6% D.1. – “The PQF governance system has played a crucial role in 25% 80% 32% 28% 29% engaging stakeholders in designing programs and qualifications, promoting lifelong learning and social mobility (pathways) through 60% communication, collaboration and coordination across education, TVET and industry, and increasing the sectoral initiatives.” 41% 38% 40% 40% 35% D.2. – “The PQF governance system has played a crucial role in increasing public awareness of the usefulness of the of the PQF for their 20% career development, as well as other stakeholders such as education 27% 26% 23% 23% and TVET providers.” 0% DI D2 D3 D4 D.3. – “The PQF governance system has played a crucial role in GOVERNANCE promoting the reform of the education and training systems in terms of quality, relevance, access, efficiency, and equity, and consequently Strongly Agree enhancing the competitiveness of the Philippines education and Agree Disagree training system.” Somewhat Strongly Disagree D.4. – “The PQF governance system has played a crucial role in efficiently carrying responsibilities of the PQF National Coordinating Council and Technical Committee (institutional arrangement) in order to ensure quality assurance of the PQF as well as operation.” Summary of Results Close to 70 percent agree (including 27 percent who strongly agree) that the current PQF governance system is conducive to promoting collaboration and coordination across all stakeholders. “Encouraging a common understanding of the importance of the PQF among key stakeholders” and “institutionalizing coordination mechanisms” are regarded as important contributing factors. Respondents also agree that PQF governance system is appropriate to improve the country’s education and training systems. However, there is room to strengthen the PQF-NCC and WGs to ensure PQF’s operations and quality assurance. Respondents highlighted the need for strong collaboration among industry, government, and academia as well as enhanced public awareness. Financial support, and more active and institutionalized coordination are mentioned as critical factors. Note The survey results should be interpreted with caution. Some respondents answered the status check questions in a different way (e.g., what the PQF ought to be as an ideal NQF). 16 The Hong Kong Qualifications Framework: A Platform for Lifelong Learning (2017), Qualifications Framework Secretariat. Chapter 3 Philippine Qualifications Framework Review | 45 industry, professional groups, and regulatory workers -- of the PQF (Figure 3.3). First, the bodies of the relevant industries. In total, 21 of role of government is critical in the cycle these committees have been formed, covering of the design and implementation of PQF, more than 53 percent of the total workforce monitoring and evaluation of the utilization in Hong Kong.16 They play a significant role and impacts of the PQF on other actors, and in the implementation and development of updates and revisions of PQF for an adaptive Specification of Competency Standards on the system. With this system in place, the GoP training needs and staff development, and the can utilize the PQF for the country’s human establishment of RPL mechanisms for respective resource development instrument to maintain industries.17 and enhance the competitiveness of the current and future workforce. 3.4 Utilization of the PQF Second, education and training service providers can bring their services up to the A well-functioning qualifications system quality required by the PQF and thus industry should be fully utilized for all key users – and support learners to achieve learning government, education and training service outcomes at or above the required standards. providers and trainees, and employers and Box 3.4 Establishing an Independent NQF Body The creation of the Malaysian Qualifications Agency (MQA), enacted in 2007, is considered one of the success factors of the Malaysian Qualifications Framework (MQF)’s design and implementation. MQF, also benchmarked against the AQRF, is administered by the MQA in collaboration with the Ministry of Higher Education and the Ministry of Human Resources. The Malaysian Qualifications Agency Act of 2007 not only specifies the legal foundations of establishment, functions, and powers of the agency but also details its budgets and appointment of staff. According to the 2007 Act, MQA is responsible for accreditation and quality assurance of TVET and higher education qualifications to recognize and articulate qualifications and maintain the Malaysian Qualifications register. Accreditation is not compulsory, per the 2007 Act, but became mandatory by subsequent regulations and policies (e.g., the Malaysian Qualifications Agency Act 2017), thus ensuring compliance with MQF. The recent review of the Australian Qualifications Framework* (AQF) also offers useful insights. Since the disbandment of the AQF Council in 2014, the AQF has had no formal governance arrangements. Currently, its implementation is delivered through the Australian Government Department of Education, Skills and Employment in consultation with the states and territories. The AQF review team has recommended that an AQF governance body may need to be established to ensure the effective implementation of AQF, with representation from the government, schools, VET institutes, higher education, industry, and professional bodies. The review team has also recommended granting the body the authority to convene and oversee technical working groups to undertake specialist tasks. In addition to the implementation of agreed AQF reforms, a governance body was encouraged to do the following: (i) liaise with higher education, VET and school standards bodies and regulators about matters related to the AQF; (ii) monitor developments in education and training as well as the economy and their implications for the AQF, including shorter-form credentials and general capabilities; (iii) advise on the addition or removal of qualification types in the AQF; and (iv) make recommendations and oversee additional reforms where necessary.** Note *The review was conducted in 2019 to ensure the AQF to meet the needs of students, employers, education providers, and the wider community, and the Government accepted all the recommendations. **Review of the Australian Qualifications Framework (2019), p. 89. Sources: Malaysian Qualifications Agency website; Australian Department of Education and Training (2019). 17 Hong Kong Qualifications Framework website: https://www.hkqf.gov.hk/en/home/index.html 46 | Philippine Qualifications Framework Review For wide utilization of PQF, education and Third, employers can utilize the PQF scheme as training providers should be able to interpret a personnel management tool for companies’ and translate the PQF level descriptors into human resource development activities. These curriculum, assessment tools, qualification include recruitment, placement, promotion, standards, and career guidance programs for provision of in-service training, and wage advising horizontal/vertical pathways through determination. Finally, individuals, including the PQF scheme within the life-long learning current workers, jobseekers, and students, can framework. use the PQF scheme to pursue continuous career development and to show their achievements Figure 3.3 Stakeholders for Utilization within the lifelong learning framework. The Korean National Competency Standards (NCS) provide insights into connecting skills demands, Government -- anchor the curriculum, and qualification standards through PQF as a national detailed implementation mechanisms and human resource development utilization framework (Box 3.5). The review found a broad consensus on the Education and well-designed PQF principles and structure training providers Employers -- utilize -- use the PQF as the PQF as a HR but weak implementation and low utilization standards for quality management tool of PQF largely given its early stage. The assurance stakeholders survey shows that a vast majority of the respondents (89 percent) broadly agree Individuals -- that the PQF meets the fundamental purpose utilize the PQF as of qualification, retaining the relevance and lifelong learning guidance effectiveness of knowledge, skills, values, and applications (Box 3.6). On the purpose of the PQF that drives education and training system Source World Bank reforms, 70 percent of the respondents agree Box 3.5 Korean National Qualifications and National Competency Standards (NCS) The NCS constitutes a critical part of Korea’s NQF, aiming to systematize the essential knowledge, skills, and attitudes required to perform jobs at various levels and across different industries (Figure 3B.3). The NQF in Korea is a level-based system that provides equivalencies and linkages between educational attainment and vocational training and qualifications prior to labor market entry, and job competency post labor market entry. The standards, specified in NCS, are intended to guide reforms of the vocational education and training and qualification systems to meet industries’ needs and encourage competency-based human resource management (such as hiring, promotion, wage, etc.) among companies. To date, NCS is leading to a shift in the curriculum of high schools, colleges, and public and private vocational training institutions, with an emphasis on a competency- based society. More specifically, the NCS aims to create a model to establish a jobs-competency assessment system in connection with recruitment, promotion, and reward in the labor market. For instance, NCS guides both workers and employers at the recruitment stage, so skills mismatches are minimized. NCS learning modules are developed by sector and occupation of select industries and are utilized by post-secondary schools and technical colleges. Further, the NCS is being used to train and recruit incumbents by disseminating competency-based recruitment models to private companies and public institutions. Chapter 3 Philippine Qualifications Framework Review | 47 Figure 3B.3 Korean NQF and National Competency Standards NQF (National Qualification Framework / School = Qualification = Work experience) Before entering After entering the the Labor market Labor market HR management such as Recruitment promotion and reward system Recruitment focusing on NCS-based competency Type I: Assessment based on Competency- job competency BasicRecruitment job competency based society Qualification Education Type II: on focusing system system Job performance NCS-based competency (school) competency for each occupational group Type III: Detailed job performance competency System of work and learning Job training National Competency Standards (NCS) Raise social awareness of recognizing the importance of competency Source Human Resource Development (HRD) Service of Korea. The NCS systematically classifies and standardizes the competencies required to perform a job based on the job performance model. The competencies defined by NCS can be divided into key competencies and job performance competencies, defined as follows: • Key competencies are fundamental to performing all the tasks of one’s job. • Job performance competencies refer to the knowledge, skills, and attitudes required to perform a specific job, and they adhere to the system of the main category (fields with similar skills referring to Korean Employment Classification); middle category (fields with similar skills, industries, and career development paths within the same major categories); subclass (similar skills within the same middle category); and subdivided category (detailed occupation). The subdivision consists of several competencies according to level. Level 1 is the level at which an individual performs tasks under specific instructions and supervision, whereas Level 8 is the level at which authority and responsibilities are assigned to the organization and the business as a whole. The principles and process of NCS – development, adjustment, supplementation, and mutual connection – are based on the efforts to maintain the industry and labor-market relevance of skills development (Figure 3B.4). To reinforce work-educational training-qualification linkage and lay the foundation for a competency-oriented society, HRD Korea, the primary agency responsible for NCS, continues to develop and improve national competency standards in accordance with technological changes in the industrial field and demand for new personnel. The feedback mechanism ensures that industry needs can be promptly reflected in VET and qualification systems. 