- 2025Design
Background
Quality and Qualifications Ireland (QQI) is the statutory agency responsible for the quality assurance of education and training in the Further Education and Training (FET) and Higher Education (HE) sectors, as well as for other registered providers. It also maintains Ireland’s National Qualifications Framework (NQF) and sets the standards for QQI awards Levels 1-10 (EQF 1-9).
Ireland’s NQF was established in 2003 and to date has not been reviewed. The NFQ has two awards at Level 6 (EQF 5), One award is in the FET domain (Higher Certificate), delivered by FET providers, while the other is in the HE domain (Advanced Certificate). A QQI evaluation report in 2021 'Evaluation of the Comparability of the Advanced Certificate and Higher Certificate Qualifications' noted on p.3:
'Since the establishment of the NFQ, there has been frequent discussion and some degree of tension about the placement of separate further and higher education awards at Level 6, in the form of the Advanced Certificate (AC) and Higher Certificate (HC) respectively. The parity of esteem of further and higher education has been challenged by the perception that those in possession of a higher education award at Level 6 have greater chances of progression to higher education awards at Levels 7 and beyond than their counterparts with a Level 6 further education qualification'
The report also notes that employers do not understand the difference between the two L6 awards.
Included in QQI’s Statement of Strategy 2025-27 are the following strategic priorities:
- future-proof the NQF;
- deliver trusted regulation, guidelines, advice and services;
- share valuable system-wide insights, research and analysis;
- deepen national and international partnerships.
In 2024, QQI published its Programme for Review of National Framework of Qualifications (NFQ) Policies. In implementing that programme, in 2025, QQI launched a number of consultations in relation to its strategic aim of future-proofing the NQF, which will influence both quality assurance and programme development and delivery in both the FET sector, and in Ireland’s emerging Tertiary Sector.
Of particular significance to Ireland’s FET sector is the QQI consultation on qualifications at NQF Levels 5-6 (EQF 4-5) to introduce a single major award at Level 6 for both the FET and HE sector and be a partial qualification with European Credit Transfer and Accumulation System (ECTS). The consultation also proposed that Level 5 be considered a partial HE qualification, also with ECTS.
This is a significant development for Ireland’s FET sector. QQI's White Paper re Policy on Qualifications at NQF Levels 5-6 outlines the current structure as (p.3)
2.1. Qualifications at NFQ Levels 5 and 6
The major awards available at these levels are: Level 5 Certificate – major award at NFQ Level 5 and Level 6 Diploma – major award at NFQ Level 6.
Non-major awards at these levels are also important for access, transfer and progression, social inclusion, lifelong learning and flexible learning. Non-major awards are smaller qualifications developed using the award-type descriptors for minor awards, special purpose awards or supplemental awards.
NFQ Levels 5 and 6 represent a shared space occupied by both further and higher education providers and these qualifications are simply defined by their level in the Irish NFQ. Qualifications at NFQ Levels 5 and 6 can be awarded by Designated Awarding Bodies (DABs) which include universities, technological universities, institutes of technology and the RCSI; QQI; and Listed Awarding Bodies (LABs). QQI may also delegate authority to make these awards to relevant providers that meet certain criteria.
Awards at NFQ Level 5 are most commonly offered by further education and training providers and mainly Education and Training Boards (ETBs), while awards at NFQ Level 6 are offered by both further and higher education providers, noting that further education and training providers continue to be more active in the delivery of qualifications at NFQ Level 6.
Migrating from this structure to the one outlined, initially in QQI's Green, and then White Paper as published throughout 2025 supports the forthcoming Tertiary Education Strategy and progression for FET learners.
Objectives
QQI's initial Green Paper on Intermediate Qualifications at NFQ Levels 5 & 6 and the later White Paper outlines the changes from the above structures to the following:
The Level 5 Certificate is equivalent to the European Qualifications Framework (EQF) Level 4. The Level 5 Certificate is an intermediate qualification of the short cycle of the Qualifications Framework of the European Higher Education Area (EHEA) sometimes referred to as the Bologna Framework. The Level 5 Certificate consists of at least 60 ECTS credits. It is typically achieved in at least one year of full-time study (or equivalent). It is a full qualification at NFQ Level 5, i.e. a qualification in its own right. It is also an intermediate qualification of the Level 6 Diploma, which is a major award at NFQ Level 6. 60% of the credit volume associated with the Level 5 Certificate must be undertaken at NFQ Level 5, while the remainder of the credit may be at a level above or below NFQ Level 5. Learning outcomes associated with NFQ Level 5 may be used to describe learning achieved in the first year of programmes leading to awards at NFQ Levels 7 and 8, where appropriate. Exit and/or embedded awards available for the Level 5 Certificate can only be non-major awards at NFQ Levels 4 and 5, depending on the credit with which the award is associated. These awards must be less than 60 ECTS credits. These awards can be micro-credentials where they are less than 30 ECTS.
