Report of Ireland Summer 2016 Introduction This report has been drafted by the EQAVET National Reference Point of Ireland and describes the main quality assurance arrangements in vocational education and training. SECTION A DESCRIPTION OF QUALITY ASSURANCE ARRANGEMENTS 1. Initial VET (IVET) Introduction Ireland does not separate IVET from CVET and indeed incorporates VET along with adult education and training, up to EQF Level 5, as further education and training (FET). For the purpose of this document, IVET might be said to be provided within alternative school programmes such as Youthreach (a programme designed to meet the needs of early schoolleavers and young people deemed at risk), or as individual modules within the Leaving Certificate Vocational or Applied programmes, both of which aim to provide some vocational education within upper secondary school programmes. The Department of Education and Skills (DES) has overall responsibility for policy related to curriculum, assessment and qualifications for those of compulsory school age, within the schools system. In addition, the National Council for Curriculum Assessment (NCCA) advises the DES on developments, specifications and standards in school age provision and the State Examinations Commission (SEC) runs the State examinations and acts as the awarding body for schools awards/qualifications which are accommodated within the NFQ. Apprenticeship programmes also provide for IVET. A range of other programmes under the auspices of SOLAS and the DES, provide for participation of those who may be in need of initial vocational education and training, alongside mature and other learners. Such programmes include Post-Leaving Certificate programmes and traineeships. For the purpose of clarity and to avoid duplication, this first section of the report will focus primarily on IVET within the context of upper secondary education though it should be noted there is overlap in terms of the roles and responsibilities of key stakeholders involved in CVET.
1.1 Quality assurance arrangements at system level in IVET (include information on work-based learning) National Framework for quality assurance in initial VET who is in charge of what? The QQI is responsible for the external quality assurance of all post-compulsory education and training, including IVET. VET Providers are responsible for the quality assurance of their provision, including provision within the workplace. This arrangement applies to apprenticeship and traineeship provision managed within ETBs. Standards and awards established for VET provision, including apprenticeship, are quality assured essentially through principles of transparency, consistency and public consultation, including through sector specific stakeholder engagement, e.g. employers, social partners, and providers. Programmes leading to such awards are validated through the QQI validation processes. The DES is responsible for the quality assurance of all school-age and schoolbased education and training, including IVET, through the work of the Inspectorate. Standards are set through the work of the NCCA and SEC referenced above. Some work placement is involved within senior cycle of second level school. Statutory stakeholder involvement in quality assurance in initial VET systems Responsibility for IVET is devolved mainly to ETB providers. Other statutory providers include the Irish Fisheries Board, providing for initial training for the marine and fishing industries, Teagasc, the Agriculture and Food Development Authority, which trains new entrants into the agricultural and horticultural sectors, and Institutes of Technology, which may provide for apprenticeship training in part, or for hospitality sector entrants. School based upper-secondary IVET derives its statutory oversight from the work of the DES, NCCA, SEC, Teaching Council and Boards of Management within schools. Responsibility for quality assurance, including in work-based training/placements, falls primarily to the provider of the education/training opportunity. New quality assurance guidelines for providers of apprenticeship programmes explore the implications within this programme of such obligations, including the care of young apprentices. Requirements for evaluation and review Quality assurance in schools takes place through external inspection by the DES Inspectorate, supported by school self-evaluation. Within publicly funded VET under ETBs, the QQI policy requires self-evaluation by providers, including with feedback from learners and other stakeholders. Following the publication of self-evaluation reports, the QQI appoints external quality assurance panels, including international representation, resulting in a published evaluation report. As new quality assurance guidelines are in publication, the implementation of this external review process will take some time. Over 2016 and 2017 ETB providers will focus on self-evaluation and the development of new quality assurance policies, against which they will ultimately be reviewed. Independent