48 | Philippine Qualifications Framework Review Figure 3B.4 Mechanisms for Industry Feedback Acquiring the qualifi- Recruitment, Designing a new cation through assess- promotion, and qualification ment after completing placement education and training Feedback Perspective from qualification NCS Development, adjustment, supplementation, and mutual connection Industry Perspective from training Feedback NCS- Designing and based Recruitment, operating the Awarding qualification promotion, and education and training placement course Source Human Resource Development (HRD) Service of Korea. Utilization • Various Korean organizations and public institutions have recruited employees based on NCS. As of 2017, all public institutions (a total of 321) had adopted competency-oriented recruiting in Korea. Based on this, the government began to promote policies to reform the domestic qualifications system and operate 61 course- based qualifications. • NCS has been utilized for reforming vocational training contents suitable for industry needs. Along with these changes in the industry and required qualifications, the specialized high schools, colleges, and vocational training institutes have revised the curriculum based and learning modules based on NCS. Three specialized high schools completed pilot trials with positive results, such as an increase in the average employment rate from 33.2 to 63.4 percent. The NCS-based education and training curriculum was expanded to 100 colleges in 2017 from 79 schools in 2015. • Three groups of users notably benefit from the NCS, including industry, TVET service providers, and qualification/accreditation agencies. Figure 3B.5 Utilization of the Korean NCS Industry and employers • Standarizing recruitment and personnel management based on industry needs • Supporting career development • Developing job description Education and training providers • Developing vocational education and training courses • Developing teaching plans and materials like textbooks • Developing training standards Qualification and accreditation agencies • Managing qualifications by creating, consolidating, and abolishing qualification • Developing and revising qualification tests • Developing qualification exams and evaluation methods Coordination with stakeholders • For promising industries and emerging occupations, about 50 new NCS have been developed per year since 2015 to keep up with any paradigm shift in industries. • Industry Skills Councils have been established as institutions responsible for developing and improving NCS. Companies, schools, and experts participating in the Councils review and update NCS on a regular basis. Source Ministry of Employment and Labor (MoEL), Human Resources Development Service of Korea (HRD), and NCS Website (https://www.ncs.go.kr/index.do) Chapter 3 Philippine Qualifications Framework Review | 49 that PQF promotes education and training when it delved deeper into each subtopic, the system reforms toward achieving a life-long assessment was not as positive concerning learning society. At the same time, however, the role and purpose of PQF in supporting respondents highlight that it is too early to the overall education and training systems. evaluate the feasibility of the principles and Specifically, as detailed in Box 3.6, the survey purposes of the PQF, given its nascent stage of asked whether PQF has helped (i) education and implementation and relatively low awareness training service providers deliver knowledge, and utilization of end-users. skills, and values demanded by the labor market and required by the PQF; (ii) seamless integration Compared to the broad objective, however, and linkages among education, training, and Box 3.6 Survey Results – Key Objectives of PQF Do you agree that the PQF serves the key objectives and drives broader education and training system reforms (in percent) Survey Statements Soliciting Agreement/ Disagreement (Section A) 100% 1% 3% A.1. – “The PQF meets the fundamental purpose of 6% 7% 5% 10% 10% qualification. In other words, the PQF plays a crucial 19% 80% 20% 25% 19% role in retaining the relevance and effectiveness of 30% qualifications so that qualifications can respond to 32% current and emerging industry skill needs and new 60% 44% job roles in terms of knowledge, skills and values 43% 39% 46% and applications. In the PQF, employers expect that 40% qualifications guarantee the job competencies of 37% 59% graduates, while employees expect their qualifications are well recognized and rewarded in the labor market.” 20% 34% 29% 29% 28% 18% A.2.1. – “The PQF has supported the design and 0% delivery of education and training in the Philippines A1 A21 A22 A23 A24 A25 by providing a basis to set qualification levels for Key Objectives Education and training system reforms specific education and training programs. Education and training providers have tried to equip learners and Strongly Agree trainees with knowledge, skills, and values demanded Agree Disagree by the labor market, which is documented in the PQF.” Somewhat Strongly Disagree A.2.2. – “The PQF has promoted systematic integration of education and training, and close linkages among education, training, and then the labor market.” A.2.3. – “The PQF has played a role in providing people, especially those with a lower level of qualifications, with more education and training opportunities, and improving their qualification levels.” A.2.4. – “The PQF has recognized learning gained outside formal education and training – including STEP (community-based informal short training), other short-term training by government agencies, research- oriented qualifications (credit recognition), or work-based experiences.” A.2.5. – “The PQF has promoted credit accumulation (leading to formal qualifications) and transfer across the PQF qualifications.” Note The survey results should be interpreted with caution. Some respondents answered the status check questions in a different way (i.e., how the PQF is or ought to be as an ideal NQF). 50 | Philippine Qualifications Framework Review then labor markets; (iii) individuals receive more depends on how a more comprehensive range skills development opportunities; (iv) recognize of stakeholders and beneficiaries are aware of learning gained outside formal education; and the policy’s objectives and usefulness and utilize (v) accumulate credits and transfer vertically it to a greater extent. Thus, it is urgent to raise and horizontally. Assessment responses on the level of stakeholder’s and beneficiaries’ these topics were not as positive. In particular, awareness of the PQF and make key actors able/ respondents highlighted a limitation of PQF in prepared to do what they are required to do by utilization, namely that it falls short of supporting providing the PQF handbook, guidelines, and individual workers and learners to obtain more manuals and by providing capacity-building training opportunities and move credits freely. workshops. To date, there have indeed been few actual The public awareness of the PQF is low, cases where the PQF level descriptors affect with few awareness-raising campaigns for implementation in a significant way. Potential the direct stakeholders and beneficiaries to cases for PQF utilization include: the curricula increase understanding and acceptance of of HEIs are developed and revised to meet the the PQF. Individually, the five PQF-NCC member PQF level descriptors of the three domains and agencies have advocated the PQF within their ensure that qualifications are hierarchically linked targeted staff of organizations, beneficiaries, and to each other; graduates from TVET institutions stakeholders. For example, the PRC held virtual with the PQF level 5 qualification are transferred public awareness programs and continues to to universities through the Philippine Credit plan more programs for professionals. The DOLE Transfer System (PCTS), which is based on the has also engaged with relevant stakeholders PQF level descriptors (qualification standards); for promotion through various dissemination and graduates from universities with different events (e.g., Tripartite Executive Committee degrees (BS, MA, or Ph.D.) under the new meetings, a symposium at the University of framework enter the labor market and employers the Philippines School of Labor and Industrial provide their assessment against the PQF’s three Relations, and capacity development activities domains. Key informant interview results indicate for regional officers). However, these efforts that people whose job is to design and deliver have been mostly ad-hoc without strategic and quality-assured education and TVET programs convergent action plans to enhance public do not clearly understand the meaning of the awareness of the PQF nationwide (Box 3.7). PQF level descriptors and how to apply them to curriculum revision or design. PQF Dissemination Activities Low Level PQF Awareness The low level of public awareness suggests that there is room for the government’s efforts to An APEC 2009 survey has drawn attention intensify the PQF knowledge and information to the most frequently cited constraints dissemination. The key informant interviews – understanding and accepting the NQF revealed that major stakeholders could not take across these various agencies and sector specific actions to implement the PQF scheme authorities (APEC 2009). At the same time, due to little knowledge on the practical ways to the survey highlights that the success of a policy make use of PQF among the public. Handbooks, Chapter 3 Philippine Qualifications Framework Review | 51 Box 3.7 Insights from key informant interviews – Public Awareness on PQF TVIs: TVIs are aware of the introduction of the PQF, but it is not very clear how to interpret the level descriptors of the PQF and translate them into TVET curricula. Few guidelines have been provided for the rules and regulations of each actor and the implementation of the PQF. TVET Trainees: These trainees do not know much about what the PQF is and what it can do for individuals (e.g., trainees, students, or workers). HEIs: The level of awareness among those at HEIs is low. The interview reveals that HEIs appear to perceive that the PQF is more for TVET sectors. Universities are not sufficiently informed of the PQF, and no official guidelines or documents on how to apply the PQF to HEIs was provided by CHED. PRC: Little is known about the relevance of PQF for licensed professionals. For linkages of PQF and professional qualifications and potential career guidance on the professional track, awareness of PQF among professionals and regulatory boards should be enhanced. Note The results of the key informant interviews should be interpreted with caution as interviewee responded in a group setting and their answers can be influenced by the opinions expressed by others in the group. guidelines, or operations manuals on PQF for adoption of PQF and the use of qualifications faculty members, education and TVET trainers, of workers for their company’s human resource and administrators have not been produced management. For example, the PQF can help and distributed yet. Such guidelines would employers better understand the competencies be critical to help users understand how to of workers with clear level descriptors. Employers interpret and transform the PQF level descriptors can use qualifications in the PQF as acceptable into the curriculum and vertical and horizontal evaluation standards for recruitment, placement, career paths. The operations manual would wage determination, in-service training, and guide relevant agencies and training providers promotion. While some industry leaders keen on on designing and implementing awareness education and training may be familiar with the campaigns and capacity-building activities. PQF, particularly in the area of quality assurance, Such materials can go into detail on each topic the overall usefulness of PQF has not been of the WG. PQF-NCC and TWG, in collaboration convincingly presented to the private sector. with related agencies and organizations, could However, employers and