For Level 6:
The Level 6 Diploma is a major award at NFQ Level 6. The Level 6 Diploma consists of at least 120 ECTS credits. It is typically achieved in at least two academic years of full-time learning, though various other patterns of part-time and work-integrated learning are common. The first year of the programme may lead to the Level 5 Certificate. As such, the Level 6 Diploma will be awarded on completion of a two-year programme (or longer), or on completion of a one-year programme where a programme of typically one year duration and leading to a Level 5 Certificate precedes the Level 6 Diploma. At least 60 ECTS credits must be undertaken at NFQ Level 6. The remaining 60 ECTS can be achieved at levels below or above Level 6. Where the Level 5 Certificate makes up the remaining 60 ECTS credits, as outlined above, only 60% of these credits need to be at NFQ Level 5. Regardless of the approach to programme design, learners should be certified as having achieved a Level 6 Diploma of 120 ECTS achieved over at least two years of full-time learning or equivalent part-time learning or demonstrated through approved RPL arrangements. Learners may also be certified as having achieved the Level 5 Certificate after the first year. The European Diploma Supplement, which must be issued to learners achieving the Level 6 Diploma, will make it clear, where two awards are offered, that both qualifications contributed to the overall achievement of the Level 6 Diploma.
The Level 6 Diploma is equivalent to EQF Level 5. The Level 6 Diploma is a short cycle qualification under the Qualifications Framework of the European Higher Education Area (QF EHEA). Learners holding the Level 6 Diploma will be able to progress to programmes leading to awards at NFQ Levels 7 or 8 (EQF 6-7).
Description
The consultation process for QQI is similar to the Irish parliamentary processes of Green and White Papers. Where QQI issues a Green Paper, this is the first consultation of policy proposals for debate and discussion as part of the consultation with stakeholders. A White Paper follows a Green Paper and is the draft outline of the policy proposed. Both papers undergo full public and stakeholder consultation processes.
The Green Paper, QQI Green Paper on Intermediate Qualifications at NFQ Levels 5 and 6, was published in January 2026, with the consultation period for submissions closing in early March, 2025.
The White Paper, QQI White Paper on Qualifications at NFQ Levels 5 and 6, opened for public consultations in September 2025, and is scheduled to close in early January 2026.
A two stage consultation process was undertaken to review and define the policy for NQF Level 5 & 6 awards. The final stage of the consultation process will close in January 2026.
Bodies responsible
- Quality and Qualifications Ireland (QQI)
- Department of Further and Higher Education, Research, Innovation and Science (DFHERIS)
- Further Education and Training Authority (SOLAS)
- Higher Education Authority (HEA)
Target groups
Learners
- Learners in upper secondary, including apprentices
- Young people (15-29 years old)
- Young people not in employment, education or training (NEETs)
- Learners with migrant background, including refugees
- Learners at risk of early leaving or/and early leavers
- Learners with disabilities
- Adult learners
- Older workers and employees (55 - 64 years old)
- Unemployed and jobseekers
- Persons in employment, including those at risk of unemployment
- Low-skilled/qualified persons
- Learners from other groups at risk of exclusion (minorities, people with fewer opportunities due to geographical location or social-economic disadvantaged position)
Education professionals
- Guidance practitioners
Entities providing VET
- Companies
- Small and medium-sized enterprises (SMEs)
- VET providers (all kinds)
Other stakeholders
- Social partners (employer organisations and trade unions)
- National, regional and local authorities
Thematic categories
Governance of VET and lifelong learning
This thematic category looks at existing legal frameworks providing for strategic, operational – including quality assurance – and financing arrangements for VET and lifelong learning (LLL). It examines how VET and LLL-related policies are placed in broad national socioeconomic contexts and coordinate with other strategies and policies, such as economic, social and employment, growth and innovation, recovery and resilience.
This thematic category covers partnerships and collaboration networks of VET stakeholders – especially the social partners – to shape and implement VET in a country, including looking at how their roles and responsibilities for VET at national, regional and local levels are shared and distributed, ensuring an appropriate degree of autonomy for VET providers to adapt their offer.