providers follow a similar process, though for a variety of reasons, including scale, the review cycle tends to be quicker. Identification of training needs Ireland published an updated National Skills Strategy in 2016. The identification of training needs at national level is informed by the work of the Expert Group on Future Skills Needs (DES) and within ETBs by the SOLAS Labour Market Information Unit (SLMRU). The SLMRU provide information to regions and ETBS and other providers are responsible to serve the skills needs of local communities, and are informed by SLMRU data. The recent establishment of Regional Skills Fora also assist in connecting employer needs to education and training provision. Guidance services, including Local Employment Services under the Department of Social Protection (DSP), also assist at individual level in the identification of skills needs and help direct clients to appropriate programmes of education and training. The Youth Guarantee is an important element in the framework of protection for young people and therefore of access to IVET. Who can deliver VET and under what conditions accreditation or other requirements on VET providers Where providers wish to offer programmes leading to awards on the NFQ they must meet relevant quality assurance requirements, either through being an established school of the DES, or by meeting the QQI quality assurance requirements. Access to initial programme validation is the first formal step in this process and provides for a detailed examination of the bona fides of the provider and their capacity to both meet learner needs and provide programmes leading to awards on the NFQ. ETB providers are 'legacy' compulsory providers, meaning that prior to the establishment of the QQI they were 'registered' with the then awards council, and had quality assurance systems in place at that point. With the establishment of the QQI, their relationship continued, protected under legislation, and is viewed as a mandatory relationship, i.e. they have no option but to work with the QQI with regard to the external quality assurance of provision. As outlined above, new quality assurance guidelines are being published and will require new policies and procedures at ETB level, arising from self-evaluation of the effectiveness of existing processes, over 2016-17. Certification assessment and validation of learning (system level)/monitoring, inspection and use of indicators Certification: assessment outside of compulsory schools systems, is a provider responsibility, quality assured by QQI if leading to awards on the NFQ. Quality assurance systems include internal monitoring by the provider (internal verification) and external authentication of assessment evidence by an assessor who is independent of the provider/centre where the learning programme has been followed. These quality assurance measures and reports are 'signed off' through the provider s oversight mechanism, typically a results approval panel. Following quality assured provider based assessment, certification is requested from the QQI. The QQI provides statistical data to providers on the outcomes of
assessment nationally, and provides a range of awards data in infographic form on our website. Monitoring, inspection and use of indicators: Monitoring policy is published by the QQI and is risk based, focusing on independent VET providers currently. Monitoring applies in principle to all VET providers accessing awards on the NFQ. Inspection is conducted only by the DES Inspectorate, following self-evaluation by schools. The QQI does not inspect providers. Use of indicators: EQAVET indicators have been built into legacy quality assurance procedures and are referenced within the new quality assurance policy. Providers of VET will embed EQAVET indicators in systems, including for self-evaluation. How is the quality assurance implementation monitored? School-based quality assurance results in published reports and the legislation (Education Act 1998) requires Inspectors of the DES to report the outcome of their evaluation of schools, the Minister, the Board of Management of the school, teachers, parents and the school patron. Within VET systems generally, responsibility for quality assurance rests with the provider. QQI monitoring is risk-based and is not particularly active within the ETB sector as yet. 1.2 Quality assurance arrangements at provider level in IVET Planning at VET provider level (including identification of training needs) An FET Strategy has been published by SOLAS and the DES, outlining some key priorities in provision of VET nationally. In addition, the National Skills Strategy 2025, and reports of the Expert Group on Future Skills Needs, inform planning of provision at local level. ETB providers are moving to a funding system based on service plans and performance frameworks, currently being piloted by SOLAS, as the funding authority for VET. Such frameworks will require evidence of planning of provision that includes reference to local skills and training needs, including for those in employment and in IVET. Requirements for monitoring and review (self-assessment) Quality assurance policy requires reflective practice and self-evaluation, including feedback from learners. Assessment practices, for example, within VET, provide for self-monitoring and review, with a view to continuous improvement through corrective action and improvement planning. Certification, assessment and validation of learners As described above, providers operate quality assurance policies relating to assessment, following validation of programmes leading to awards on the NFQ.