industry associations develop these materials to increase potential in the review expressed the view that they are beneficiaries’ awareness and understanding unclear about the design and benefits of PQF. of the PQF (e.g., what it is, what it can do their It is also hard for employers to actively utilize education and training, jobs, and future career the PQF since operational and technical tools development, and how to utilize it). and documentation have not been prepared yet. Employers’ Readiness Revisions of Training Regulations and Academic Curricula Collaboration with the private sector is a According to PQF key success factor in the education and skills development agenda, and PQF is not Efforts to align or revise the existing curriculum an exception. Employers’ awareness and and qualification standards or develop new understanding of the objectives, content, and ones according to the PQF level descriptors utility of the PQF is a prerequisite for their have been limited. The PQF’s reflection of 52 | Philippine Qualifications Framework Review the labor market skills needs and qualification guidelines from the PQF-NCC. Some have standards is intended to guide the development expressed difficulty in adapting the currently of curriculum and TRs, which should be aligned used tool (e.g., the Level Alignment Matrix in with PQF level descriptors. This is a major change universities) to the PQF level descriptors-based from an input-based practice of education one (e.g., arrange learning outcomes of BS, and training to an outcome-based approach. MA, and Ph.D. programs according to the three However, the review suggested that education domains by level) (Box 3.8). and training service providers await practical Box 3.8 Insights from key informant interviews – Revising Curriculum and Training Regulations • TESDA employs the Level Alignment Matrix process for developing training regulations (TRs) and ensures that the regulations are well aligned in the PQF. The priority of developing/updating TRs was given to PQF Levels 3, 4, and 5 because of high demand from the industry, but the extent to which the adaptation was made to date was not as substantive as required for full implementation of PQF. • PQF Levels 1 to 4 are designed based on the TVET QF, and the current TRs are relatively well aligned with the contents of the level descriptors of the PQF. However, TRs for PQF Level 5 are not yet developed, and decisions from the TESDA board are anticipated. • For developing the curriculum of HEIs, CHED provides guidelines as follows: (i) CHED Memorandum Orders; (ii) Executive Orders (by President) and IRR (appropriate promulgation body); and (iii) Policies, Standards, and Guidelines (PSGs) providing sample performance indicators and assessment standards for major discipline areas. In addition, the CHED is revising the PSGs with the introduction of K-12 reform. A large share of the undergraduate PSGs has been revised, and the revision of PSGs for graduate programs is currently underway. In the process of revising the PSGs, CHED has conducted awareness-enhancing events and efforts, but it is unclear how these processes accommodate specific reference to the PQF Levels 6 to 8. • HEIs are recommended to develop their curriculum at an institutional level, with the condition that each HEI should guarantee the quality of education. HEIs, therefore, could focus on outcome-based education, including a set of skills, competency, values, and knowledge, which could be easily referenced with PQF. The lessons learned from the development and implementation of the Continuous Quality Improvement (CQI) to ensure the quality and level of program outputs can inform similar efforts by PQF. • The DepEd ensures that all key learning areas and key stage standards of Basic Education adhere to the outcomes-based design of the AQRF, acting as a top-level reference point for policies in furthering the use of learning outcomes. Note The results of the key informant interviews should be interpreted with caution as interviewee responded in a group setting and their answers can be influenced by the opinions expressed by others in the group. Chapter 4 Policy Discussions and Recommendations 4.1 Refining the PQF Design be utilized. A more flexible structure of the PQF applicable to both formal and non-formal skills Vertical Progression development modalities will tremendously help promote an individual’s lifelong learning and The appropriateness and feasibility of the career development. In these pilot projects, eight-level descriptors should ultimately be the two points raised earlier -- applicability of evaluated in the field. The review found the adding professional qualifications to the PQF overall design of the level descriptors clear but Levels 6 and 8 and the appropriateness of setting identified a few areas for further strengthening. SHS as a foundation level of the PQF – can Given the nascent stage of implementation, also be revisited and reassessed. Specifically, the review was unable to assess the practical the inclusion of professional qualifications in feasibility and usefulness of the scheme. The the PQF would require in-depth discussion PQF-NCC, with the support of WGs for ‘Quality among PRC and CHED on what grounds Assurance’ and ‘Qualification Register,’ should professional qualifications are equivalent to promote the application of PQF to education, MA or Ph.D. degrees. Based on the revised TVET, and qualification assessment. It should PQF to reflect professional areas, the NCC may also check the appropriateness of the eight-level produce a manual on assessing the extent to structure in terms of whether it incorporates which professional qualifications match level all different types and levels of competencies descriptors. required by industry and whether it would be reasonable to apply the eight-level structure to The extent to which the current level all three domains uniformly. Also necessary to descriptors capture non-cognitive or check are (i) the magnitude of the progress of socioemotional skills should be further level descriptors and (ii) their applicability to investigated. The need to address non- aligning, revising, or developing curriculum and cognitive skills in education is becoming more qualification standards, and the appropriateness important. Many firms recognize workers’ lack of of applying the three domains of each level socioemotional skills as a significant constraint together (i.e., only if all the level descriptors of to competitiveness and try to provide training the three domains are met, qualification can be programs to address them (Acosta 2017). These acknowledged). skills, such as interpersonal and communication skills, work ethics, teamwork, and decision- To this end, it is essential to conduct pilot making competency, have been increasingly projects before full-scale implementation. The incorporated into training curricula, raising the pilot cases could focus on specific qualifications need for a qualification framework to recognize levels, sectors, or groups of stakeholders to them. The Malaysian qualifications framework, inform how flexibly and efficiently PQF could for instance, broadens its social policy objectives 54 | Philippine Qualifications Framework Review to place a greater emphasis on intercultural Understanding (MOU) between the two entities, awareness, ethics, and entrepreneurship, which and selected areas included human resources, reflects a more socially conscious set of learning IT, hospitality, agricultural engineering, dentistry, outcomes in the level descriptors. and electronics. Despite the policy efforts to bridge TVET and higher education, however, Horizontal and Vertical Mobility to date, little progress in this pilot has been achieved. This illustrates the difficulty in For open pathways across different training linking the two different jurisdictions of skills tracks or careers, it is integral to have a well- development, which in turn highlights even articulated credit transfer system based on further the importance of PQF as a connector. clear standards and qualifications. The PCTS for individuals who attempt to acquire additional The survey results (Box 4.1) confirm that the qualifications for their career development can horizontal and vertical linkages of TVET-related be further strengthened based on PQF. When the qualifications to academic and professional GoP enacted the Ladderized Education Act to qualifications should be further strengthened. institutionalize the ladderized interface between A large majority of respondents agree that PQF TVET and higher education in 2014, the PCTS promotes lifelong learning (statement B6) by had not been still fully developed and applied. facilitating continued professional development Policy measures to officially recognize prior career progression (B4) with PQF’s clear design learning and grant qualifications also have not on qualifications (B1). In contrast, a significantly materialized yet. Due to these reasons, students lower share of respondents agrees that PQF and trainees who switched from vocational has played an important role in integrating to academic tracks to universities had limited qualifications for TVET into a comprehensive means to transfer credits, as only a small number qualification framework (B2), casting doubts of universities adopted the Expanded Tertiary on PQF’s support for workers’ mobility (B5). Equivalency and Accreditation Program. Respondents highlighted the need for the credit transfer between TVET and academic education In 2017, to develop the PCTS, the TESDA and and ladderization, and further stressed the CHED jointly implemented pilot programs in importance of cross-agency coordination. a few selected areas, whose outcomes and lessons should yet be reflected in the actual The PQF-NCC, supported by the WG on PCTS development. The collaboration was ‘Pathways and Equivalencies’ and related facilitated by the forging of a Memorandum of government agencies, should complete Chapter 4 Policy Discussions and Recommendations | 55 Box 4.1 Survey Results – Promoting Skills Transferability Do you agree that the PQF is established in coherent and integrative qualification systems (in percent) Survey Statements Soliciting Agreement/ Disagreement (Section B) 100% 3% 0% 6% 6% 7% 4% 15% 17% B.1. – “The PQF is well designed to (i) distinguish 18% 80% 28% 23% 27% between levels and thus qualification types, so the PQF provides transparency on learning the 35% learners expect to acquire and on the qualifications 60% 39% 47% the learners expect to hold; (ii) address existing 42% 43% 42% requirements of the community, industry, 40% government, and academia; and also (iii) reflect changing needs of skills, knowledge, and application 49% 20% 38% in light of economic and societal transformation.” 