The thematic category also includes efforts to create national, regional and sectoral skills intelligence systems (skills anticipation and graduate tracking) and using skills intelligence for making decisions about VET and LLL on quality, inclusiveness and flexibility.
This thematic sub-category refers to the integration of VET into economic, industrial, innovation, social and employment strategies, including those linked to recovery, green and digital transitions, and where VET is seen as a driver for innovation and growth. It includes national, regional, sectoral strategic documents or initiatives that make VET an integral part of broader policies, or applying a mix of policies to address an issue VET is part of, e.g. in addressing youth unemployment measures through VET, social and active labour market policies that are implemented in combination. National skill strategies aiming at quality and inclusive lifelong learning also fall into this sub-category.
This thematic sub-category refers both to formal mechanisms of stakeholder engagement in VET governance and to informal cooperation among stakeholders, which motivate shared responsibility for quality VET. Formal engagement is usually based on legally established institutional procedures that clearly define the role and responsibilities for relevant stakeholders in designing, implementing and improving VET. It also refers to establishing and increasing the degree of autonomy of VET providers for agile and flexible VET provision.
In terms of informal cooperation, the sub-category covers targeted actions by different stakeholders to promote or implement VET. This cooperation often leads to creating sustainable partnerships and making commitments for targeted actions, in line with the national context and regulation, e.g. national alliances for apprenticeships, pacts for youth or partnerships between schools and employers. It can also include initiatives and projects run by the social partners or sectoral organisations or networks of voluntary experts and executives, retired or on sabbatical, to support their peers in the fields of VET and apprenticeships, as part of the EAfA.
This thematic sub-category refers to further development of national quality assurance (QA) systems for IVET and CVET, for all learning environments (school-based provision and work-based learning, including apprenticeships) and all learning types (digital, face-to-face or blended), delivered by both public and private providers. These systems are underpinned by the EQAVET quality criteria and by indicative descriptors applied both at system and provider levels, as defined in Annex II of the VET Recommendation. The sub-category concerns creating and improving external and self-evaluation of VET providers, and establishing criteria of QA, accreditation of providers and programmes. It also covers the activities of Quality assurance national reference points for VET on implementing and further developing the EQAVET framework, including the implementation of peer reviews at VET system level.
Modernising VET infrastructure
This thematic category looks at how VET schools and companies providing VET are supported to update and upgrade their physical infrastructure for teaching and learning, including digital and green technologies, so that learners in all VET programmes and specialities have access to state-of-the-art equipment and are able to acquire relevant and up-to-date vocational and technical skills and competences. Modernising infrastructure in remote and rural areas increases the inclusiveness of VET and LLL.
This thematic sub-category refers to measures for modernising physical infrastructure, equipment and technology needed to acquire vocational skills in VET schools and institutions that provide CVET or adult learning, including VET school workshops and labs.
Modernising VET offer and delivery
This thematic category looks at what and how individuals learn, how learning content and learning outcomes in initial and continuing VET are defined, adapted and updated. First and foremost, it examines how VET standards, curricula, programmes and training courses are updated and modernised or new ones created. Updated and renewed VET content ensures that learners acquire a balanced mix of competences that address modern demands, and are more closely aligned with the realities of the labour market, including key competences, digital competences and skills for green transition and sustainability, both sector-specific and across sectors. Using learning outcomes as a basis is important to facilitate this modernisation, including modularisation of VET programmes. Updating and developing teaching and learning materials to support the above is also part of the category.
The thematic category continues to focus on strengthening high-quality and inclusive apprenticeships and work-based learning in real-life work environments and in line with the European framework for quality and effective apprenticeships. It looks at expanding apprenticeship to continuing vocational training and at developing VET programmes at EQF levels 5-8 for better permeability and lifelong learning and to support the need for higher vocational skills.
This thematic category also focuses on VET delivery through a mix of open, digital and participative learning environments, including workplaces conducive to learning, which are flexible, more adaptable to the ways individuals learn, and provide more access and outreach to various groups of learners, diversifying modes of learning and exploiting the potential of digital learning solutions and blended learning to complement face-to-face learning.
Centres of vocational excellence that connect VET to innovation and skill ecosystems and facilitate stronger cooperation with business and research also fall into this category.