On the basis of quality assured assessment at local provider level, providers request certification from the QQI. Stakeholder involvement Self-evaluation processes are required to include provision for feedback from a range of stakeholders, including learners and employers/other related providers. In external evaluation processes, the QQI appoints panels of experts appropriate to the field, sector and purpose of the evaluation process. For example, programme validation panels include subject matter experts, employer interests, professional bodies etc. as appropriate. 2. Continuous VET (CVET) Introduction CVET is accommodated typically within the same structures as IVET, described above. Continuous professional development and training within the workplace is managed by employers procuring appropriate training for employees, collaborating with providers in further and higher education and training, and working through professional associations and 'skillnets', social partner-driven training opportunities that meet the needs of specific sectors, regions and industries. Skillnets are particularly effective for small and medium sized enterprises, which are very typical in an Irish context. Employer involvement in upskilling varies considerably, and may involve subsidies, time off the job to learn, and none of the above. In addition, a deep economic recession leading to up to 15% unemployment, including of previously skilled workers, led to a range of new VET opportunities, such as those provided within 'Springboard', 'Momentum' or 'Skills For Work' programmes, which offered opportunities to 'convert;' or re-focus existing skillsets towards sectors that were predicted to grow or where employment opportunities might more readily be found. The recent establishment of Regional Skills Fora will assist in strengthening links and the development of employment and education and training opportunities across all levels of the NFQ. 2.1 Quality assurance arrangements at system level in CVET (include information on work-based learning) National Framework for quality assurance in CVET who is in charge of what? Quality assurance of education and training provision in CVET is similar to that for IVET. Within the national system, the provider of the education/training opportunity is responsible for the internal quality assurance of the provision. Providers typically include ETBs, Teagasc (Agriculture and Horticulture), Skillnets, An Bord Altranais (Nursing profession), Bord Iascaigh Mhara (Fisheries Board). Where awards are offered, typically the relevant awarding body has a responsibility to quality assure the processes that lead to the award.
Statutory stakeholder involvement in quality assurance in CVET systems The QQI is obliged under legislation to produce Statutory Quality Assurance Guidelines, to which providers of education and training must respond, devising local policies and procedures meeting QQI requirements. Requirements for evaluation and review Statutory Quality Assurance Guidelines require providers to conduct selfevaluation of provision, and the QQI, in addition, externally reviews the effectiveness of provider's policies and procedures for quality assurance. The system for external review is underdeveloped pending establishment, approval, implementation and evaluation of new quality assurance policies and procedures by VET providers. Identification of training needs At national systematic level the Expert Group on Future Skills Needs within the Department of Education and Skills provides strategic advice on requirements for the economy, including with specific sectoral focus. In addition, the Skills and Labour Market Research Unit advise SOLAS funded provision. Regional Skills For a provide direction at local level. The Department of Social Protection local employment services (Intreo) and adult guidance services under the Adult Education Guidance Initiative, assists individuals who are not in employment with the identification of appropriate upskilling/reskilling opportunities. Who can deliver VET and under what conditions accreditation or other requirements on CVET providers VET is delivered in a wide range of contexts by a range of providers. Access to awards on the NFQ is a significant driver for compliance with quality assurance requirements and is typically in indicator of capacity of the VET provider in question. A common framework for the quality assurance of all post compulsory education and training is being published by the QQI. Additional sectoral guidelines provide clarity on specific measures that must be addressed within different sectors, including commercial and independent providers. Awards of professional bodies provided through the work of professional associations may or may not be aligned on the NFQ, but typically would be quality assured though the work of the relevant professional body. Accreditation may not always be a desired feature of CVET provision / interventions for example, within short term routine upskilling initiatives. All publicly funded VET is quality assured and typically includes certification as an option for programme participants.. Certification assessment and validation of learning (system level) QQI sets standards for awards in consultation with relevant stakeholders including employers and social partners. The QQI is also responsible to validate programmes of education and training leading to such awards. Learner achievement is locally assessed by providers according to quality assured explicit assessment practices. Providers are responsible under legislation to implement fair and consistent assessment. This applies to