32% 23% 25% 24% B.2. – “The PQF has played a crucial role in integrating 0% qualifications for TVET into a comprehensive B1 B2 B3 B4 B5 B6 qualification framework (and thus promoting transfer between TVET track and academic track).” Strongly Agree Agree Disagree B.3. – “The PQF positioned senior high school Somewhat Strongly Disagree education (SHS) as a foundation level. The PQF contributed to making sure that SHS fulfills its role in preparing youth for TVET and/or higher education.” B.4. – “The PQF promotes Continuing Professional Development and Career Progression & Specialization, including upskilling, re-skilling, and cross-skilling.” B.5. – “The PQF has aided learner mobility (pathways) vertically between hierarchical qualification levels and horizontally between different types of qualifications.” B.6. – “The PQF reflects the importance of lifelong learning.” Note The survey results should be interpreted with caution. Some respondents answered the status check questions differently (i.e., how the PQF is or ought to be as an ideal NQF) given that some components of the PQF have not implemented yet. the design of the PCTS and promote its schools and vice versa or between mechanics implementation as a key tool for horizontal and ICT programs. In the case of the vertical and vertical pathways. This is what the PQF pathway, any SHS track graduate should be is intended to achieve, that is, facilitating the able to transfer to the university. Such an open- lifelong learning of Filipinos and providing a pathways scheme requires a system assessing sustainable supply of good quality labor. Thus, and acknowledging the equivalency of (i) the PCTS aims to guide decision makers in how credits acquired in the TVL program and those to recognize the results of prior learning and non- of academic HS qualifications; and (ii) TVL and formal online short-term training and link them educational HS qualification as a requirement to NCs and TVET to university programs. ‘Multi- for applying for university. directional pathways’ include both horizontal and vertical paths. The horizontal pathway consists of the transfers from TVL to academic high 56 | Philippine Qualifications Framework Review 4.2 Strengthening Institutional management and finance of the secretariat. For the implementation of PQF, the PQF-NCC Arrangements and Capacity and its secretariat should secure the necessary budget allocated to the TWG and each of the The initial leadership in the design, WGs to prepare the foundation for the PQF implementation, and utilization of PQF heavily implementation and continue to operate the relies on the PQF-NCC, Secretariat, TWG, and PQF scheme in a sustainable manner. WGs, which should be further strengthened. The PQF-NCC is encouraged to expand and In addition to cementing these core set- complete its membership composition by ups, ensuring capacity-building for relevant selecting one representative from the economy stakeholders and enhancing awareness and another one from the industry sector to on PQF would be critical. The PQF-NCC, in adequately reflect skills on the demand side collaboration with each agency, should design and to perform all functions stated in the PQF and launch targeted awareness-raising exercises, Act and IRR. Such complete composition of the starting strategically from key implementers. For PQF-NCC would promote active communication instance, career guidance counselors at schools and collaboration with the industry and economy and training institutes, HR professionals and sectors and exerts practical leadership with officers in the private sector, recruiters and job technical support from the member agencies. matching facilitators, and Public Employment Service Office (PESO) managers in local Likewise, with the leadership of the PQF-NCC, government units could be the priority groups all WGs need to complete their constitution that the government focuses on raising capacity by inviting representative(s) from industry and awareness of the PQF. Enhanced awareness and expert(s) and by performing all functions of PQF among all agencies and stakeholders stated in Sections 20 and 21 of the PQF Act related to education, training, and workforce and its IRR. The completed WGs should be development can create great synergies. The able to commence concrete activities (e.g., larger the number of potential beneficiaries and coordination, consultation, data management, users of the PQF scheme, the larger benefits and monitoring and evaluation) to carry out and usefulness the PQF could bring. their mandated functions by issuing rules (e.g., Standard Operating Procedures) and developing Further, the PQF-NCC, supported by the implementation plans. WGs on ‘Information and Guidelines’ and ‘Government-Industry-Education Sector,’ The PQF-NCC should establish a Permanent should provide concrete guidelines and Secretariat to strengthen inter-agency operations manuals for PQF implementers. coordination and cooperation. The secretariat The manuals can include general knowledge will need to be the PQF-NCC’s main interface and practice on PQF with a focus on matching with relevant agencies, TWG, WGs, and the contents of curriculum and TRs with education and training institutes, among qualification standards. Specifically, the manuals others. For the secretariat to be functional should cover (i) how to interpret and translate the with a clear governance and accountability PQF level descriptors into TRs, curricula in JHS, mechanism, the chairperson of the PQF-NCC SHS, and PSGs; (ii) how to revise assessment should need authority over the personnel tools according to the revised curricula and Chapter 4 Policy Discussions and Recommendations | 57 TRs; and (iii) how to check and assign the The Philippines needs to integrate the three existing qualifications into one of the eight existing quality assurance systems separately levels. In addition, the manuals should include managed by TESDA, CHED, and PRC and align ways of assessing the equivalency of different them with the PQF. TESDA ensures quality qualifications in academic and TVET tracks, assurance for PQF Levels 1-4, CHED for Levels making equivalency courses, and allowing 6 to 8, TESDA and CHED for Level 5, and PRC for transfers between education and training professional qualifications. In order to promote sectors and between these sectors and the labor vertical and horizontal mobility of skills, all market through open pathways. It is advisable quality assurance systems should be equally for industries or occupations to make industry- trusted and recognized, and to this end, all these specific level descriptors by qualifications level qualification systems should strictly be aligned and translate them into TRs. Moreover, agency- with PQF descriptors and qualification standards. specific manuals could be further developed to If training providers issue qualifications when guide how PQF indeed helps with day-to-day the student has not achieved the learning tasks. indicated by the descriptors, then employers and higher education admissions will not value the qualifications or use them in their selection 4.3 Ensuring Quality Assurance processes. Hence, a qualification framework is only as robust as the quality assurance system NQFs set the standards, but accreditation of supporting it.19 In addition, the accreditation qualifications against the standards relies on records and qualifications should be registered having an assessment system.18 Together they in the PQF database. ensure quality assurance in achieving greater coherence and transparency in skills assessment The results of the survey and key informant and accreditation. Under the NQF, the functions interviews suggest that the role of PQF in of quality assurance can be conducted by an maintaining quality assurance is widely upheld. independent agency responsible for the NQF Three-quarters of the survey participants agree or can be distributed to agencies overseeing that the PQF plays a role in promoting the quality education and training across the sectors. assurance of education and TVET programs. They range from qualifications authorities Out of those who agree with the role of PQF’s and government departments to independent quality assurance, the following (showing the bodies, such as sector-specific commissions percent who agree) are considered success and councils, and professional associations in factors: utilization of the PQF as standards for some cases. In an example from Hong Kong, all quality assurance (83 percent); recognition qualifications or learning programs that desire of the PQF levels and level descriptors (74 to be recognized under the Qualifications percent); and adequacy in PQF contents (70 Framework should be accredited by the Hong percent). However, a significantly smaller share Kong Council for Accreditation of Academic and of respondents agrees that PQF promotes quality Vocational Qualifications along with eight self- assurance for shorter form credentials, diverse accrediting universities before being registered qualifications, or quickly updated systems. As into the Qualifications Register. 18 Bateman, Keating, Burke, Coles & Vickers 2012 19 Mapping Qualifications Frameworks across APEC Economies (2009), APEC Human Resources Development Working Group 58 | Philippine Qualifications Framework Review quality assurance standards, “utilization and WG on ‘Quality Assurance,’ should develop recognition of the PQF qualification levels and coherent guidelines on quality assurance that descriptors” are regarded as the respondents’ can be commonly applied to education and most critical factors. (See Box 4.2) TVET managed by DepEd, TESDA, and CHED. Current individual quality assurance practices Given the multiple qualification and and systems, managed separately by three accreditation systems, efforts for quality education agencies, could be applied more assurance through strong monitoring and flexibly to nonstandard forms of education evaluation (M&E) activities, active utilization and training (e.g., short-term training and of the PQF database (registry), and promotion credentials) within the PQF level descriptors of WG on “quality assurance” would be for the intended purpose of ensuring quality. If important. The PQF-NCC, supported by the the PQF incorporates professional qualifications Box 4.2 Survey Results – Promoting Quality Assurance Do you agree that the PQF promotes quality assurance process? (in percent) Survey Statements Soliciting Agreement/ Disagreement (Section C) 100% 4% 6% 6% 5% 20% 27% C.1. – “The PQF has played a crucial role in promoting 25% 80% 26% the quality assurance of higher education institutions (HEIs) and TVET institutions, HEIs and TVET programs, 60% and corresponding qualifications.” 43% 40% 39% 46% C.2. – “The PQF has played a crucial role in promoting 40% the quality assurance of shorter form credentials and thus recognizing shorter form credentials for credit 20% 32% 25% 27% 23% into the PQF qualifications.” 0% C.3. – “The PQF has played a crucial role in promoting C1 C2 C3 C4 transparency of diverse qualifications so that learners, workers, professionals, employers and the Quality Assurance society can trust the qualification.” Strongly Agree Agree Disagree C.4. – “The PQF system has kept (or is ready to Somewhat Strongly Disagree keep) the PQF updated through formal processes of qualification addition and removal hinged on changes in economy and industrial needs.” Inputs from Key Informant Interviews on Quality Assurance • Key agencies are aware of the quality assurance in the process of referencing to the ASEAN Qualifications Reference Framework, establishing the qualification standards, program accredits, and assessment criteria. • Employer groups argue that the quality assurance of three agencies should be stricter in applying criteria, standards and regulations, and performance recognition systems (e.g., TESDA’s STAR system) can be incorporated and further strengthened. Chapter 4 Policy Discussions and Recommendations | 59 • DepEd currently ensures the quality of the basic education through (i) Basic Education Exit Assessment and (ii) summative and formative evaluation by teachers. • CHED relies on multiple layers of quality assurance, involving technical experts, industry, and key stakeholders to draw the guidelines. The technical panels are composed of representatives from the academe, industry, and international experts to reflect the changes, especially under the COVID. In a collaboration of private accreditation associations, international accreditation, industry accreditation system, the CHED assesses and recognizes both public and private universities. • Higher education institutions (HEIs) also confirm that CHED has a system for checking whether HEIs follow specific standards, and even autonomous HEIs must follow the PSG. However, few updates have been made in the recognition criteria after introducing the PQF, indicating further needs for quality assurance. • TVI respondents explain that TESDA is responsible for the quality assurance of TVET institutions and programs. Any TVET institution is required to register its programs to TESDA, specifically curriculum developed based on TRs, trainer’s qualification, facilities, and learning materials. TESDA conducts a compliance audit yearly for the first two years and then a technical audit. Trainees are required to take national certificate assessments. TESDA STAR Award is another example of the TESDA’s quality assurance tools, which are given to TVIs that meet minimum standards or above. For TVET trainers, Trainer Qualification Framework and National TVET Trainers’ Certificate should be made coherent. Note The results of the key informant interviews should be interpreted with caution as interviewee responded in a group setting and their answers can be influenced by the opinions expressed by others in the group. in Levels 6 to 7, PRC