VET standards and curricula define the content and outcomes of learning, most often at national or sectoral levels. VET programmes are based on standards and curricula and refer to specific vocations/occupations. They all need to be regularly reviewed, updated and aligned with the needs of the labour market and society. They need to include a balanced mix of vocational and technical skills corresponding to economic cycles, evolving jobs and working methods, and key competences, providing for resilience, lifelong learning, employability, social inclusion, active citizenship, sustainable awareness and personal development (Council of the European Union, 2020). The thematic sub-category also refers to establishing new VET programmes, reducing their number or discontinuing some. It also includes design of CVET programmes and training courses to adapt to labour market, sectoral or individual up- and re-skilling needs.
This thematic sub-category refers to expanding VET to higher levels and developing VET programmes leading to qualifications at EQF levels 5-8.
The learning-outcomes-based approaches focus on what a learner is expected to know, to be able to do and understand at the end of a learning process (Cedefop, 2016). Learning outcomes can be defined at the system level as in national qualification frameworks (NQFs), most of which are currently based on learning outcomes. Learning outcomes can be defined in qualification standards, curricula, learning programmes and assessment, although the last one is still uncommon. This thematic sub-category refers to the use of learning outcomes in these contexts and to development and use of modules or units of learning outcomes in VET curricula and programmes.
This thematic sub-category refers to acquisition of key competences and basic skills for all, from an early age and throughout their life, including those acquired as part of qualifications and curricula. Key competences include knowledge, skills and attitudes needed by all for personal fulfilment and development, employability and lifelong learning, social inclusion, active citizenship and sustainable awareness. Key competences include literacy; multilingual; science, technology, engineering and mathematical (STEM); digital; personal, social and learning to learn; active citizenship, entrepreneurship, cultural awareness and expression (Council of the European Union, 2018).
Transparency and portability of VET skills and qualifications
European principles and tools, such as EQF, ESCO, ECTS, Europass and ECVET, provide a strong basis for transparency and portability of national and sectoral qualifications across Europe, including the issuing of digital diplomas and certificates.
This thematic category looks at how individuals are supported in transferring, accumulating, and validating skills and competences acquired in formal, non-formal and informal settings – including learning on the job – and in having their learning recognised towards a qualification at any point of their lives. This is only possible if qualifications are transparent and comparable and are part of comprehensive national qualifications frameworks. Availability of qualifications smaller than full and acquirable in shorter periods of time is necessary; some countries have recently worked on developing partial qualifications, microcredentials, etc.
This thematic sub-category refers to the application of EU transparency tools that allow recognition of qualifications among EU Member States (EQF, Europass, ESCO, ECTS). Among others, it includes linking national VET platforms and databases to Europass in accordance with the Europass Decision and EQF Recommendation and the use of the ECVET principles and tools, such as memoranda of understanding or learning agreements applied in mobility actions. The sub-category also covers measures on recognition of foreign/third-country qualifications for specific target groups, e.g. migrants or highly skilled professionals.
This thematic sub-category concerns all developments related to national qualification frameworks (NQFs). As in most countries NQFs are in place and referenced to the European qualifications framework (EQF), the thematic sub-category covers updating and expanding the frameworks, developing new qualifications and using NQFs as catalysts for other reforms.
This thematic sub-category refers to validation mechanisms allowing individuals to accumulate, transfer, and recognise learning outcomes acquired non-formally and informally, including on-the-job learning, or in another formal system. In case they are not automatically recognised, a learner can have these learning outcomes validated and recognised through a particular process with a view to obtaining a partial or full qualification. This thematic sub-category covers such provisions and mechanisms.
Supporting lifelong learning culture and increasing participation
Lifelong learning refers to all learning (formal, non-formal or informal) taking place at all stages in life and resulting in an improvement or update in knowledge, skills, competences and attitudes or in participation in society from a personal, civic, cultural, social or employment-related perspective (Erasmus+, Glossary of terms, https://erasmus-plus.ec.europa.eu/programme-guide/part-d/glossary-common-terms). A systemic approach to CVET is crucial to ensure adaptability to evolving demands.
This broad thematic category looks at ways of creating opportunities and ensuring access to re-skilling and upskilling pathways, allowing individuals to progress smoothly in their learning throughout their lives with better permeability between general and vocational education and training, and better integration and compatibility between initial and continuing VET and with higher education. Individuals should be supported in acquiring and updating their skills and competences and navigating easily through education and training systems. Strategies and campaigns that promote VET and LLL as an attractive and high-quality pathway, providing quality lifelong guidance and tailored support to design learning and career paths, and various incentives (financial and non-financial) to attract and support participation in VET and LLL fall into this thematic category as well.