outcomes of programmes and of prior informal learning. Technically the Qualifications and Quality Assurance (Education and Training) Act 2012 goes some of the way to providing for the recognition of non-formal awards through their inclusion on the NFQ. Monitoring, inspection and use of indicators Monitoring practice is governed by the QQI Monitoring Policy, which addresses the effectiveness of providers' quality assurance procedures, validated programmes where power to make awards is delegated, and the implementation of providers' procedures for access, transfer and progression. Providers are required to self-monitor routinely. Providers are also responsible for providing the QQI with a range of data reports and other documentation and information from time to time to support routine monitoring. In addition, 'for cause' monitoring may take place where specific risks are identified. 'Inspection' is not a feature of CVET provision. Use of indicators: EQAVET indicators are intrinsically consistent with the QQI Statutory Quality Assurance Guidelines, and providers are routinely directed to the EQAVET indicators to inform their own practices. Requirements CVET providers have to comply with (if not described in 1 st section) As set out above. 2.2 Quality assurance arrangements at provider level in CVET Planning at CVET provider level (including identification of training needs) Where provision is publicly funded, evidence of the relevance of and need for the programme is typically a condition of funding. Such information is also essential for reviewing within programme validation. Requirements for monitoring and review (self-assessment) The QQI Statutory Quality Assurance guidelines require self-monitoring and evaluation as part of all provision. The outcome of self-evaluation by providers in IVET/CVET is being given increased transparency and importance by the QQI. Certification, assessment and validation of learners Where providers are offering programmes leading to NFQ awards provided by the QQI, they must implement quality assured assessment that is fair and consistent. This process within VET requires external and internal quality assurance measures, checks and reports which are not currently published, but which may be reviewed by the QQI. Following such processes, providers then request certification from the QQI. Provider processes allow for assessment for exemptions, the recognition of nonformal and informal learning, for partial and for full awards.
Stakeholder involvement Some VET providers are governed through Boards of Management under law, and / or by Education and Training Boards. Such Boards provide for external stakeholder engagement including employers, learner and parent representation. Providers quality assured self-evaluation is essentially for review and must include feedback from learners and typically may include feedback from employers or further and or higher education and training recipients of programmes. SECTION B - INTERACTION BETWEEN NATIONAL QUALITY ASSURANCE AND EQAVET National Reference Point Introduction The National Reference Point for EQAVET is located within the Quality Assurance Directorate of the QQI. The NRP has participated in European conferences, delivered presentations within EQAVET meetings and hosted overseas study visits. Formerly a 'Copenhagen Group' raised awareness at strategic level in quality assurance in VET; following the 2012 legislation establishing the QQI, quality assurance was established as a prerequisite for any activity associated with the NFQ. This can be seen as an outcome of a confluence of factors, including the work of EQAVET. The QQI hosts meetings of an 'Irish Reference Group for EU initiatives in education and skills' which meets twice yearly and provides a forum for broad updates on workplans and progress in EQAVET. In addition, the ETBI has established an ETBI QQI Quality Assurance Forum, comprising representative of quality assurance functions within all ETBs. This group meets monthly. Updates are given on workplans and EQAVET initiatives. In addition, ETBI represent the NRP on the EQAVET + Working Group. The NRP was granted funds from the Commission from April 2016, to work on self-evaluation practices within publicly funded VET. National approach to enhance quality assurance Quality assurance is a core element underpinning a reliable and authoritative NFQ. The Irish NFQ is referenced to the European Qualifications Framework and is critical in enabling mobility and recognition for the Irish workforce. Because of this national strategic imperative, quality assurance of all education and training provision is central. The 2012 Qualifications and Quality Assurance (Education and Training) Act sets out the national approach to be managed by the QQI. The QQI, in accordance with the Act, has consulted on and is currently publishing comprehensive quality assurance guidelines to which all providers must respond. The QQI must evaluate providers quality assurance policies and procedures for the purposes, in the VET context, of approving them. Some providers, e.g. publicly funded VET, must work with the QQI with regard to quality assurance. Accordingly, the QQI works with such providers on a range of
enhancement activities, and providers themselves undertake such activities routinely individually and collaboratively in the interests of continuous improvement. Influence of EQAVET on national developments of quality assurance EQAVET principles and indicators are strongly embedded in QA practice, and therefore difficult to disentangle from quality assurance work in established VET nationally. However, they have strongly informed new quality assurance guidelines. This influence will be further consolidated through the self-evaluation practices of ETBs over 2016-17, and in their development of new quality assurance policies and procedures governing operations and provision.