is also desired to follow the learning and employment outcomes as well as standardized guidelines on quality assurance. student and user satisfaction levels.20 The current PQF review did not find robust M&E mechanisms Further, M&E should be more explicitly and activities yet, as PQF implementation is in a emphasized as part of quality assurance nascent stage. The pilot test proposed earlier systems that ensure that the outcomes should include key M&E activities such as the of education and training services can be establishment of the PQF qualifications database reviewed more systematically. The M&E and registrar. activities may include auditing providers’ processes and outcomes, including student 20 Qualifications frameworks and quality assurance of education and training (Feb 2013), p.5. Chapter 5 Conclusions The PQF is based on solid architecture and is Nonetheless, several areas should be well-aligned with good international practices. strengthened for better PQF implementation The overall objective and key features of the and eventual widescale utilization among PQF are well appreciated. The PQF, along with various stakeholders. A set of actions are other education and training reforms, could be proposed to kick-start the PQF implementation a catalyst for enhancing skills development, and ensure its maturity (Figure 5.1). The first improving recognition of qualifications, and two should be carried out in the short-term eventually building a more competent workforce. as prerequisite activities for initiating PQF Setting coherent standards for each level of implementation. The latter three are the medium education and training, regardless of skills to long-term agenda along the cycle of PQF development modalities, sectors, tracks, or operation. regions, is anticipated to promote individuals’ lifelong learning and occupational and First, PQF leadership and governance structure geographical mobility of workers and skills. The should be strengthened, along with clear referencing of PQF with the ASEAN Qualifications accountability. As a high-level policy-making Reference Framework (AQRF) is also encouraging body, the PQF-NCC should be strengthened in given the considerable volume of OFWs. a complete form (as specified in Section 5 of the PQF Act) and establish a separate Permanent Figure 5.1 Suggested Next Steps for Full Operationalization of PQF Short-term Steps Medium and Long-term Steps Strengthen Complete Test Devise Revise • Strengthen • Complete • Implement • Devise • Based on the government groundworks pilot projects to robust pilots and leadership an (issuance of realize the PQF monitoring and implementation governance in guidelines and objectives and evaluation lessons, PQF a complete changes in to test the mechanisms design and form curriculum, relevance and related policies • Institutionalize TRs, PCTS) applicability of (a singular key activities • Provide the PQF quality and provide awareness assurance supporting campaigns and system and mechanisms capacity ladderized with a regular building credit budget programs transfers) can allocation be further enhanced Source World Bank Chapter 5 Conclusions | 61 Secretariat (as specified in Section 19 of the PQF workers, trainers, recruiters, and employers Act’s IRR). By doing so, the PQF-NCC can exert recognize the objectives, usefulness, and labor strategic and practical leadership in policies and market value of the PQF scheme, they will regulations related to the implementation and take into account the PQF when making their utilization of PQF with technical support from education, training, and career development the Secretariat. At the implementation level, the plans and decisions. PQF-NCC WGs can also be strengthened in a complete form (as specified in Rule IV Sections Third, pilot tests in areas applicable to the PQF 20 and 21 of PQF Act’s IRR). By inviting relevant design and structure should be conducted to stakeholders, such as economic and industry enhance the applicability and relevance of the experts as regular members, the WGs will be able PQF. The review highlighted that the relevance to take specific action plans, initiate research and applicability of the PQF, especially in priority and consultations, inform policies and strategies, sectors and programs (specified in Sections 8 create and maintain data management systems, and 11 of the PQF Act and Sections 6 and 11 of and conduct M&E activities. For the PQF- the IRR) has not been tested. The magnitude of NCC TWG and the various WGs to fulfill their the progress of level descriptors may not be fully mandated activities, it is important to secure aligned with existing curriculum and qualification a regular annual budget for planned activities. standards. More specifically, for PQF levels 6 to 8, a column on professional qualifications Second, capacity-building among standards for professional expertise acquired key stakeholders by setting up clear through practice in the field can be added. Also, implementation guidelines, training, and clarifying the status of TVL track graduates of awareness enhancing activities should be part SHS in relation to NC1 to 2 would be needed. The of the PQF-NCC’s priority activities. The review current qualification system that acknowledges identified that neither practical guidelines, nor the achievement of a level only when all three a handbook or manual, for PQF implementation domains of each level are met may warrant aligned with its Act and IRR had been completed. revisiting. This significantly limits the implementers’ ability to understand (i) how to interpret and translate Fourth, a single quality assurance system the PQF level descriptors into curriculum, should be established to monitor and evaluate qualification standards, and assessment tools, the implementation of the PQF. Currently, and (ii) how to make equivalency courses and quality assurance systems for basic education, promote transfers between education and TVET, higher education, and professional training sectors and between these sectors qualifications are all separate. However, linkages and the labor market through open pathways. of these different quality assurance systems In particular, policy guidelines related to the with different levels and tracks according to the PCTS to guide the recognition of the results PQF descriptors would be needed. This way, of prior learning and non-formal online short- the quality of education and training can be term training for NCs and TVET to university coherently monitored and evaluated regardless programs have yet to be developed. Moreover, of the level and service of education and training awareness among key stakeholders and potential providers. Defining a clear results chain and beneficiaries of the PQF and its benefits could indicators for each input, activities, outputs, be further enhanced. Once students, trainees, and outcomes for regular measurements should 62 | Philippine Qualifications Framework Review follow. modules) and consider how to appropriately reference and recognize micro credentials to Finally, the implications of COVID-19 on overall PQF levels. With respect to demand for skills, education and training systems and on the PQF the pandemic highlighted the importance of should be investigated. COVID-19 has been digital skills as well as medical, health care, testing the adaptability and flexibility of the public health policy, and hygiene areas. At country’s systems. From the delivery perspective, the same time, as many OFWs return to the it is required to develop new learning tools Philippines, retraining and reintegrating the in response to the pandemic situation (e.g., returned workforce into the domestic labor more flexible learning methods like short online market is crucial. References Acosta, Pablo, Takiko Igarashi, Rosechin Biggs, John B., and Collis, Kevin F. (1982). Olfindo, and Jan Rutkowski (2017). Developing Evaluating the Quality of Learning: The Socioemotional Skills for the Philippines’ SOLO Taxonomy (Structure of the Observed Labor Market. Washington, D.C., World Bank. Learning Outcome). Educational Psychology Series. New York: Academic Press. Andrea Bateman, Mike Coles (2013), “Qualifications Frameworks and Quality CEDEFOP (European Centre for the Assurance of Education and Training. Development of Vocational Training) Washington, D.C., World Bank. (2018). Analysis and Overview of NQF Level Descriptors in European Countries. APEC (2009). Mapping Qualifications Luxembourg: Publications Office. CEDEFOP Frameworks across APEC Economies. Research Paper No. 66. http://data.europa.eu/ APEC Human Resources Development doi/10.2801/566217. Working Group. https://apec.org/-/media/ APEC/Publications/2009/6/Mapping- Department of Trade and Industry (2017). Qualifications-Frameworks-across-APEC- Policy Brief – Philippine Inclusive Innovation Economies-June-2009/09_hrd_mappin_ Industrial Strategies(i3S). http://industry.gov. qualifn.pdf. ph/wp-content/uploads/2017/11/DTI-Policy- Brief-2017-05-Philippine-Inclusive-Innovation- Australian Department of Education and Industrial-Strategy.pdf Training (2018). Discussion paper: Review of the Australian Qualifications Framework. JET Education Services (2017). Southern https://www.dese.gov.au/uncategorised/ African Development Community Regional resources/discussion-paper-review-australian- Qualifications Framework: Analytic qualifications-framework. Review of Level Descriptors. https://www. academia.edu/32433237/Southern_African_ Australian Department of Education and Development_Community_Regional_ Training (2019). Review of the Australian Qualifications_Framework_Analytical_Review_ Qualifications Framework Final Report. of_Level_Descriptors. https://www.dese.gov.au/higher-education- reviews-and-consultations/resources/review- Khatiwada, Sameer (2020). TVET in the Age australian-qualifications-framework-final- Of Fourth Industrial Revolution – Future of report-2019. Skills Development in the Philippines. Manila, Philippines: Asian Development Bank. Bateman, Andrea, and Liang, Xiaoyan (2016). National Qualification Framework and Competency Standards: Skills Promotion and Jobs Creation in East Asia and Pacific. Washington, D.C., World Bank. 64 | Philippine Qualifications Framework Review National Economic and Development UNESCO. Global Inventory of NQFs for Authority (2017). Philippine Development Singapore. UNESCO Institute for Lifelong Plan 2017-2022. http://pdp.neda.gov.ph/wp- Learning. https://uil.unesco.org/fileadmin/ content/uploads/2017/01/PDP-2017-2022.pdf keydocuments/LifelongLearning/en/UIL_ ISSN:2243-7576 Global_Inventory_of_NQFs_Singapore.pdf National Referencing Committee (2019). World Bank (2018). Philippines Economic AQRF Referencing Report of the Philippines. Update, April 2018: Investing in the Future. https://pqf.gov.ph/Uploads/PH%20AQRF%20 Washington, D.C. Referencing%20Report%20Final.pdf. ______ (2019). Systematic Country Diagnostic: Ortiz, M., Lagarto, M., Ortiz, D., Orbeta, A., Realizing the Filipino Dream for 2040. and Potestad, M. (2018). Senior High School Washington, DC. and the Labor Market: Perspectives of Grade 12 Students and Human Resource Officers. ______ (2020). Philippine Economic Update, Discussion Paper No. 2018-49 (Revised). December 2020: Building a Resilient Philippine Institute for Development Studies. Recovery. Washington, D.C. PhillipsKPA (2018). Contextual Research for the Australian Qualifications Framework Review. https://www.dese.gov.au/higher- education-reviews-and-consultations/ resources/contextual-research-australian- qualifications-framework-review. Qualifications Framework Secretariat (2017). The Hong Kong Qualifications Framework: A Platform for Lifelong Learning. https://www. hkctc.gov.hk/en/doc/170710_Qualifications_ Framework_and_Recognition_of_Prior_ Learning_(RPL)_Assessment_Part1.pdf Tuck, Ron (2007). An introductory guide to national qualifications frameworks: Conceptual and Practical Issues for Policy Makers. Skills and Employability Department, International Labour Office (ILO). Annex 1 Methodologies Employed for Analysis on PQF Domains Annex 1.1 Knowledge Dimension in the First Domain (Adopting a Revised Bloom’s Taxonomy) Knowledge Dimension PQF – Knowledge Dimension in the First Domain Factual Conceptual Procedural Metacognitive Knowledge Knowledge Knowledge Knowledge 8 Demonstrated highly advanced systematic knowledge and skills in highly specialized and/ or complex multi-disciplinary field of learning for x complex research and/or professional practice and/or for the advancement of learning 7 Demonstrated advanced knowledge and skills in a specialized or multidisciplinary field of study for x professional practice, self-directed research and/ or lifelong learning 6 Demonstrated broad and coherent knowledge and skills in their field of study for professional x x work and lifelong learning 5 Knowledge and skills that are mainly theoretical and/or abstract with significant depth in some areas together with wide-ranging, specialized technical, creative and conceptual skills. Perform work activities demonstrating breadth, depth, x x and complexity in the planning and initiation of alternative approaches to skill and knowledge applications across a broad range of technical and/or management requirements, evaluation and coordination. 