This thematic category also includes many initiatives on making VET inclusive and ensuring equal education and training opportunities for various groups of learners, regardless of their personal and economic background and place of residence – especially those at risk of disadvantage or exclusion, such as persons with disabilities, the low-skilled and low-qualified, minorities, migrants, refugees and others.
This thematic sub-category refers to ensuring smooth transitions (permeability) of learners within the entire education and training system, horizontally and vertically. It includes measures and policies allowing learners easily or by meeting certain conditions to move from general education programmes to VET and vice versa; to increase qualification levels in their vocation through the possibility of attending vocational programmes at higher levels, including professional degrees in higher education. It also covers opening up learning progression by introducing flexible pathways that are based on the validation and recognition of the outcomes of non-formal and informal learning.
This thematic sub-category refers to all kinds of incentives that encourage learners to take part in VET and lifelong learning; VET providers to improve, broaden and update their offer; companies to provide places for apprenticeship and work-based learning, and to stimulate and support learning of their employees. It also includes measures addressing specific challenges of small and medium-sized enterprises (SMEs) willing to create work-based learning opportunities in different sectors. Incentives can be financial (e.g. grants, allowances, tax incentives, levy/grant mechanisms, vouchers, training credits, individual learning accounts) and non-financial (e.g. information/advice on funding opportunities, technical support, mentoring).
This thematic sub-category refers to providing high-quality lifelong learning and career guidance services, including making full use of Europass and other digital services and resources.
This thematic sub-category refers to making VET pathways and programmes inclusive and accessible for all. It concerns measures and targeted actions to increase access and participation in VET and lifelong learning for learners from all vulnerable groups, and to support their school/training-to-work transitions. It includes measures to prevent early leaving from education and training. The thematic sub-category covers measures promoting gender balance in traditionally ‘male’ and ‘female’ professions and addressing gender-related and other stereotypes. The vulnerable groups are, but not limited to: persons with disabilities; the low-qualified/-skilled; minorities; persons of migrant background, including refugees; people with fewer opportunities due to their geographical location and/or their socioeconomically disadvantaged circumstances.
European and international dimensions of VET
This thematic category covers both European and international cooperation in initial and continuing VET, aimed at promoting EU VET systems as a European education and training area and making it a reference for learners in neighbouring countries and across the globe.
Expanding opportunities and increasing participation of VET learners, young and adult, and staff in international mobility for learning and work, including apprenticeship and virtual and blended mobility, account for most initiatives in this thematic category.
Apart from established and financially supported EU cooperation, VET opens up to cooperation and promotion of European values and national practices beyond the EU, which is becoming a trend. This thematic category also encompasses internationalisation strategies, transnational cooperation projects and initiatives – including those where joint VET programmes, examinations and qualifications are developed – and participation in international skills competitions that promote the image of VET. Using international qualifications – awarded by legally established international bodies or by a national body acting on behalf of an international body – in the national VET systems and recognising them towards national qualifications is also in focus.
This thematic sub-category refers to developing internationalisation strategies supporting a strategic approach to international cooperation in VET and lifelong learning, including going beyond the EU.
This thematic sub-category refers to work on the development of European vocational core profiles (as per the European Skills Agenda). The vocational core profiles would define a share of common training content at European level with the goal of supporting excellence and internationalisation, and facilitating the mobility of learners and workers in the future, automatic recognition of qualifications, and the development of joint vocational education and training curricula, qualifications and microcredentials.
This thematic sub-category applies to using in a country, qualifications awarded by a legally established international body (association, organisation, sector or company) or by a national body acting on behalf of an international body. International qualifications are used in more than one country and include learning outcomes assessed with reference to standards established by an international body (Council Recommendation on the European qualifications framework for lifelong learning, 2017). Some examples include the Microsoft or Cisco certificates in the ICT sector, the European e-competence framework for ICT professionals, and International Welders Federation qualifications (Cedefop, 2018).
Subsystem
Further reading
Country
Type of development
Cedefop, & ReferNet. (2026). Future Proofing the National Qualifications Framework: NQF Levels 5-6 (EQF 4-5) Proposal for Intermediate Awards in European Higher Education Area: Ireland. In Cedefop, & ReferNet. (2026). Timeline of VET policies in Europe (2025 update) [Online tool].
https://www.cedefop.europa.eu/nl/tools/timeline-vet-policies-europe/search/50992