4 Knowledge and skills that are mainly theoretical and/or abstract with significant depth in one or more areas, contributing to technical solutions of x x a nonroutine or contingency nature; evaluation and analysis of current practices and the development of new criteria and procedures 3 Knowledge and skills that are a balance of theoretical and/or technical and practical. Work involves understanding the work process, x x contributing to problem solving, and making decisions to determine the process, equipment, and materials to be used 2 Knowledge and skills that are manual, practical and/or operational in focus with a variety of x options 1 Knowledge and skills that are manual or concrete x or practical and/or operational in focus Note (i) factual knowledge: basic elements students must know to be acquainted with a discipline or solve problems in it; (ii) conceptual knowledge: interrelationships among the basic elements within a larger structure that enable them to function together; (iii) procedural knowledge: how to do something, methods of inquiry, and criteria for using skills, algorithms, techniques, and methods; (iv) metacognitive knowledge: knowledge of cognition in general as well as awareness of one’s cognition. Source JET Education Services 2017, p.29. 66 | Philippine Qualifications Framework Review Annex 1.2 Cognitive Process Dimension in the First Domain (Adopting a Revised Bloom’s Taxonomy) PQF – Cognitive Process Dimension Cognitive Process Dimension in the First Domain Remember Understand Apply Analyze Evaluate Create 8 Demonstrated highly advanced systematic knowledge and skills in highly specialized and/or complex multidisciplinary field x of learning for complex research and/ or professional practice and/or for the advancement of learning 7 Demonstrated advanced knowledge and skills in a specialized or multidisciplinary field of study for professional practice, x self-directed research and/or lifelong learning 6 Demonstrated broad and coherent knowledge and skills in their field of study x x for professional work and lifelong learning 5 Knowledge and skill that are mainly theoretical and/or abstract with significant depth in some areas, together with wide-ranging, specialized technical, creative and conceptual skills. Perform work activities demonstrating breadth, x x depth, and complexity in the planning and initiation of alternative approaches to skill and knowledge applications across a broad range of technical and/ or management requirements, evaluation and coordination. 4 Knowledge and skills that are mainly theoretical and/or abstract with significant depth in one or more areas; contributing to technical solutions of a nonroutine x x or contingency nature; evaluation and analysis of current practices and the development of new criteria and procedures. 3 Knowledge and skills that are a balance of theoretical and/or technical and practical. Work involves understanding the work process, contributing to problem solving, x x and making decisions to determine the process, equipment and materials to be used. 2 Knowledge and skills that are manual, practical and/or operational in focus with a x variety of options. 1 Knowledge and skills that are manual or concrete or practical and/or operational in x focus. Note The six Cognitive Process Dimensions are (i) remembering: retrieving, recognizing and recalling relevant knowledge from long-term memory: (ii) understanding: constructing meaning from oral, written, and graphic messages through interpreting, exemplifying, classifying, summarizing, inferring, comparing, and explaining; (iii) applying: carrying out or using a procedure through executing, or implementing; (iv) analyzing: breaking material into constituent parts, determining how the parts related to one another and an overall structure or purpose through differentiating, organizing, and attributing; (v) evaluating: making judgments based on criteria and standards through checking and critiquing; (vi) creating: putting elements together to form a coherent or functional whole, reorganizing elements into a new pattern or structure through generating, planning or producing. Source JET Education Services (2017), p.30. Annex 1 Methodologies Employed for Analysis on PQF Domains | 67 Annex 1.3 Application Domain Adopting the Structure of Observed Learning Outcome (SOLO) Method SOLO Levels PQF – Application Domain Pre- Uni- Multi- Extended Relational structural structural structural abstract 8 Applied to professional leadership for innovation, research and/or development management in x highly specialized or multi-disciplinary field 7 Applied to professional/creative work or research that requires self-direction and/or leadership in a x specialized or multidisciplinary professional work/ research 6 Applied to professional/creative work or research in a specialized field of discipline and/or further x study 5 Applied to activities that are supervisory, complex and non-routine which require an extensive x interpretation and/or adaptation/ innovation 4 Applied to activities that are set in a range of contexts, most of which involve a number of unfamiliar and/or unpredictable aspects; x involve largely nonroutine issues addressed using guidelines or procedures that require interpretation and/or adaptation 3 Applied to activities that are set in contexts with some unfamiliar or unpredictable aspects; involve routine and nonroutine issues identified x and addressed by interpreting and/or applying established guidelines or procedures with some variations 2 Applied in activities that are set in a range of x familiar predictable context; involve routine issues 1 Applied in activities that are set in a limited range of highly familiar and predictable contexts; involve straightforward, routine issues which are x addressed by following set rules, guidelines or procedures Note The five SOLO levels are: (i) pre-structural (no relevance): fail, incompetent, misses the point; (ii) unit-structural (one relevant aspect): identify, name, follow simple procedure; (iii) multi-structural (several relevant independent aspects): combine, describe, enumerate, perform serial skills, list; (iv) relational (integration into a structure): analyze, apply, argue, compare/ contrast, criticize, explain causes, relate, justify; and (v) extended abstract (generalization to a new domain): create, formulate, generate, hypothesize, reflect, theorize. Source JET Education Services (2017), p.30. 68 | Philippine Qualifications Framework Review Annex 1.4 Degree of Independence Domain, Following the Dreyfus Model of Skills Acquisition Dreyfus Levels PQF- Degree of Independence Domain Advanced Novice Competent Proficient Expert Beginner 8 Full independence in individual work and/or in terms of multi-disciplinary and more complex setting that demands leadership for research x and creativity for strategic value added. Significant level of expertise-based autonomy and accountability. 7 Highly substantial degree of independence that involves exercise of leadership and initiative x individual work or in teams of multi-disciplinary field. 6 Substantial degree of independence and or/in x teams of related fields with minimal supervision. 5 In conditions where there is broad guidance and direction, where judgment is required in planning and selecting appropriate equipment, services and techniques for self and other. Undertake x work involving participation in the development of strategic initiatives, as well as personal responsibility and autonomy in performing complex technical operations or organizing others. 4 Work involve some leadership and guidance when x x organizing activities of self and others. 3 Application at this level may involve individual responsibility or autonomy, and/or may involve some responsibility for others. Participation in x teams including team or group coordination may be involved 2 In conditions where there is substantial support, guidance or supervision; limited judgment or x discretion is needed 1 In conditions where there is very close support, guidance or supervision; minimum judgment or x discretion is needed. Annex 2 Project Milestones May 2020 October 2020 Inception Consultation report meetings held submitted to share the July-August 2020 preliminary March - June 2021 Questionnaire- findings on Consultation based the survey and meetings held to stakeholder interviews present complete survey draft report to the PQF-NCC and its TWG August- July 2021 September Final report 2020 submitted Key informants to PQF-NCC interview through TESDA June-July 2020 January- Desk and February 2021 literature Draft PQF report reviews circulated for stakerholders’ feedback Annex 3 List of Key Informant Interviewees The review team conducted key informant interviews by each stakeholder group. The study could not have been made possible without significant inputs from representatives. The following key informants provided valuable suggestions and feedback on the PQF • To get clear pictures of the current status of the PQF and its implementation within the context of the Philippine economy, labor market skill needs, and the K to 12 Reform; • To identify critical issues related to the design and implementation of the PQF; and • To gather opinions on how to improve the PQF. Stakeholder Name Position and Organization Group Government DepEd Nepomuceno A. Malaluan Undersecretary and Chief of Staff Jesus Lorenzo R. Mateo Undersecretary for Planning, Human Resources, and Organizational Development G.H. S. Ambat Assistant Secretary for ALS Margarita C. Ballesteros Director for International Cooperation Jennifer Lopez Director, Education Program Supervisor Officer in Charge, Bureau of Human Resources and Organization Development Nicholas Capulong OIC Regional Director, DepEd Regional Office III John Siena Director, National Educators’ Academy Nelia Benito Director, Bureau of Education Assessment Wilfredo Cabral OIC Regional Director, DepEd National Capital Region (NCR) TESDA Rosanna A. Urdaneta Deputy Director General for Policies and Planning Imelda B. Taganas Executive Director, Qualifications and Standards Office Maria Susan P. Dela Rama Executive Director, Certification Office Florencio F. Sunico, Jr. Regional Director, NCR Vincent Aljon A. Cifra Regional Director, Region 1 DOLE Dominique R. Tutay Assistant Secretary Patricia P. Hornilla Deputy Executive Director, National Wages and Productivity Commission Paulina Kim C. Pacete Institute for Labor Studies John Emmanuel Villanueva Institute for Labor Studies PRC Dr. Jose Y. Cueto Commissioner Arch. Yolanda D. Reyes Commissioner Dr. Melinda Garcia Member, Professional Regulatory Board of Dentistry / Member, PQF-TWG Engr. Jericho T. Borja Member, Professional Regulatory Board of Mechanical Engineering Marie Cecile P. Fernando OIC, Qualifications and Registration Division CHED Att. Lily Freida M. Milla OIC, Deputy Executive Director IV Dr. Buenaventura D. Chief, Programs Development Division (PDD), Office of Programs and Macatangay Standards Development Division (OPSD) Annex 3 List of Key Informant Interviewees | 71 Aline G. Magalong Supervising Education Program Specialist, OPSD Private Sector Irene M. Isaac Former PQF-NCC Head of Secretariat and TESDA Director-General, now member of the National Reference Committee and the AQRF Philip Purnell Manager, SEAMEO INNOTECH Employer Associations/Industry Groups Antonio L. Sayo Chairman of Intellectual Property, Employers Confederation of the Philippines, Allen Rufo Vice President for Corporate Affairs, Toyota Motor Philippines Corporation, Member, Chamber of Automotive Manufacturers of the Philippines Inc. Christina G. Aquino Chair, Tourism Industry Board Foundation HEIs Dr. Ester Garcia President, University of the East France Jopillo Sumang Faculty, Asia Pacific College Dr. Gerardo Largoza Director, Quality Assurance, De La Salle University Dr. John Kliatchko Chair, Department of Interdisciplinary Studies, University of Santo Tomas TVIs Edicio dela Torre Former TESDA Director-General, President, Education for Life Foundation Marc Celis Deputy Director, Don Bosco One TVET Philippines Marjorie Mendenilla Executive Director, TechVoc Schools Association of the Philippines, Inc. (TVSA) Labor Unions Isidro Antonio Asper Senior Vice President for External Affairs, Federation of Free Workers Shirley Vicoy-Yorong National Director for Economic Services, Associated Labor Unions – Trade Union Congress of the Philippines (ALU-TUCP) TVET Trainees Maria Elisa Camara TESDA Women Center, Bartending NC II and Barista NC II Elaine Jasa TESDA Women Center, Bartending NC II and Barista NC II Brian Del Castillo TESDA Women Center, Bartending NC II and Barista NC II Arlene Luna TESDA Women Center, Bartending NC II and Barista NC II Leir Obapial Antipolo Institute of Technology (AiTECH), Technical Drafting NC II James Henry E. Lambonao AiTECH, Technical Drafting NC II Leeannie Jade A. San AiTECH, Technical Drafting NC II Andres Nelsie Marie D. Manahan AiTECH, Technical Drafting NC II Note The results of the KII should be interpreted with caution as interviewees responded in a group setting and their answers could be influenced by the opinions expressed by others in the group. Annex 4 Profile of the Survey Participants A questionnaire-based quantitative survey was conducted from July to August 2020 to understand stakeholders’ awareness, knowledge, and acceptance of the PQF. In total, 232 stakeholders reported the survey, and about 26 percent of the respondents had at least some experience of the PQF by participating in the PQF forum or consultation meetings. Labor Union Industry 1% PRC 58 8% TESDA 12 TVIs DOLE 10 7% DepEd 10 CHED 5 Others (DOST, DOH, DTI, MARINA) 7 Government Higher Education Institution 47 44% Education COE 30 Institutions Secondary School 1 34% TVIs 15 Industry 19 NGOs 4 Labor Union 3 PRC 25% TESDA 5% DOLE 5% TOTAL 231 DepEd 4% Others 3% CHED 2% Annex 5 PQF Survey Questionnaire Please read each question carefully and mark the number under the one answer that most closely fits your opinion. Scores (1) (2) (3) (4) (5) Strongly Disagree Nor disagree or Agree Strongly Disagree agree Agree Part A.1. Purposes of the PQF – Ensuring the fundamental purposes of qualification A.1.1. The PQF meets the fundamental purpose of qualification. In other words, the PQF plays a crucial role in retaining the relevance and effectiveness of qualifications so that qualifications can respond to current and emerging industry skill needs and new job roles in terms of knowledge, skills and values and applications. In the PQF, employers expect that qualifications guarantee the job competencies of graduates, while employees expect their qualifications are well recognized and rewarded in the labor market. A.1.1.1 If you agree, what factors do you think have contributed to enhancing and retaining the relevance and effectiveness of qualifications? A.1.1.2 If you disagree, what are the main reasons for your judgment? Why has the PQF not worked as intended and what needs to be done? * To answer A.1.1.1. and A.1.1.2, several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Adequacy in contents (coverage) and logical hierarchy of the PQF qualifications levels and descriptors 2. Institutional framework designed to promote close working relationship between employers, qualification authority (i.e. TESDA, HEIs, professional organizations) and education & training providers to develop qualification standards, curriculum, and TRs based on industry skill needs and new job roles 3. Government’s administrative, technical and financial support 4. Understanding & recognition of the importance of the PQF in securing quality labor by stakeholders (e.g. government/ government agencies, employers, industry associations, professional organizations, HEIs, TVET providers, workers, and general public) 5. Capacity of key stakeholders (e.g. government/government agencies, employers, industry associations, professional organizations, HEIs, TVET providers) for identifying and analyzing the changes in skill needs, designing curriculum and TRs, and approving and implementing new qualifications and framework 6. Others: Part A.2. Purposes of the PQF – Driving broader education and training system reforms towards the LLL society A.2.1. The PQF has supported the design and delivery of education and training in the Philippines by providing a basis to set qualification levels for specific education and training programs. Education and training providers have tried to equip learners and trainees with knowledge, skills, and values demanded by the labor market, which is documented in the PQF. A.2.1.1. If you agree with A.2.1., what factors do you think have contributed? A.2.1.2. If you disagree with A.2.1., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer A.2.1.1. and A.2.1.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 74 | Philippine Qualifications Framework Review 1. Adequacy in contents (coverage) and logical hierarchy of the PQF qualifications levels and descriptors 2. Understanding of the contents of the PQF (e.g. qualification levels and level descriptors) and recognition of its importance by education and training providers (e.g. DepEd, TESDA, CHED, schools, TVET institutions, and HEIs) 3. Capacity of education and training providers to identify knowledge, skills, and values demanded by labor market, develop curriculum and TRs according to the PQF qualification levels and level descriptors, and deliver them 4. Others: A.2.2. The PQF has promoted systematic integration of education and training, and close linkages among education, training, and then the labor market. By doing A.2.1., education and training systems have begun to work to complement each other for meeting the labor market skill needs. A.2.2.1. If you agree with A.2.2., what factors do you think have contributed? A.2.2.2. If you disagree with A.2.2., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer A.2.2.1. and A.2.2.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Adequacy in contents (coverage) and logical hierarchy of the PQF qualifications levels and descriptors 2. Understanding of the contents of the PQF (e.g. qualification levels and level descriptors) and the role of the PQF in connecting education qualifications and TVET qualifications 3. Institutional / legal framework that makes it work to link education and TVET qualifications horizontally and vertically (e.g. person with NQ5 in TVET can go to NQ6 in HE program(i.e. BA), person with NQ7 in HE(i.e. Master’s program) can transfer to other NQ7 in HE program) 4. The level of people’s awareness of the Philippine Credit Transfer System 5. Others: A.2.3. The PQF has played a role in providing people, especially those with a lower level of qualifications, with more education and training opportunities, and improving their qualification levels. A.2.3.1. If you agree with A.2.3., what factors do you think have contributed? A.2.3.2. If you disagree with A.2.3., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer A.2.3.1. and A.2.3.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Adequacy in contents (coverage) and logical hierarchy of the PQF qualifications levels and descriptors 2. Understanding of the contents of the PQF (e.g. qualification levels and level descriptors) and the role of the PQF in connecting credits earned by the Recognition of Prior Learning and education and TVET qualifications 3. Institutional / legal framework that makes it work to link credits earned by the RPL and education and TVET qualifications 4. The level of people’s awareness of the RPL and Philippine Credit Transfer Systems 5. Others: A.2.4. The PQF has recognized learning gained outside formal education and training – including STEP (community- based informal short training), other short-term training by government agencies, research-oriented qualifications (credit recognition), or work-based experiences. A.2.4.1. If you agree with A.2.4., what factors do you think have contributed? A.2.4.2. If you disagree with A.2.4., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer A.2.4.1. and A.2.4.2., several factors like presented below can be considered. Please rank them according to Annex 5 PQF Survey Questionnaire | 75 the level of significance and add your detailed explanation and opinions for each items. 1. Adequacy in contents (coverage) and logical hierarchy of the PQF qualifications levels and descriptors 2. Accreditation of non-formal education and training programs for credit by DepEd, TESDA, CHED, PRC, the Civil Aviation and Authority of the Philippines(CAAP) and Maritime Industry Authority(MARINA) 3. The Philippine Credit Transfer System that uses articulation, credit transfer and recognition of prior learning as the mechanisms to determine equivalencies between learning outcomes and to award credit for the purpose of progression through the PQF level 4. The Philippine TVET Competency Assessment and Certification System(PTCACS) 5. Others: A.2.5. The PQF has promoted credit accumulation (leading to formal qualifications) and transfer across the PQF qualifications. A.2.5.1. If you agree with A.2.5., what factors do you think have contributed? A.2.5.2. If you disagree with A.2.5., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer A.2.5.1. and A.2.5.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Adequacy in contents (coverage) and logical hierarchy of the PQF qualifications levels and descriptors 2. People’s understanding of the contents of the PQF (e.g. qualification levels and level descriptors) and the role of the PQF in connecting credits earned by the Recognition of Prior Learning and education and TVET qualifications 3. Institutional / legal framework that makes it work to link credits earned and education and TVET qualifications 4. People’s awareness and understanding of the Philippine Credit Accumulation and Transfer System 5. Others: Part B. Purposes of the PQF – Ensuring the fundamental purposes of qualification B.1. The PQF aligns eight-levels qualifications with the corresponding level descriptors, including complexity of learning outcomes. In other words, the PQF is well designed to (i) distinguish between levels and thus qualification types, so the PQF provides transparency on learning the learners expect to acquire and on the qualifications the learners expect to hold; (ii) address existing requirements of the community, industry, government, and academia; and also (iii) reflect changing needs of skills, knowledge, and application in light of economic and societal transformation. B.1.1. If you agree with B.1., what factors do you think have contributed? B.1.2. If you disagree with B.1., what are the main reasons for your judgment? why has the 8 level alignment not worked as intended? and what needs to be done? * To answer B.1.1. and B.1.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Clear definition of the PQF qualification levels and descriptors 2. Logical hierarchy of the PQF qualifications levels and descriptors 3. Institutional system by which key actors like industry, DepEd, DOLE, CHED, PRC can actively participate in the formulation of the PQF qualification levels and descriptors 4. Others: B.2. The PQF has played a crucial role in integrating qualifications for TVET into a comprehensive qualification framework (and thus promoting transfer between TVET track and academic track). B.2.1. If you agree with B.2., what factors do you think have contributed? 76 | Philippine Qualifications Framework Review B.2.2. If you disagree with B.2., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer B.2.1. and B.2.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Adequacy in contents of the PQF qualification levels and descriptors that cover both TVET and academic qualifications 2. Logical hierarchy of the PQF qualifications levels and descriptors that links TVET qualifications and academic qualifications horizontally and vertically 3. Recognition of permeability of different types and levels of qualifications by society 4. Others: B.3. The PQF positioned senior high school education (SHS) as a foundation level. The PQF contributed to making sure that SHS fulfills its role in preparing youth for TVET and/or higher education. B.3.1. If you agree with B.3., what factors do you think have contributed? B.3.2. If you disagree with B.3., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer B.3.1. and B.3.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Clear definition of the PQF qualification levels and descriptors, especially level 1 and its descriptors 2. Logical hierarchy of the PQF qualifications levels and descriptors 3. Others: B.4. The PQF promotes Continuing Professional Development and Career Progression & Specialization, including upskilling, re-skilling, and cross-skilling. B.4.1. If you agree with B.4., what factors do you think have contributed? B.4.2. If you disagree with B.4., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer B.4.1. and B.4.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Adequacy in contents (coverage) and logical hierarchy of the PQF qualifications levels and descriptors 2. People’s understanding of the contents of the PQF (e.g. qualification levels and level descriptors) and the role of the PQF in connecting credits and qualifications earned during the professional life 3. Institutional / legal framework that makes it work to link credits and qualifications earned to higher levels of (professional) qualifications 4. People’s awareness and understanding of the Philippine Credit Accumulation and Transfer System 5. Others: B.5. The PQF has aided learner mobility (pathways) vertically between hierarchical qualification levels and horizontally between different types of qualifications (within and between education and training sectors). B.5.1. If you agree with B.5., what factors do you think have contributed? B.5.2. If you disagree with B.5., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer B.5.1. and B.5.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. Annex 5 PQF Survey Questionnaire | 77 1. Adequacy in contents of the PQF qualification levels and descriptors that cover both TVET and academic qualifications 2. Logical hierarchy of the PQF qualifications levels and descriptors that links TVET qualifications and academic qualifications horizontally and vertically 3. Recognition of permeability of different types and levels of qualifications by society 4. Institutional / legal framework that makes it work to link education and TVET qualifications horizontally and vertically (e.g. person with NQ5 in TVET can go to NQ6 in HE program(i.e. BA), person with NQ7 in HE(i.e. Master’s program) can transfer to other NQ7 in HE program) 5. The level of people’s awareness of the Philippine Credit Transfer System 6. Others: B.6. The PQF reflects the importance of lifelong learning. B.6.1. If you agree with B.6., what factors do you think have contributed? B.6.2. If you disagree with B.6., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer B.6.1. and B.6.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Adequacy in contents (coverage) and logical hierarchy of the PQF qualifications levels and descriptors 2. People’s understanding of the contents of the PQF (e.g. qualification levels and level descriptors) and the role of the PQF in connecting credits and qualifications earned during their working lives 3. Institutional / legal framework that makes it work to link credits and qualifications earned to higher levels of qualifications 4. People’s awareness and understanding of the Philippine Credit Accumulation and Transfer System 5. Others: Part C. Quality Assurance – Promoting quality assurance process C.1. The PQF has played a crucial role in promoting the quality assurance of higher education institutions (HEIs) and TVET institutions, HEIs and TVET programs, and corresponding qualifications. C.1.1. If you agree with C.1., what factors do you think have contributed? C.1.2. If you disagree with C.1., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer C.1.1. and C.1.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Adequacy in contents (coverage) and logical hierarchy of the PQF qualifications levels and descriptors 2. Utilization of the PQF qualification levels and level descriptors as standards for quality assurance 3. Recognition of the PQF qualifications level and level descriptors by society 4. People’s awareness and acceptance of the Philippine Credit Accumulation and Transfer System 5. Others: C.2. The PQF has played a crucial role in promoting the quality assurance of shorter form credentials and thus recognizing shorter form credentials for credit into the PQF qualifications. C.2.1. If you agree with C.2., what factors do you think have contributed? C.2.2. If you disagree with C.2., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer C.2.1. and C.2.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 78 | Philippine Qualifications Framework Review 1. Adequacy in contents (coverage) and logical hierarchy of the PQF qualifications levels and descriptors 2. Utilization of the PQF qualification levels and level descriptors as standards for quality assurance 3. Recognition of the PQF qualifications level and level descriptors by society 4. Others: C.3. The PQF has played a crucial role in promoting transparency of diverse qualifications so that learners, workers, professionals, employers and the society can trust the qualification (i.e. through activities such as the provision of the benchmarks or quality criteria that needs to meet in order to be accredited in the PQF or a user-friendly register system). C.3.1. If you agree with C.3., what factors do you think have contributed? C.3.2. If you disagree with C.3., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer C.3.1. and C.3.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Adequacy in contents of the PQF qualification levels and descriptors that cover both TVET and academic qualifications 2. Logical hierarchy of the PQF qualifications levels and descriptors that links TVET qualifications and academic qualifications horizontally and vertically 3. Recognition of permeability of different types and levels of qualifications by society 4. Institutional / legal framework that makes it work to link education and TVET qualifications horizontally and vertically (e.g. person with NQ5 in TVET can go to NQ6 in HE program(i.e. BA), person with NQ7 in HE(i.e. Master’s program) can transfer to other NQ7 in HE program) 5. The level of people’s awareness of the Philippine Credit Transfer System 6. Others: C.4. The PQF system has kept (or is ready to keep) the PQF updated through formal processes of qualification addition and removal hinged on changes in economy and industrial needs. C.4.1. If you agree with C.4., what factors do you think have contributed? C.4.2. If you disagree with C.4., what are the main reasons for your judgment? why has the PQF not worked as intended? and what needs to be done? * To answer C.4.1. and C.4.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Awareness of the importance of timely revision of the PQF qualification levels and level descriptors according to changes in skill demands 2. Capacity of key actors (e.g. employers, TESDA, CHED, PRC, DepED, …) to catch changes in skill demands and reflect them in curriculum and TRs 3. Legal and financial supporting mechanisms for timely adjustment of the PQF 4. Others: Part D. Governance – facilitating interactions among stakeholders (i.e. TESDA, CHED, DOLE, DepEd, Higher Education Institutions, TVET providers, and Industry) D.1. The PQF governance system has played a crucial role in engaging stakeholders in designing programs and qualifications, promoting lifelong learning and social mobility (pathways) through communication, collaboration and coordination across education, TVET and industry, and increasing the sectoral initiatives. D.1.1. If you agree with D.1., what factors do you think have contributed? D.1.2. If you disagree with D.1., what are the main reasons for your judgment? and what needs to be done? Annex 5 PQF Survey Questionnaire | 79 * To answer D.1.1. and D.1.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Awareness / understanding of the importance of the PQF in promoting effective HRD and thus national economic development by key stakeholders 2. Capacity of key stakeholders (e.g. DepEd, TESDA, CHED, PRC, DOLE, industry representative organizations, …) to formulate and implement the PQF system 3. Legal framework and financial supporting system for implementing the PQF 4. Institutionalized coordination mechanism(s) among stakeholders on matters of the PQF formulation and implementation 5. Others: D.2. The PQF governance system has played a crucial role in increasing public awareness of the usefulness of the PQF for their career development, as well as other stakeholders such as education and TVET providers. D.2.1. If you agree with D.2., what factors do you think have contributed? D.2.2. If you disagree with D.2., what are the main reasons for your judgment? and what needs to be done? * To answer D.2.1. and D.2.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Campaigns by stakeholders (e.g. DepEd, TESDA, CHED, PRC, DOLE, industry representative organizations, …) on the importance of the PQF and how to use it 2. Capacity of key stakeholders to increase general public’s and stakeholders’ awareness and utilization of the PQF 3. Legal framework and financial supporting system for implementing the PQF 4. Institutionalized coordination mechanism(s) among stakeholders 5. Others: D.3. The PQF governance system has played a crucial role in promoting the reform of the education and training systems in terms of quality, relevance, access, efficiency, and equity, and consequently enhancing the competitiveness of the Philippines education and training system. D.3.1. If you agree with D.3., what factors do you think have contributed? D.3.2. If you disagree with D.3., what are the main reasons for your judgment? and what needs to be done? * To answer D.3.1. and D.3.2., several factors including ones presented below can be considered. Please rank them according to the level of significance and add your detailed explanation and opinions for each item. 1. Awareness / understanding of the importance of the PQF in promoting effective HRD and thus national economic development by key stakeholders 2. Capacity of key stakeholders (e.g. DepEd, TESDA, CHED, PRC, DOLE, industry representative organizations, …) to formulate and implement the PQF system 3. Legal framework and financial supporting system for implementing the PQF 4. Institutionalized coordination mechanism(s) among stakeholders on designing and implementing the reform of education and training 5. Others: D.4. The PQF governance system has played a crucial role in efficiently carrying responsibilities of the PQF NCC and Technical Committee (institutional arrangement) in order to ensure quality assurance of the PQF as well as operation. D.4.1. If you agree with D.4., what factors do you think have contributed? D.4.2. If you disagree with D.4., what are the main reasons for your judgment? and what needs to be done? To answer D.4.1. and D.4.2., several factors including ones presented below can be considered. Please rank them 80 | Philippine Qualifications Framework Review according to the level of significance and add your detailed explanation and opinions for each item. 1. Awareness / understanding of the importance of the PQF in promoting effective HRD and thus national economic development by key stakeholders 2. Capacity of key stakeholders (e.g. DepEd, TESDA, CHED, PRC, DOLE, industry representative organizations, …) to formulate and implement the PQF system 3. Legal framework and financial supporting system for implementing the PQF 4. Institutionalized coordination mechanism(s) among stakeholders on matters of the PQF formulation and implementation 5. Others: Department of Labor and Employment The PQF review process and report documentation was supported by the Korea-World Bank Partnership Facility as part of its technical assistance to the government on the Philippine Future of Jobs.